PAPERS RELATING TO THE SOUTH SEA ISLANDS, THEIR NATURAL PRODUCTS, TRADE RESOURCES, &c., &c.

Appendix to the Journals of the House of Representatives, 1874 Session I, A-03

A.—3, 3a, 3b.

PAPERS RELATING TO THE SOUTH SEA ISLANDS, THEIR NATURAL PRODUCTS, TRADE RESOURCES, &c., &c.

PRESENTED TO BOTH HOUSES OF THE GENERAL ASSEMBLY, BY COMMAND OF HIS EXCELLENCY.

WELLINGTON.

1874.

CONTENTS.

PART I.—MEMORANDA, ADDRESSES, AND DESPATCHES. Ministerial Memoranda — , Page 1.' —The Navigator Group : The labour Question ... ... ... ... ... ... 1 2.—The Fiji and Navigator Groups : The United Stales ... ... ... ... ... 2 3.—Navigator Group : The United States : New Zealand should be empowered to negotiate with the Chiefs ... 4 4. —The Polynesian Islands : New Zealand's experience with the Maoris ... ... ... ... 4 s.—Suggested action of New Zealand in relation to Polynesia ... ... ... ... ... 5 Proposed Agreement for " The New Zealand and Polynesian Company " ... ... ... 9 6.—The Fiji Group ... ... ... ... ... ... ... ... 10 7. —Arrangements New Zealand might make with the Chiefs of the Navigator Group ... ... ... 11 Addresses to Her Majesty— 1. —From the Legislative Council: The Labour Traffic ... ... ... ... ~,12 2. —From the House of Representatives : The Labour Traffic : Death of Bishop Patteson ... ... 13 3. —From the Legislative Council: The Navigator Group ... ... ... ... ... 13 Despatches prom His Excellency tiie Governor— 1. —Enclosing Memorandum No. 1 ... ... ... ... ... ... ... 13 2. —Enclosing Memorandum No. 2 ... ... ... ... ... ... ... 14 3.—As to Memorandum No. 3 : The Navigators and the United States ... ... ... ... 14 4.—As to Memorandum No. 4 : The Navigators ... ... ... ... ... ... 15 5.-^Enclosing Memorandum No. 5, and Heads of Agreement for proposed Company ... ... ... 17 6.—Enclosing Memorandum No. 6 : The Fiji Group ... ... ... ... ... ... 18 7. —Enclosing Memorandum No. 7 : New Zealand and the Navigator Group ... ... ... ... 19 Despatches from the Seceetart op State for tiie Colonies— I.—Her Majesty will not take upon herself the Protectorate of the Navigator Group ... ... ... 19 2.—Forwarding Correspondence as to the United States Government and Pago-Pago Harbour, Navigator Group 19 3. —Her Majesty's Government will not come under obligation to interfere in the affairs of the Navigator Group 21 4. —Her Majesty's Government have not intimated an intention to annex the Fijis ... ... ... 21 PART lI.—AREA, POPULATION, TRADE, ETC., OF THE PRINCIPAL GROUPS OF ISLANDS. By Mr. W. Seed. Letter to Hon. Mr. Vogel ... ... ... ... ... ... ... ... 1 Position of each of the Principal Groups in the North and the South Pacific ... ... ... ... 2 Area, Population, Imports and Exports, of various Islands and Countries ... ... ... ... 3 Tonga or Friendly Islands ... ... ... ... ... ... ... ... 3 Fiji ... ... ... ... ... ... ... ... ... ... 4 Navigator Islands ... ... ... ... ... ... ... ... ... 5 Cook Islands ... ' ... ... ... ... ... ... ... ... 6 Tubai, or Austral Islands ... ... ... ... ... ... ... ... 7 Kermedic Islands ... ... ... ... ... ... ... ... 7 Society Islands ... ... ... ... ... ... ... ... ... 7 Low Archipelago, or Paumotu Group ... ... ... ... ... ... ... 8 Marquesas Archipelago ... ... ... ... ... ... ... ... 8 New Caledonia and Loyalty Islands ... ... ... .., ... ... ... 9 New Hebrides Islands ... ... ... ... ... ... ... ... 9 Banks Islands ... ... ... ... ... ... ... ... ... 11 Santa Cruz Islands ... ... ... ... ... ... ... ... 12 Solomon Archipelago ... ... ... ... ... ... ... ... 12 Louisiado Archipelago ... ... ... ... ... ... ... ... 12 New Britain and New Ireland ... ... ... ... ... ... ... 12 Admiralty Islands ... ... ... ... ... ... ... ... 13 Torrelau or Union Group, Ellice Group, and Gilbert or Kingsmill Group ... ... ... ... 13 Pbamix Group ... ... ... ... ... ... ... ... ... 15 Sandwich or Hawaiian Islands ... ... ... ... ... ... ... 15 Philipine Islands ... ... ... ... ... ... ... ... ... 16 Caroline Islands and Pelew Islands ... ... ... ... ... ... ... 16 Ladrones Islands ... ... ... ... ... ... ... ... 16 Galapagos Islands ... ... ... ... ... ... ... ... 16 West Indies ... ... ... ... ... ... ... ... ... 16 Java ... ... ... ... ... ... ... ... ... ... 17 Ceylon ... ... ... ... ... ... ... ... ... 17 Mauritius ... ... ... ... ... ... ... ... ... 17 Labuan ... ... ... ... ... ... ... ... ... 17 Borneo (Brunei) ... ... ... ... ... ... ... ... ... 17 The Navigator Group. By Mr. W. Seed—■ Report of a Visit, in 1872 ... ... ... ... ... ... ... ... 18

CONTENTS.

PART lII.—MEMORANDA ON SOME OP THE SOUTH SEA ISLANDS. By Mr. H. B. Stebndale. Page Letter to Hon. Mr. Vogel ... ... ... ... ... ... ... ... 1 Tonga Group ... ... ... ... ... ... ... ... ... 2 Meßsrs. Godeffroy's Operations, their origin and progress ... ... ... ... ... 3 Condition of the Islands ... ... ... ... ... ... ... 4 Their Government ... ... ... ... ... ... ... ... 5 Their future ... ... ... ... ... ... ... ... 6 Savage Island ... ... ... ... ... ... ... ... ... 7 Palmerston Island ... ... ... ... ... ... ... ... 7 Niuafou Island ... ... ... ... ... ... ... ... ... 7 Samoan (Navigator) Group ... ... ... ... ... ... .. ... 8 Their population ... ... ... ... ... ... ... ... 8 Upolu Island... ... ... ... ... ... ... ... ... 10 Messrs. Godeffroy ... ... ... ... ... ... ... ... 11 The alleged Discovery of Gold ... ... ... ... ... ... ... 12 Danger Island ... ... ... ... ... ... ... ... ... 13 Nassau, or Motungongau ... ... ... ... ... ... ... ... 14 Humphrey Island, or Manihiki ... ... ... ... ... ... ... 14 Kakahunga, or Grand Duke Alexander ... ... ... ... ... ... ... 14 Fanning Island ... ... ... ... ... ... ... ... ... 15 Fararauga, or Penrhyn Island ... ... ... ... ... ... ... 17 Marquesas Archipelago ... ... ... ... ... ... ... ... 17 Austral Isles ... ... ... ... ... ... ... ... ~, 18 Hervey, or Cook Group ... ... ... ... ... ... ... ... 19 Gilbert, or Kingsmill Group ... ... ... ... ... ... ... 20 Mulgrave Group, or Rallick and Radak Chains ... ... ... ... ... ... 21 Caroline Group ... ... ... ... ... ... ... ... ... 22 Islands, to the North of the Navigators, upon which Messrs. Godeffroy maintain Trading Agents ... ... 25 Additional Memoranda— French Occupation of the Marquesas ... ... ... ... ... ... ... 25 The Navigator Group ... ... ... ... ... ... ... ... 25 United States projects as to the Navigators ... ... ... ... ... ... 54 The Kobra Trade ... ... ... ... ... ... ... ... ... 54 Peesent Teade and Trading Areangements.—Letters by Mr. Steendaie, reprinted from the Southern Cross — Introductory ... ... ... ... ... ... ... ... ... 26 1. —Early Discoveries ... ... ... ... ... ... .., ... 26 2.—Tahiti and South Sea Trade ... ... ... ... ... ... ... 28 3.—The Pearl Shell and Cocoa Nut Trade ... ... ... ... ... ... 29 4.—Tahiti and Raiatea ... ... ... ... ... ... ... ... 32 5. —The Low Archipelago ... ... ... ... ... ... ... ... 33 6.— „ „ Its Pearl Fisheries ... ... ... ... ... ... 35 7.—The Paumotu Group ... ... ... ... ... ... ... ... 38 B.— ~ „ „ Its Trade ... ... ... ... ... ... ... 40 9.—The Pearl Shell Trade ... ... ... ... ... ... ... ... 42 10.—Sunday Island... ... ... ... ... ... ... ... ... 44 11. —Bethe-de-nier ... ... ... ... ... ... ... ... ... 45 12. —Beche-de-mer, Sponge, and Turtle Fishing ... ... ... ... ... ... 51

IV

A.—3

Pact I. Ministerial Memoranda.

PART I.

MEMORANDA, ADDRESSES, AND DESPATCHES.

I.—MINISTERIAL MEMORANDA. No. 1. THE NAVIGATOR GROUP—THE LABOUR QUESTION. Ministers have the honor to forward to His Excellency copy of a Resolution adopted by the Legislative Council with respect to the Navigator Islands. Ministers also forward an extract relating to the same subject from a Report by the Honorable Mr. Vogel, on his return from England. His Excellency is urgently advised to draw the attention of Her Majesty's Government to the great importance of deciding without delay what is to be done as to the islands of the Navigator group. It is intended by the contractors for the Californian mail service to make one of the islands a coaling station for their boats, and it is probable that in course of time, besides the steamer to New Zealand, steamers will be run from such station to Queensland, to the southern ports of Australia, to Tahiti, to Fiji, and New Caledonia. One of the islands possesses a most excellent harbour, approachable at any hour of the day or night. It may be assumed that that island will be chosen for the coaling station; but the position of the group as a whole, relatively to the western shores of North America, to Australia and New Zealand, and to the islands of the Pacific generally, makes the islands admirable calling places for mail services, as well as for depot purposes in connection with the islands trade. In short, they are probably destined to become places of great importance. It is therefore very desirable that assistance should be rendered to the rulers of the group to enable them to maintain law and order, and to do justice to the European interests which are likely to grow up there. Ministers submit that it is desirable the islands should be, in some form, under the protection or guidance of Great Britain or a British colony, following the precedent of the protectorates maintained by the Cape Colony. The recent movement in the Fiji group (the result of which has been the constitution of a form of nominally independent government, so weak in itself that the first foreign Power which chooses to interfere will assuredly be eagerly welcomed), is calculated to create very great anxiety as to the possibility of further complications. At the present moment the Government have before them a request from the British Consul at the Fijis, that the postal authorities in New Zealand will disregard the postal arrangements which have been made by the Government of the islands under apparently perfectly regular circumstances. Her Majesty's Ministers cannot surely desire that the Colony should act as an arbiter between the representative of Great Britain and a quasi-foreign Government. If a similar movement should take place in the Navigator group with a similar result, Ministers believe that New Zealand interests would be very much prejudiced. In the event of war, a foreign Power might, under pretence of a protectorate, take possession of the group, and, with a small fleet at command, might inflict great injury upon the Australasian Colonies. In any case, a Government nominally independent, but so intrinsically weak as such a Government as that of Fiji must be for a long period, can have little power for useful purposes, whilst it is liable to be converted to purposes the reverse of favourable to the large interests which Great Britain has in the South Pacific. Ministers desire very earnestly to add, that if Great Britain really intends to stop the frightful system of slavery which, under the pretence of voluntary labour, is now being carried on and extended amongst the islands of the Pacific, some hold must be obtained upon a group such as the Navigators; and a feeling must be created that the inhabitants of any of the scattered islands can depend that Great Britain will not only refuse to countenance the iniquities which are now driving the islanders to desperation, but will afford protection against slavery in any form and shape. I.—A. 3.

Enclosure to Despatch No. 1, page 13. Appendix, 1872 A. 1, pago 24.

2

A.-3

New Zealand is so much interested in the Californian service, one of the most important stations of which will before long be at the Navigators, that Ministers may confidently request His Excellency to assure Her Majesty's Government anything within reason which it may be desired the Colony should do to aid Great Britain in establishing for the group some fo,rm of protectorate, will receive from the Assembly the utmost consideration. Ministers propose to despatch to the Navigator Islands a person qualified to report upon them. Meanwhile, they would suggest that His Excellency should seek from Her Majesty's - Government authority to appoint a Consular Representative, with large magisterial powers, and with instructions to inquire and report to His Excellency, for the information of Her Majesty's Government, what steps, if any, it would be desirable to take, with the concurrence of the native rulers, for the purpose of extending British protection to the islands of the group. Wellington, 24th November, 1871. William Fox. Enclosures. ~ "On motion of the Honourable Colonel Whitmore, Resolved, That it is desirable that the Government should take the earliest practicable steps for the establishment of British authority in the Navigator Islands, and that a Committee be appointed to prepare an Address to Her Majesty to give effect to this Resolution, and for the purpose of the annexation of those islands to New Zealand; such Committee to consist of the Honourable Mr. Pharazyn, the Honourable Mr. H. R. Russell, the Honourable Mr. Waterhouse, the Honourable Mr. Miller, the Honourable Mr. Mantell, the Honourable Mr. Scotland, and the Mover." : " Before leaving the subject of the mail service, I desire briefly to draw the attention of the Government to the Navigator Islands. The contract permits calling at one of those islands; and lam informed that the contractors intend to avail themselves of that privilege. lam told that, in climate and fertility, the Navigators are not inferior to others of the Pacific groups. Their geographical position gives them much importance ; for they are centrally situated in respect to the principal Pacific Islands, so that, sooner or later, they are likely to become more or less important commercial centres. " I deem it of importance that the islands of the Navigator group should not be left without the pale of legalized enforcement of law and order. In a posthumously published work, by Lieut, the Hon. H. Meade, R.N.,* it is stated that the people of the Navigator group desire to place themselves under British protection. Notwithstanding the tenor of a Despatch which was recently published in Australia, wherein the Colonial Office expressly refuses either to take possession of the Fiji group, or to place those islands under a British Protectorate, I have reason to think that the Fijian question will be subjected to further consideration, with a view of devising means by which one or more of the Australian Colonies, or New Zealand, may, if so desired, take the islands under their protection. Such a proceeding would not be altogether without precedent. The Government of Cape Colony, lam informed, has been exercising Protectorate powers towards one of the South African Republics. " It appears to me that, so far as the islands of the Navigator group are concerned, New Zealand should take steps to secure that such an amount of protection shall be afforded to the group as the present rulers desire, and at their expense. I think that the Colony should cooperate with those rulers, to prevent the islands becoming the scene of lawlessness such as prevails in the Fijis, and especially that the Colony should aid in arresting any disposition to kidnap natives of the group into slavery, under the pretence of hiring them as free labourers. " Her Majesty's Government are very anxious to repress the growing disposition to kidnap natives of the South Sea Islands, and would no doubt warmly co-operate in any efforts in that direction which might be made by New Zealand."

Pabt I. Ministerial Memoranda.

See Mr. Seed's Report, Part 2, page 18. Appendix, 1872 : E. 2, page 8.

Journals of L.C. 1871, page 176.

Appendix, 1871: A. 6, page 5.

No. 2. THE FIJI AND NAVIGATOR GROUPS-THE UNITED STATES. The Postmaster-General has the honor to communicate to His Excellency the appended letters which have been received from Mr. W. H. Webb, in order that they may be forwarded to the Secretary of State for the Colonies should His Excellency consider such a course desirable. It is possible that, through Her Majesty's Consul at the Navigator Islands, some information respecting the subject of the letters may have reached the Foreign Office. Still, the information given by Mr. Webb may be considered useful; because, supposing it to be accurate, it seems to the Postmaster-General that a treaty has been made by the United States Government which is not only unusual in its character, but which may prove very detrimental to the Australasian Colonies generally and to New Zealand in particular. Supposing that a kingdom of the Samoan group should hereafter be recognized by Great Britain, as has been the case with the Hawaiian group, the anomaly [would be presented, that the United States, in case of war with Great Britain, would have the right to use, for belligerent purposes, a neutral harbour, from the use of which British vessels would be excluded. * " A Ride through the Disturbed Districts of New Zealand, together with some Account of the South Sea Islands ; being Selections from the Journals and Lettera of Lieutenant the Hon. Herbert Meade, R.N. Edited by hiß Brother." Second Edition. London : John Murray, 1871.

Enclosure to Despatch No. 2, page 14. Appendix, 1872 : E. 6, page 26.

3

A.—3

The Postmaster-General is not able to form an opinion whether such a treaty is opposed to the law of nations; but it seems to him to be so, because of the very great advantage it would give to one belligerent power over another. The whole question is of importance. The leading chiefs or kings of the principal of the Polynesian groups are in the habit of communicating with each other. Kamehameha, of the Hawaiian group, for instance, has taken very great interest in the proceedings of Cakobau in Fiji, and has sent congratulations to him. The Postmaster-General was recently informed, in Australia, upon very good authority, that negotiations had been opened between chiefs of the Navigator Islands and King Cakobau, with the view of bringing the Samoan group under the Government of Fiji. Maafu, the most powerful chief, next to Cakobau, in the Fijian group, and who will most probably succeed that king if the Fijian Government remains intact, is next heir to the sovereignty of the Tongan group. In short, it is possible that the Fijian, Samoan, and Tongan groups may, at no very distant date, be formed into one powerful kingdom. It need scarcely be pointed out how very serious a matter it would be for the Australasian Colonies if, with such a kingdom as has been indicated, it were permitted to foreign countries to make treaties similar to that described to Mr. Webb by the commander of the " Narragansett." The Postmaster-General has reason to think that, supposing the treaty to be of an unusual nature, it is so rather as a result of accident than of design. He has been informed that the object of the United States was only to secure a convenient port in which facilities could be afforded to American shipping, and that the action taken was certainly not dictated or influenced by unfriendly feeling towards the Australasian Colonies. The Postmaster-General thinks, therefore, that if representations were made to the United States Government, Great Britain would be allowed to participate in the treaty under consideration, so that Pago-Pago would not be made a harbour available only for use by American shipping. As to the second letter from Mr. Webb, the captain of the German war ship " Nymphe " informed the Postmaster-General, in Sydney, that there was no truth in the rumours prevalent there, during the vessel's stay in that port, that the German Government intended to take possession of the Fijian or the Samoan group. The Postmaster-General repeated the information to Mr. Webb; but that gentleman seems, by his letter, to be of opinion that there was some truth in the rumours current in Sydney. The Postmaster-General has lately been told, upon good authority, that the German Consul at Pago-Pago protested strongly against the treaty which was being made by the chiefs with the commander of the " Narragansett." If His Excellency should see fit to forward to the Secretary of State for the Colonies this Memorandum and its enclosures, it is respectfully requested that he will at the same time explain that, in bringing under notice this treaty question, the Postmaster-General has not been actuated by a desire to interfere in a matter with which he has officially no concern, but that he considered it to be his duty to place the information in the possession of His Excellency, leaving him to make such use of it as he might consider desirable. The Postmaster-General also appends hereto, for the information of His Excellency, and for transmission to the Secretary of State for the Colonies, should His Excellency see fit, a copy of the report of Mr. William Seed, the Secretary of Customs, respecting the visit made by him a few months since to the Navigator Islands. Wellington, sth June, 1872. Julius Vogel.

Part I. Ministerial Memoranda.

Part 2, page 18. Appendix, 1872 E. 2, page 8.

Enclosures. Sir, — Steamer "Nebraska," at Sea, 4th April, 1872. Having had the good fortune to meet the steamer " Nevada," on my trip homeward from Auckland, on the night of 29th March, I boarded her, and among the letters for me then obtained, I found one from Commander Richard W. Meade, commanding the United States steamer " Narragansett," dated at Pago-Pago, Tutuila, 10th March, 1872, communicating the official intelligence "that on the 17th February, the chief of Pago-Pago, 'Maunga/ signed a treaty or agreement with me, granting the exclusive right to the United States Government to use this harbour as a coaling and naval station for your line and our ships of war, and binding himself not to grant a like privilege to any other power than the United States." Commander Meade says further, " All the chiefs of the eastern division on Tutuila have, in my presence, signed articles of confederation, and have recognized the flag hoisted by Maunga on the 2nd March, Avhich I saluted with fifteen guns . . . and have solemnly agreed to keep the port regulations of Pago-Pago." He also says, "We have made a careful survey of the bay, placed buoys on the rocks, and in every way made the harbour ready for your line of steam-ships." On the evening of the 31st March, I entered the harbour of Pago-Pago with the " Nebraska," with the view of selecting and arranging for a suitable coaling station, detaining the steamer a few hours only. I have, &c, The Hon. J. Vogel, Commissioner of Customs, ' W. H. Webb. Wellington.

A.—3

4

Part I. Ministerial Memoranda.

Dear Sir, — Notwithstanding the remark made to you by the Commander of the Prussian man-of-war " Nymphe," while lying in the harbour of Sydney, when questioned as to the reported intentions of his Government in regard to the Samoan group, I am now more satisfied than before his late visit to the group, that those reports were well founded, and that the Prussian Government had instructed him to secure the control of Pago-Pago harbour, and perhaps the whole group. He presented claims against the chief of Pago-Pago, and has actually levied fines on him and other chiefs in the Island of Upola, reported at several thousands of dollars, to be paid very soon. He arrived, however, too late—Commander Meade had made and completed his treaty. I have, &c, The Hon. J. Vogel, Wellington. W. H. Webb.

No. 3. NAVIGATOR GROUP—THE UNITED STATES—NEW ZEALAND SHOULD BE EMPOWERED TO NEGOTIATE WITH THE CHIEFS. Ministers have had under consideration Earl Kimberley's Despatch No. 78, of the 18th December, 1872, covering certain correspondence between the Foreign Office and the Colonial Office on the subject of the agreement between the United States Naval Officer and the Chiefs of the Navigator Islands, for giving to the United States an exclusive right to establish a naval station and coaling depot in the harbour of Pango-Pango. It appears probable to Ministers that, as Mr. Webb's line has been discontinued, the attention of the United States Government may be temporarily diverted from the Navigator group, for Mr. Webb's grant of water frontage to the harbour was made, it is believed, to depend on his continuing the line of steamers. Captain Meade's agreement was made to depend on its ratification by the Government of the United States, and although highly recommended by the Government, it does not appear that the Senate has yet taken action. A Special Commissioner, accredited by the United States Government, has lately visited Honolulu, and it is stated in a paper published in that city that he was to proceed to the Navigator Islands and to Fiji. His Excellency's attention is directed to the reference made by Captain Meade to the agreement, in these terms : —"That on the] 17th February the chief of Pango-Pango, Maunga, signed a treaty or agreement with me, granting the exclusive right to the United States Government to use this harbour as a coaling and naval station for your line and our ships of war, and binding himself not to grant a like privilege to any other power than the United States," as stated in a letter from Mr. Webb to the Hon. J. Vogel. Under these circumstances, Ministers are of opinion that the Imperial Government should at once take steps to prevent the Navigator Islands falling into foreign hands, or should allow the New Zealand Government to make such arrangements with the chiefs of the islands as will protect New Zealand interests. The group is too near New Zealand to make it desirable that the islands should be subject to such an arrangement as Captain Meade clearly contemplated, or that they should be annexed to any foreign power. Ministers are of opinion that immediate action in the matter is extremely desirable. There is good reason to believe that the German Government contemplated annexing these islands, and would have done so but for Captain Meade's action; and there is the fear that in the event of the United States Government not desiring to carry out its agreement with the chiefs, action by the German Government may yet be taken. His Excellency is respectfully advised to communicate the views of Ministers to the Right Hon. the Secretary of State for the Colonies, and to request that the Imperial Government will grant to this Government the right to negotiate direct with the chiefs of the Navigator group, in the event of the Imperial Government deciding not to take action itself. The attention of His Excellency is further respectfully directed to the report of Mr. Seed upon the islands. He was sent there specially for the purpose by the New Zealand Government. His Excellency's attention is also directed to other correspondence on the subject, and to the appended, extract from the annual report of the Secretary of the United States Navy to his Government for the last year. Wellington, July 25th, 1873. Julius Vogel.

No. 2, pago 19. Despatch No. 3, page 14.

Part 11., page 18. Appendix, 1872 : E. 2, page 8.

No. 4. THE POLYNESIAN ISLANDS. Referring to a Memorandum (23, 1873) on the subject of the Navigator Islands, Ministers desire to further call His Excellency's attention to the very grave considerations connected with the Polynesian Islands. It need scarcely be urged as an excuse for Ministers touching upon the

No. 3, above. Enclosure to Despatch No. 4, pago 15.

5

A.—3

subject, that New Zealand, through its geographical position and its trade, is very much concerned in all that concerns the islands of the South Pacific. Ministers moved His Excellency, a few days since, to despatch a telegram to the Secretary of State on the subject of the Navigator group of islands, urging immediate action. Important as it is that the case of the Navigator group should receive immediate attention, it no less urgently requires recognition that more or less immediate action should be taken in respect to a very large number of the Pacific Islands. It is stated, on apparently competent authority, that the Imperial Government at length entertain the idea of annexing the Fiji group; but the Fiji group comprises islands similar to which there are numbers yet uncounted in the Pacific; and it is desirable, in regard to them, not to allow the same delay that has made the treatment of the Fiji group so difficult. It is respectfully submitted that a policy or line of conduct should be decided on, not alone in connection with one or two clusters of islands, but applicable to all Polynesia. In the absence of all machinery for governing, or controlling, or punishing for crime the white race, lawless communities will grow up in these islands. Then, when the necessity for control becomes imperative, it will be found, as in the case of Fiji, that the delay has made it difficult to do that which, at an earlier stage, might with ease have been effected. Again, if Great Britain means to extend her dominion in Polynesia, it will be better, for abundantly evident reasons, for her to do so comprehensively, than to allow herself to be forced into it, the choicest islands being, in the meanwhile, appropriated by Foreign Powers. Unless she agree with Foreign Powers —say, with Germany and the United States, and perhaps France and Holland—to jointly protect all Polynesia, and in that case it is to be presumed Australasia would have to be included, she would find it easier to deal with the whole of the unappropriated islands herself, rather than to submit to taking the leavings of other Powers, and to run the risk of having to deal with complicated international questions. It is respectfully urged that if the traditions of the nation may be employed as an argument, it could be shown that they point to the glad prosecution by Great Britain of the work of reducing to civilization the fertile islands of the Pacific; and, moreover, it could be shown that, with the modern appliances which science has placed at the command of civilization, and with the enormous wealth and immense naval power Great Britain is possessed of, the work is easy now, which in the past, with like reasons, would have been heroically carried out, whatever the sacrifice it entailed. But if Great Britain decide upon colonizing or civilizing Polynesia, there is much to be said in favour of her leaving to the already-established Colonies a considerable amount of the work and of the control. In the House of Commons, Mr. Gladstone referred to the " experience ef New Zealand "as somewhat discouraging the annexation of Fiji. Though this experience was not spoken of in disparaging terms, the surroundings left it open to such an interpretation. Ministers venture to urge that Great Britain, whatever the pecuniary cost it has entailed, may with justice be proud of having reproduced herself in the " Great Britain of the South," as New Zealand has been aptly called. Surely, a pecuniary sacrifice is not to be set against the fact that the Islands of New Zealand are open to the enterprise of all British subjects, and that they are already settled and colonized by British subjects who, whilst they preserve the best characteristics of their race, are free, as a community, from wide-spread pauperism, and find in the home of their adoption the means of educating their children and of offering still further relief to their burdened countrymen in the thickly-populated United Kingdom. But there is a lesson which New Zealand teaches, and that is, that local efforts to maintain peaceful relations with an uncivilized race are far more successful than those directed by a distant power. It may be worth consideration whether, if Polynesia is not to be abandoned to foreign nations, it would not be well to entrust to New Zealand, which possesses so much experience in dealing with the government of a mixed race, the task of aiding in extending the British sway to the islands of the Pacific. Of the terms under which this should be done, —whether by means of legal machinery applicable only to the white inhabitants; by Resident Governors, or Magistrates, who would continue to recognize the right of the dark race to self-government; or by uniting the islands into provinces, controlled under similar conditions, —it is not necessary now to decide. Indeed, Ministers could not accept the responsibility of submitting details, without a reference to the Assembly. But when Ministers remember the enterprise of the colonists—their desire to extend their commerce to all parts of the Pacific—the maritime advantages the Colony enjoys, not only in its extensive seaboard and hardy population, but in its facilities for ship-building— they cannot but come to the conclusion that the Parliament of New Zealand would cordially entertain proposals which had for their object to give to the Colony the opportunity of assisting Great Britain in the great national work of extending the British dominion throughout the unappropriated islands of the South Pacific. Wellington, October 17th, 1873. Julius Vogel.

Part I. « Ministerial Memoranda. t I L i L ) I r ; r r i i I i [ > i . i .

No. 5. f SUGGESTED ACTION OP NEW ZEALAND IN EELATION TO POLYNESIA. I have never felt any desire to see New Zealand constituted an independent State. On the; contrary, it has been a hope I have long cherished, that the British possessions would, in course • of time, he consolidated into a mighty Dominion, and the British Colonies become, not Depend-1

Enclosure to Despatch No. 5, page 17.

A.—3

6

Pact I.

encies, but integral and inseparable parts of an Empire owning a naval force so irresistible as to practically afford to its outlying portions full and ample security from the effects of any wars of other nations. Still, I have not been able to disguise from myself, that were New Zealand independent, she would not have stayed her hand from attempting to civilize, and to attach to her in peaceful connection, the islands of the Pacific. New Zealand's natural relations to the islands may to some extent be gauged from the fact that the country was peopled from the islands adjacent to Australia ; whilst, so far as I am aware, there is no trace of the islanders having established themselves in any part of the island continent. It is remarkable how the prevailing winds make New Zealand and the islands mutually accessible. They proclaim New Zealand as the natural head-quarters of Polynesia. It is singular how Polynesia is being divided. It would seem to those who think of the enterprise of Great Britain in earlier days, when colonization, in the absence of modern facilities, was infinitely more difficult than at present, that the country which 270 years ago acquired Barbadoes would not suffer the fertile islands of the Pacific to escape her. The late Admiral Washington, in a letter to the Colonial Office, in 1859, wrote : —" I have been much struck by the entire want, by Great Britain, of any advanced position in the Pacific Ocean. We have valuable possessions on either side, as at Vancouvers and Sydney, but not an islet or a rock in the 7,000 miles of ocean that separate them. The Panama and Sydney mail communication is likely to be established, yet we have no island on which to place a coaling station and whero we could insure fresh supplies * * * * j and it may hereafter be found very inconvenient that England should be shut out from any station in the Pacific, and that an enemy should have possession of Tongatabu, where there is a good harbour, within a few hundred miles of the track of our homeward-bound gold ships from Sydney and Melbourne. Neither forts nor batteries would be necessary to hold the ground. A single cruising ship would suffice for all the wants of the islands. Coral reefs and the hearty good-will of the natives would do the rest." Meanwhile, the islands of the Pacific have been objects of attraction to other countries. Holland, Spain, and France, and recently the United States and Germany, have not disguised their interest in them. To these nations they have been attractive chiefly as convict and naval stations, excepting to Holland, which apparently regards them from a commercial point of view. Great Britain, which might look upon them from four stand points,— Ist. As naval stations; 2nd. As important to the preservation and safety of her Australian possessions; 3rd. In order to preserve them from becoming convict stations; 4th. On account of their commercial importance— has stood aloof. She is now, probably, on the point of taking some responsibility in respect to Fiji; but it has, in many ways, been almost forced upon her. She is indifferent to the Navigator or Samoan Islands becoming an American dependency, although she knows they are being so constituted because of the excellent harbour they possess, their commanding position, and their splendid capabilities. On the other hand, Great Britain has entered on a herculean task, in undertaking the repression of slavery in the southern seas. This is a work which, under present conditions, will not grow less. The expense is not temporary. Let the islands continue as at present, and. the repression of slavery in the south seas means such an inducement to those who are successful in the trade as to couple with the efforts to check slavery an encouragement to promote it, and make necessary larger means of repression. It is hopeless, however, to expect Great Britain to take possession of all unoccupied Polynesia; and the problem which I have considered is—Can New Zealand do anything ? Politically, she cannot: but she can do much if it be conceded that to such countries as these islands, the influences of civilization and commerce will stand as substitutes, if not ultimately lead to the flag and the dominion. In fine, it seems to me that New Zealand may earn for reluctant Great Britain— without committing her to responsibilities she fears—a grand Island Dominion ; may, in the meanwhile, save the mother country much trouble, and danger, and risk. I speak, of course, of the danger and risk of expenditure, which weigh so much with the rulers of Great Britain; and when the result is secured, and the commerce established, it may be recognized that New Zealand, the Colony, has done a useful work for Great Britain, the Empire. In this work, all aid and countenance, or even tacit permission, have been denied to New Zealand. The plan which I am about to develop, arose in my mind in this way: — Mr. Coleman Phillips, who had aided in arranging for the establishment of a bank in Fiji, addressed to me a communication, in which he suggested the establishment of a company, which, like the East India Company, should endeavour politically and commercially to gain ascendancy in the Pacific Islands. I was much struck with the idea ; but when Mr. Phillips asked me if I would advise him to go home to endeavour to float the Company, I felt that he would have great difficulty in raising the capital. It then occurred to me, from the New Zealand point of view, from which I felt bound to look at it, that Mr. Phillips's project, supposing it matured, might or might not be worked in a manner calculated to be of much benefit to New Zealand.

Ministerial Memoranda.

7

A.-3

I then asked myself, was it not worth the while of New Zealand to secure the charge of the great work, by enabling the capital to be raised. What I have already written will suggest the answer the query met with in my mind. I recognized that New Zealand should make the effort; and the following is the course I advise : — A company to be formed, on the share capital of which New Zealand to give a guarantee of 5 per cent, interest for fifty years. I estimate that this would secure the necessary capital with facility. The Company to purchase, if procurable, the leading factories and estates already existent in the chief islands, and to establish others of its own; to acquire land, and assist suitable persons with capital and means, on condition that the produce be sold to the Company at agreed prices; to aid the Missionaries to civilize, and to endeavour to encourage native industry by agreements with the chiefs. I need not here more minutely particularize the nature of the Company's operations. I have described them in a Memorandum to His Excellency, which is attached. It will be sufficient now to add, that I propose the Company should, by its immense resources, do all it can to develop, and to absorb, the trade and produce of the islands. I do not propose that the Company should be more than a commercial one, and therefore it is no part of my proposition that it should confine its operations to the Islands unanncxed to foreign countries; on the contrary, it seems to me, for example, that the Company's operations would be heartily welcomed by the French at Tahiti and New Caledonia. The returns I propose New Zealand should exact for its guarantee are certain conditions, such as— (a.) That the Company should carry the produce of the islands to New Zealand, and should ship from New Zealand its supplies to the islands. (b.) Royalty to be paid on all produce procured by the Company from the Islands; and also a Royalty on all supplies, other than those of New Zealand produce and manufacture, sent to the Islands. (c.) The establishment of manufactories in New Zealand, to utilize the island products, such as sugar refineries, cotton mills, paper mills, &c. (d.) * Affording encouragement to New Zealand productions and manufactures, by shipping to the islands—Live stock, and such articles, produced or prepared in the Colony, as grain, flour, preserved meats, beer, rope, fabrics of various kinds, glass, reduced iron, coal, agricultural machinery, biscuits, boots and shoes, butter, cheese, hams and bacon, fish dried and pickled, candles, soap, cordage, sawn timber, doors and sashes, shingles, and cotton and woollen fabrics. (c.) The establishment of steam communication constantly between the different islands and New Zealand ports from North to South. I allude to these conditions sparingly, and do not state the relative importance I attach to them, because I am now dealing with the matter from the twofold position of the two parties to the bargain. When a number of gentlemen place themselves in a position to negotiate, I shall be able to develop the view of the Government, as they will that of the Company. As nearest to the work, I think the head-quarters of the Company should be in Auckland : but its works, and factories, and steamers should be in all parts of the Colony. It should have Directors in all the Provinces, who should possess a certain power of local action. They should periodically meet at some central place—say, Wellington. The Managing Director in the Colony and at home, should be appointed by the Government, to secure the fulfilment of the Company's obligations to the Colony. I may add, I consider that Mr. Phillips's share in the project entitles him to substantial compensation. I can hardly be more explicit until, as representing the Government, I am able to treat with those who represent the Company; and for obvious reasons I abstain from setting forth the many already established businesses, connections, lands, and factories which I believe the Company might, without difficulty, at once secure on favourable terms. In conclusion, I may observe that I believe the Company will be a great success; and that the shareholders, secure of five per cent, as their minimum profit, may reasonably count on very much larger returns. On the other hand, it seems to me difficult to exaggerate the advantages to New Zealand, and through New Zealand to the Empire, from this proposal. It will make New Zealand a great manufacturing and a great shipping country. It will stimulate the people of the Colony to the exercise of that hardy enterprise which has done so much to build * I find that the principal articles of commerce imported into the Mauritius are—Live animals (horses, cows, and oxen), gunny bags, beef salted, beer and ale, boots and shoes, carriages, cheese, coals, clocks and watches, coffee, cordage, coir, copper sheets and nails, corn and grain, cotton manufactures, fish dried and salted, haberdashery and millinery, hardware and cutlery, hats, iron (bar, sheet, and castings), lard, leather, linen manufactures, machinery and mill works, manure (guano), oils, pork salted, soap, spirits, tea, tobacco, umbrellas, wine, woollen manufactures (cloth, blankets, and shawls), ■wood (planks and boards, shingles). The quantities of cotton manufactures imported during 1867, were : Plain, 3,582,487 yards ; coloured, 3,750,795 yards. Java, besides immense quantities of cotton and woollen goods, receives Tery largely, from the United States—Flour, beef, pork, bread, machinery, cordage, furniture, soap, butter, candles, preserved provisions, sawn timber, apples, tongues, ploughs, carriages. There was imported into Java during 1871, cottons (including cotton yarns) to the value of £600,000. The imports of all sorts to Ceylon, in 1871, amounted to £4,070,000]; and to ths Mauritius, to £1,807,000.

Pact I.

Ministerial Memoranda.

A.—3

8

Past I. Ministerial Memoranda.

up the character of Great Britain and its people. The productions of the islands, and the demand from the islands for manufactures and supplies from temperate climates, must be borne in mind when it is attempted to realize the results. The advantage to Great Britain of dealing with one powerful Corporation, in lieu of with those who now ennoble or degrade the island trade, is sufficiently apparent. Supposing the Government to make a satisfactory arrangement with a body of gentlemen determined to work out the concession, I think such arrangement might properly be submitted to Parliament for ratification. I attach copy of a Memorandum on the subject, addressed to His Excellency some months since. Wellington, sth February, 1874. Julius Yogel. I avail myself of your Excellency's invitation to put into written shape the representation I have had the honor to personally make to you on the subject of the South Sea Islands. 1. The unsettled state of the South Sea Islands, especially the uncertainty which hangs over their future, is calculated to cause considerable uneasiness to the neighbouring Colonies. 2. Intimately identified as the future of these Colonies will be with the Imperial country, of which I am of opinion it is their ambition to remain dependencies, they cannot regard without anxiety the disposition evinced by some Foreign Nations to establish a footing in their neighbourhood, amongst the islands of the South Pacific. • 3. In New Zealand there is a strong feeling that the geographical position of the Colony, the prevailing winds, the shipping facilities, and other causes, ought to enable its inhabitants to develop large commercial relations with the islands. 4. The conditions to be met, appears to be, — (a.) To prevent, by anticipatory action, the establishment of European communities with lawless tendencies, such as have been displayed in Fiji. (b.) To develop the self-governing aptitudes of the Polynesian natives. (c.) To encourage them to labour, and to realize the advantages which labour confers. (d.) To stimulate the production of the islands. (c.) Without bloodshed or embroilment with other nations, to gradually introduce a uniform Government organization throughout Polynesia. To stop the traffic in forced labour, more is required than mere force and vigilance. As long as Her Majesty's vessels are engaged as at present, they no doubt offer a check to labour traffic; but they also make the profits of the traffic larger, and thus evidently encourage it. To permanently stop forced labour, there must be opportunities available to free labour. 6. Your Excellency is aware that I have felt much interest in a proposal made by Mr. Phillips, that a Trading Company should be formed in England, with the view of absorbing by its commercial power a large share of political control in the islands. The object proposed by Mr. Phillips, excepting that of a chartered labour traffic, I approved ; and your Excellency, I believe, communicated the substance of Mr. Phillips's ideas to the Secretary of State. I have since thought very carefully over the matter, and there are two points in respect to Mr. Phillips's proposal which seem to me to require serious consideration, and without providing for which I am not certain the proposed Company might not lend itself to retard, instead of to advance, the civilization of the islands. Those points arc, — (1.) That in order to obtain the necessary capital, every consideration besides that of the mere acquirement of profit might have to be abandoned. (2.) That Mr. Phillips's proposal does not provide that amount of direct and powerful Governmental control which in my opinion should be stipulated for, in the interest of the helpless natives. Taking all these circumstances into consideration, and not forgetting that New Zealand, by assuming the large responsibilities proposed, would have the right to the contingent advantages the island trade will confer, I am inclined to recommend, — (a.) That New Zealand should encourage the formation of a powerful Company to colonize the islands of the South Pacific, by offering a guarantee of five per cent. for forty years on the share capital. (6.) That the Government of New Zealand should appoint the managing director and secretary here, and the managing director in London, (c.) The object of the Company to be to civilize and settle the South Sea Islands, by opening up profitable production and trade in connection with them. (d.) The Company to establish factories and plantations at different islands, and to acquire by purchase some already established. (c.) To acquire lands, and to let the same on terms calculated to promote production. (/.) To arrange with chiefs to cultivate produce, and to dispose of it on agreed terms. (g.) To supply live stock and merchandise to the islands. (h.) To lend money and give assistance to settlers to establish plantations, (i.) To open up steam communication between the different islands, and between them and New Zealand.

9

A.—3

(j.) To discourage the removal of islanders from their homes for labour purposes, by affording them occupation on their own islands, or on islands adjacent. The Government of New Zealand to stipulate, in return for guarantee,— (a.) That the Company give facilities and reasonable pecuniary aid to the missionaries. (b.) That whilst affording inducements to free labour, the Company abstain from employing forced labour. (c.) The Company to own at least six steamers between the islands, and between the islands and New Zealand ; and to fix the times so that New Zealand shall be in communication with the principal islands at intervals of not more than a month. (d.) The Company to establish in New Zealand at least one cotton factory, at least one woollen factory, and at least one sugar refinery. (c.) That all the produce the Company obtain at the islands, or which is obtained from the lands of the Company, be forwarded to New Zealand. (/.) That all goods sent by the Company to the islands be shipped from New Zealand. ((/.) That on all produce the Company pay the Government of New Zealand five per cent, royalty. (h.) That on all goods shipped to the islands, other than those the produce or manufacture of New Zealand, the Company pay a royalty of seven and a half per cent. 7. The ultimate object which I have in view is, the establishment of the Polynesian Islands as one Dominion, with New Zealand the centre of Government; the Dominion, like Canada, to be a British dependency. 8. I venture to think that these proposals, if carried out, would save Great Britain large expense in connection with the repression of slavery, whilst the Imperial prestige in the South Pacific would be maintained. Julius Vogkl. Christchurch, 22nd November, 1873. After conferring with several gentlemen on the subject of this Memorandum, I agreed with Mr. Whitaker that he should act with a few promoters, and draw up the heads of an agreement, to be put into shape by the Attorney-General, if approved by the Cabinet, and then to be subject to the ratification of Parliament. I conceded, after a long discussion, the condition imposing a royalty on the shipments of the Company. I substituted for it a condition binding the Company to repay, out of profits, any payments made by the Government, and impounding all profits for that purpose; secondly, a power by which the Government can intervene in the case of the business of the Company not being carried on efficiently. I agreed to this change, because I found that every one to whom I had spoken was of opinion that the royalty would shut out the Company from much business which might otherwise be profitable; and because I believe, irrespective of the contingent advantages the Colony will gain, that it is sufficiently secured against any loss arising from the guarantee, by the provision making such guarantee a lien on future profits. Julius Vogel. Wellington, February 28th, 1874. Heads of an Agreement between the Government of New Zealand of the one part, and Frederick Whitaker on behalf of himself and the several other persons hereafter to be named (and herein called the Promoters) of the other part. 1. The Promoters undertake to form a Joint Stock Company, to be called "The New Zealand and Polynesian Company/ for the objects hereinafter mentioned. 2. The capital of the Company to be £1,000,000, divided into 100,000 shares of £10 each, with power to increase the capital and to borrow £1,000,000. 3. The liability of the shareholders to be limited. 4. The head-quarters of the Company to be at Auckland, and Directors resident in other parts of the Colony to act as Local Boards at such places as the business of the Company may from time to time require. A meeting of all the Colonial Directors to be held once a year in Wellington. A Board of Directors shall also be constituted in London. 5. The objects of the Company to be, — (1.) To carry on the business of merchants, ship-owners, planters, producers, manufacturers, brokers, agents, insurers, bankers, and money-lenders, in the islands of the Pacific, New Zealand, and Great Britain, and also elsewhere with the permission of the Government of New Zealand. 6. New Zealand to be made by the Company the depot for the island trade, and specially the Company,— (1.) To bring to New Zealand all the produce it exports from the islands, to be manufactured in or exported from New Zealand, unless permitted otherwise to deal with it by the Government. (2.) To ship from New Zealand all the merchandise and supplies imported by the Company into the islands, unless otherwise authorized by the Government. (3.) To employ at least six steam vessels to carry on the trade between New Zealand and the islands, and between the several islands. The steam vessels running from 2—A. 3.

Pact I. Ministerial Memoranda.

Proposed Agreement for Company.

A.—3

10

Pabt I.

the islands to New Zealand to call at Auckland, Manukau, Napier, Taranaki, Nelson, Wellington, Lyttelton, and Port Chalmers, as may from time to time be required by the Government, having due regard to the requirements of trade and the interests of the Company. (4.) To establish manufactories in New Zealand to utilize the products of the islands, and to prepare supplies and merchandise for export to the islands. (5.) To establish within five years such a manufactory in Otago, Canterbury, Wellington, and Auckland in the order those several places are named. 7. In consideration of the foregoing, the Government of New Zealand will guarantee interest after the rate of five pounds per centum per annum on the paid-up capital of the Company, not exceeding .£1,000,000, for fifty years, and will provide for the regular payment of such interest half-yearly, irrespective of the state of the accounts between the Government and the Company, and notwithstanding the Government and General Assembly may exercise the powers hereinafter provided for. 8. Such interest and all sums paid by the Government in respect of the guarantee shall be a first charge on the profits of the Company, and no dividends shall be paid by the Company until all sums advanced by the Government have been repaid. 9. If at any time the business of the Company is not carried on, in the opinion of the Governor in Council, with sufficient vigour or prudence, or in accordance with the intentions of this agreement, or if at any time after the expiration of three years there shall be due by the Company to the Government in respect of the guarantee a sum exceeding £100,000, it shall be lawful for the Government to suspend the powers and functions of the Company and of the Directors by notice to be published in the New Zealand Gazette. 10. In such case the business of the Company shall, until the General Assembly shall otherwise provide, be managed by a Commissioner, to be appointed by the Government, who shall have and may exercise all the functions and powers vested in the Directors * and 11. It shall be lawful for the General Assembly to deal with the Company and its business and property in such manner as the General Assembly may think fit: Provided that nothing be done to prejudice the payment of the guaranteed interest, which, under any event, shall be duly and punctually paid by the Government at the times and for the term herein mentioned : Provided also that any Bill affecting the powers, functions, or interests of the Company, shall be reserved for the signification of Her Majesty's pleasure thereon. 12. There shall be two Managing Directors, one in New Zealand and one in England, and those officers shall be appointed and may be removed by the Government. 13. The amount of salary of each Managing Director shall be fixed by the Government, but shall not exceed £1,800 per annum for the first year, with an annual increase of £100, till a maximum of £2,500 is reached. Such salaries to be paid by the Company. 14. The especial duty of the Managing Directors shall be to see that the agreement with the Government is faithfully carried out j to report all matters to the Government which they may deem of sufficient importance; and to furnish from the Company's books, and otherwise, all such information as the Government may from time to time require ; and no business or plantation shall be purchased without the consent of the Managing Director in New Zealand. 15. Subject to the foregoing, the Managing Directors to carry out the instructions of the Company. 16. The Directors, general and local, to be paid a reasonable remuneration for their services. 17. The Promoters shall not receive any promotion, money, or shares. 18. The agreement to be drawn up in accordance with these heads to be submitted to the General Assembly for ratification, and to be of no force until such ratification is obtained. If it be refused, such refusal to form no ground for compensation on any account whatever.

Ministerial Memoranda.

Proposed Agreement.

No. 6. THE FIJI ISLANDS. Three years ago the Colony of New South Wales was allowed to understand that Her Majesty's Government would not be averse to the Colony making an offer to annex Fiji. In a Memorandum by the Attorney-General of New South Wales to His Excellency the Governor, under date Bth August, 1871, there occurred the following passage : —" We are aware, from unofficial but reliable sources, that Her Majesty's Ministers in England are anxious to have the Fijian question settled in some way or other without delay. We have been informed that powers would in all probability be conferred upon this Colony, if we desired it, to annex Fiji, or take it under our protection." The Attorney-General's Memorandum was forwarded to the Secretary of State for the Colonies, who, in commenting on the passage quoted, wrote as follows, under date 3rd November, 1871: —" Sir James Martin adverts to the suggestion that the Fijis might be annexed to New South Wales ; and if the Colony were willing to undertake the responsibility of providing for the government of the islands, Her Majesty's Government would not refuse to entertain such a proposal, if it met with the concurrence of the native chiefs." That Colony did not favourably respond to the suggestion. The Premier thinks that if New

Enclosure to Despatch No. 6, page 18.

11

A.—3

Zealand were given to understand that an offer by the Colony to provide for the government of the islands would be entertained, it is probable the Assembly would sanction such an offer being made. New Zealand is better fitted than New South Wales to undertake the charge, on account of its nearer proximity, and its familiarity with the government of a race similar to that which comprises the bulk of the population of Fiji. In establishing a government at Fiji, the problem to be worked out is to divide the government fairly between the two races. Only of late years, and after the Native race ceased to be the more numerous, has this been sufficiently realized in New Zealand. But when the Colony was left to its own guidance, it arrived at the conclusion that the plough, and the axe, and the pen were preferable agents to the sword and the rifle ; and the Maori race has eagerly responded to the policy. The Maoris themselves would be excellent agents for extending to the Fiji Islands the desire for government and the knowledge of how to govern. The Maori schools, which are being so plentifully established in the Colony, could doubtless be made available for training young Fijians. The New Zealand colonists have already largely directed their attention to Fiji. They have established a bank there, with its head-quarters in New Zealand. Respecting the natural position which New Zealand occupies in regard to Fiji, the following extract from the Report of Mr. Thurston, 1866, then Her Majesty's Consul in Fiji and Tonga, printed in a Blue Book presented to the House of Commons, is instructive : — " Auckland, in New Zealand, is naturally the depot for the South Sea Islands trade. It is one-third of the distance nearer to Fiji than Sydney is. As the prevailing winds are fair both for going and returning, merchandise from Europe can be landed there and at the same prices and in about the same time as at Sydney, and the return voyage is much shorter." The laws of New Zealand, including those which enable revenue to be raised, would in great measure be at once applicable to Fiji. In short, all the experience of self-government gained by New Zealand should fit it for the task of establishing a Colonial Government at Fiji, the group to become part of the Colony, or to be governed as a separate Province, or in the form of a Protectorate, according as, after discussion, might be found most desirable. Precedent is not wanting for the suggested course. The Commission issued to the first Governor of New South Wales, Captain Phillip, gave him a jurisdiction which included and extended beyond the Fijian group. New Zealand was for some time actually governed from New South Wales. The Mauritius now governs the Seychelles. The Cape Government exercises, it is believed, or has exercised, protectorate rights over distinct territories ; and not long since, to Canada was assigned the duty of governing Manitoba. As already stated, the Premier only asks that the Assembly may be invited to make a proposal. He is not prepared to guarantee that it will do so. The terms upon which the duty should be undertaken would of course have to be considered. The Earl of Kimberley, in a Despatch under date 16th March, 1871, wrote: —"It would be impossible for this country to undertake the responsibility of the government of the islands, without a sufficient force to support its authority." In the event of annexation to New Zealand, this would probably not be required, and Her Majesty's Government would be spared much expense which would undoubtedly follow independent annexation. In consideration of this saving, it is to be presumed some assistance would be rendered at the outset; but it would be premature to discuss the point, or even to make it a condition. Wellington, Bth April, 1874. Julius Vogel.

Pact I. Ministerial Memoranda.

No. 7. ARRANGEMENTS NEW ZEALAND MIGHT MAKE WITH CHIEFS OF THE NAVIGATOR GROUP. The Premier has the honor to call His Excellency's attention to a Despatch from Lord Kimberley (No. 79, November 18th, 1873), in answer to one from His Excellency (No. 65, August Ist, 1873), communicating, as stated by Lord Kimberley, the wish of Ministers,: " that the Imperial Government should at once take steps to prevent the Navigator Islands from ! falling into foreign hands, or should allow the New Zealand Government to make such arrangements with the chiefs of the islands as will protect New Zealand interests." Lord Kimberley adds, "As the nature of the arrangements which the New Zealand Government desires to make with the chiefs of the Navigator Islands is not stated, Her Majesty's Government are unable to form an opinion upon this application j" but he concludes by stating, " They would not, however, be disposed to sanction any steps which could lay this country under obligations to interfere in the affairs of these islands." 2. The conclusion arrived at by Lord Kimberley seemed so definite, that it was not at the time considered necessary to enter into explanations as to the arrangements the New Zealand Government desired to make with the chiefs of the Navigator Islands. It has, however, been pointed out to the Premier that silence on this point might cause the correspondence to appear broken; and since the question of the future of the South Sea Islands has been taken up in another form, it is well that the point referred to by his Lordship should not be lost sight of.

No. 3, page 21. No. 3, page 14. Enclosure to Despatch No. 7, page 19.

A.—3

12

Pact I.

3. The arrangements which the New Zealand Government desired to make with the chiefs, depended upon the countenance which the Imperial Government were prepared to give, or the extent of liberty they were disposed to allow. 4. It would answer no purpose to state the details of the contemplated arrangements; nor, indeed, would it be possible to do so. But, generally, it may be said that the New Zealand Government desired to prevent the United States of America obtaining an actual ascendancy in the Navigator Islands. There can be no question that very powerful efforts were made to induce the United States to enter into arrangements which would have virtually amounted to a Protectorate of the group. These efforts have not been so much pushed since the vessels of the San Francisco service have gone by way of Kandavau; but there is no reason to suppose that the matter will be dropped. 5. The Government of New Zealand were anxious, as the Premier has stated, to prevent the United States obtaining an ascendancy. The Government were also anxious to make such arrangements with the chiefs as would induce them—in the event of Great Britain declining the Protectorate of the Islands—not to offer their allegiance to another nation. It is well known that the German residents in the group had pressed their Government to take possession of the islands; and it is equally well known that the French have recently shown a desire to extend their dominions in Polynesia. 6. The value of the Navigator Islands, on account of their resources and their geographical position, as well as from the fact that they are supposed to be outside the ordinary hurricane track of the South Pacific, is very great; and it would be little short of disastrous to the future of New Zealand if a foreign power should obtain sway in the Navigator group. 7. The Premier expresses most strongly the opinion of Ministers that it is desirable His Excellency should urge Her Majesty's Government to reconsider their decision, and to arrange for the annexation of these islands. 8. If Her Majesty's Government should be not willing to do so, Ministers —while recognizing the very great difficulty of New Zealand making any arrangement with the chiefs, in the absence of the power which the Imperial Government possess—still consider it desirable that liberty to make arrangement should be given to the Colony, if only with a view of staving off for a few years, the entrance of a foreign power into the group. During the interval, Her Majesty's Government might, as in the case of Fiji, see reason to recall their first refusal. 9. The arrangements which the New Zealand Government might make would be in the direction of shipping facilities, arrangements concerning Customs duties, use of ports, and probably the admission of chiefs' sons to native schools in New Zealand. 10. Some of these points may be more fully stated, as follows : — (a.) To make arrangements for securing to shipping from New Zealand the free use of all the ports in the islands, and the same facilities for obtaining supplies and carrying on trade therein, as have already been, or may hereafter be, granted to the ships of other countries. (h.) For securing the admission of goods from New Zealand on the same terms as to duties or imports of any kind, as shall at the same time be applicable to similar goods from other countries. (c.) For the location of an agent at any port in the group, for the purpose of facilitating commercial intercourse with the group; and also, if found necessary, for protecting the Customs revenue of New Zealand from illicit trade with it being carried on from the islands. Julius Vogel. Wellington, 22nd June, 1874.

Ministerial Memoranda.

lI.—ADDRESSES TO HER MAJESTY. No. 1. Most Gracious Sovereign,— We, your Majesty's loyal and dutiful subjects, Members of the Legislative Council of New Zealand in Parliament assembled, desire to submit for your Majesty's consideration: That, for some years past, a traffic which can only be characterized as a slave trade, and which is attended with all its evil and iniquitous consequences, has been carried on among the islands of the Pacific, by means of which the inhabitants of those islands have been taken away for the purpose of supplying labour to the plantations in Queensland and the Fiji Islands. That, as the result of this traffic, and the forcible abduction of the natives from their homes, scenes of violence and bloodshed are of frequent occurrence among those islands; that the angry passions of the natives have been roused to the utmost degree; and to this cause there is every reason to attribute the recent lamentable death of Bishop Patteson and his missionary companions.

Journals, 1871, page 185.

13

A.—3

That, as colonists of a country, inhabited by an aboriginal race, we view with abhorrence such practices, and look upon the continuance of this infamous traffic by our countrymen as a reproach and scandal to the British name, and a deep disgrace to our profession as Christian men. That the Mission to the Melanesian Islands having been originally established by the Bishop of New Zealand, and its head-quarters fixed in this Colony, we regard this Mission with peculiar interest. We therefore humbly pray that your Majesty will be pleased to cause such measures to be taken as will effectually put a stop to the recurrence of such nefarious practices.

Pact I. Addresses to Her Majesty.

No. 2. Most Gracious Sovereign,— We, your Majesty's faithful and loyal subjects, the Commons of New Zealand in Parliament assembled, beg to express the deep sorrow with which we have heard of the death of the Right Reverend John Coleridge Patteson, D.D., Bishop of Melanesia, and his missionary companions, the Reverend Mr. Atkin and an aboriginal islander, who, on the 20th September last, were martyred by the inhabitants of the Island of Nukapu, in the Southern Pacific Ocean. We have reason to believe that the cruel deed originated in the exasperation of the Natives at ill-usage received by them from certain persons, subjects of your Majesty, who, under colour of providing free labour for the Australian Colonies, have been guilty of acts inconsistent with the law of nations and the first principles of humanity. It is known that these persons have deceived natives by false pretences, and kidnapped them from their homes; and it is believed that the murder of the Bishop and his companions was an act of blind retaliation for the injuries so inflicted. One of the latest utterances of the good Bishop was a solemn protest against this iniquity, which he addressed to the Synod of his Church in this Colony, with a prediction of such results as that of which, too soon, he was himself the victim, —a copy whereof is herewith respectfully forwarded to your Most Gracious Majesty. We venture to submit to your Majesty, that a grave duty rests on the British Government: that of protecting the islanders of the Pacific against the infliction of wrongs by the hands of British subjects—wrongs little less grievous than those of the African slave trade. And we beg to assure your Most Gracious Majesty that we, the Commons of New Zealand, will at all times be ready to assist your Majesty's Government, by every means within our reach, in suppressing the practice referred to. And we pray that your Majesty may long live as the protector of the weak and defenceless in every part of the world.

Journals, 1871, page 327.

No. 3. Most Gracious Sovereign,— We, your Majesty's loyal and dutiful subjects, Members of the Legislative Council of New Zealand in Parliament assembled, desire to submit for your Majesty's consideration, — That, with a view to the better prevention of the iniquitous traffic in Polynesian labour, and to the better protection of British commerce in the Pacific, and especially the postal and commercial connection with Great Britain through the United States of America, which this Colony has made great sacrifices to create, it is of the greatest importance that your Majesty's authority should, as speedily as possible, be established in the Navigators Islands. That, in the event of the annexation or assumption of a protectorate over those islands by a foreign Power —a contingency which, from reliable information, appears to be imminent— British interests in the Australian Colonies would, in time of war, become seriously endangered. That, as these islands appear to be well suited for settlement, and the population desirous of being more closely connected with your Majesty's Empire, it is highly desirable that the group should be attached as a dependency to such one of the Australian Colonies as your Majesty may select. And we humbly pray that your Majesty will be pleased to create a naval station as early as possible in the group, which we believe to possess an excellent harbour, and to be otherwise well suited for the purpose.

Enclosures to Despatch from Sir G-. Bowen— Appendix, 1871: A. 1, pago 22. Journals of L.C. 1871, page 195.

lII.—DESPATCHES FROM HIS EXCELLENCY THE GOVERNOR. No. 1. (No. 112.) Government House, "Wellington, My Lord, — New Zealand, 24th November, 1871. At the request of my Responsible Advisers, I have the honor to transmit herewith

Appendix, 1572: A. 1, page 23. Memorandum, No. 1, page 1.

A.—3

14

Pabt I. Despatches from the G-OYernor.

Ministerial Memorandum, and also a copy of a Resolution adopted by the Legislative Council of New Zealand, respecting the Navigator Islands. I have, &c, The Right Hon. the Earl of Kimberley. G. F. Bowen.

No. 2. (No. 56.) Government House, Auckland, My Lord, — New Zealand, 26th June, 1872. At the request of my Responsible Advisers, I have the honor to transmit herewith the enclosed Ministerial Memorandum from the Postmaster-General of New Zealand (Mr. Vogel, C.M.G.), respecting certain questions connected with the Navigator Islands. 2. I have no means here of procuring any information on this subject in addition to that furnished by Mr. Vogel in the accompanying papers. 3. I have already communicated to my Ministers your Lordship's Despatch No. 10, of the 23rd February ultimo, stating the views of Her Majesty's Government with regard to the Navigator Islands. I have, &c, The Right Hon. the Earl of Kimberley. G. F. Bowen.

Memorandum No. 2, page 2. Appendix, 1872 : A. 1, page 96.

Ho. 1, page 19.

No. 3. (No. 65.) My Lord, — Government House, Wellington, Ist August, 1873. I am requested by my Advisers to inform you that they have had under consideration your Lordship's Despatch No. 78, of the 18th December, 1872, covering certain correspondence between the Foreign Office and the Colonial Office on the subject of the agreement between the United Sates Naval Officer and the Chief of the Navigator Islands, for giving to the United States an exclusive right to establish a naval station and coaling depot in the harbour of PangoPango. 2. It appears probable to my Advisers that, as Mr. Webb's line of steamers has been discontinued, the attention of the United States Government may be temporarily diverted from the Navigator group, for Mr. Webb's grant of water-frontage to the harbour was made, it is believed, to depend on his continuing the line of steamers. 3. Captain Meade's agreement was made to depend on its ratification by the Government of the United States, and although, highly recommended by the Government, it does not appear that the Senate has yet taken action. A Special Commissioner, accredited by the United States Government, has lately visited Honolulu, and it is stated in a paper published in that city, that he was to proceed to the Navigator Islands and to Fiji. 4. My Advisers have specially called my attention to the reference made by Captain Meade to the agreement in these terms: —" That on the 17th February the chief of Pango-Pango, Maunga, signed a treaty or agreement with me, granting the exclusive right to the United States Government to use this harbour as a coaling and naval station for your line and our ships of war, and binding himself not to grant a like privilege to any other Power than the United States/ as stated in a letter from Mr. Webb to the Hon. Mr. Vogel. 5. In these circumstances, my Advisers are very desirous that the Imperial Government should at once take steps to prevent the Navigator Islands falling into foreign hands, or should allow the New Zealand Government to make such arrangements with the chiefs of the islands as will protect New Zealand interests. The group is too near New Zealand to make it desirable that the islands should be subject to such an arrangement as Captain Meade clearly contemplated, or that they should be annexed by any foreign Power. lam therefore moved to represent that immediate action in the matter is extremely desirable. 6. There is, I am informed, reason to believe that the German Government contemplated annexing these islands, and would have done so but for Captain Meade's action; and there is reason to fear that, in the event of the United States Government not desiring to carry out its agreement with the chiefs, action by that Government may yet be taken. 7. In communicating the views of my Advisers to your Lordship, they desire that I will request Her Majesty's Government to grant to this Colony the right to negotiate directly with the chiefs of the Navigator group, in the event of Her Majesty's Government deciding not to take action themselves. 8. My predecessor, in his Despatch No. 56, 1872, transmitted to your Lordship, as an enclosure from the Colonial Postmaster-General, a report by an officer of this Government, who had been sent on a mission to the Samoan group, of the extraordinary capabilities of the harbour of Pango-Pango. In spite of the unfavourable replies which they have already received to their former representations on this subject, they would earnestly solicit the aid of Her Majesty's Government to prevent this Colony, whose trade and external transactions bid fair, at no remote period, to be extensively developed, from being deprived of these advantages which by

Memorandum No. 3, page 4.

15

A.—3

timely action may be secured to them. It would occasion a profound disappointment to the people of this Colony were the present opportunity to be lost, and, in spite of the preference manifested in our favour by the inhabitants, were a port of great commercial, and possibly of great political, importance, which so greatly concerns their interests, to fall into the hands of a foreign Power. I have, &c, James Fergusson, The Right Hon. the Earl of Kimberley. Governor.

Paetl. Despatches from the G-overnor.

No. 4 (No. 82.) Government House, Auckland, New Zealand, My Lord,— 22nd October, 1873. On the eve of my departure from Wellington, on a short visit to this Province, the Premier, the Hon. Mr. Vogel, called upon me and placed in my hands a Ministerial Memorandum on the subject of the Navigator Islands, in which your Lordship is well aware a considerable interest has for some years past been felt in this Colony, and with reference to which, at the request of my Advisers, I addressed you in my Despatch No. 65, 1873, upon the Ist August. I think it right, on this occasion, to transmit the Ministerial Memorandum. 2. Your Lordship will doubtless expect that in so doing I shall make some observations upon its subject-matter, and I trust that I shall not thereby appear to obtrude an opinion upon a question which does not naturally fall within the sphere of my duty. It is unnecessary to say I should in no case engage in, still less encourage, an agitation among the inhabitants of a Colony under my government, having for its object to influence or hamper the policy of Her Majesty's Government in any particular. 3. But the future regulation or government of the Pacific has for many years past engaged the lively interest of the Australian Colonies, and the difficulties which have lately increased in relation to the Fiji group, combined with the rumours of the interference of other Powers in the affairs of other groups, have aroused anxiety, if not impatience, as to the future bearing of their condition upon the interests of our growing communities. 4. The concern of those communities in the future of the Pacific is founded both on general and special grounds. The former they share with a large portion of the British nation, but in an increased degree, on account of their closer and personal interest, and of the part which they have themselves taken in the extension of the British sovereignty. Having themselves added important branches to the British Empire, they wish to see the valuable territory in their own neighbourhood brought under the government of the Crown; and they feel dissatisfaction, if not disgust, that lawless actions disgraceful to their nation should be committed, for the most part by their fellow-subjects, for want of the extension of that authority which they think should follow them wherever they go. 5. They regard, too, with aversion the acquisition by foreign nations, whom in modern times we have preceded and far outstripped in this hemisphere, of islands and groups of islands whose trade is already valuable and is capable of great expansion, and whose people have evinced a preference for our government or a desire for our protection. They know how generally commerce has followed the flag; and looking to the future, they contemplate with discontent the loss of that advantage which might have been expected to follow the extension of British government and the consequent investment of British capital throughout the Southern Pacific. 6. But there is also an apprehension of the danger to their interests by the possession by any great Power other than England, of the great natural harbours which might be made naval stations in case of the interruption of the peace of Europe, a danger which arises out of that connection with England which they are so desirous to maintain. 7. My Advisers feel that none of the Australasian Colonies are more concerned in these matters than New Zealand, whose nearer position to the Fiji, Samoan, and Friendly groups render them more valuable to her trade, and more dangerous to her should they fall into the hands of a foreign and possibly an unfriendly Power. 8. In view of the disinclination hitherto manifested by Her Majesty's Government to undertake responsibility with regard to them, they have sought permission to enter into arrangements with the native chiefs which may tend to secure their good will and prevent the alienation of their land. This has been proposed rather as an expedient than as an equivalent for the far more effectual influence at the disposal of the Imperial Government. 9. The imminent risk of a collision between a portion of the European settlers in Fiji and the de facto Government, which is only averted by the anomalous interference of Her Majesty's ships, renders it probable to my Advisers that Her Majesty's Government will not be able much longer to abstain from a more decided step, amounting to government in some form, and they are very anxious that the opportunity should not be absolutely lost, of taking advantage of the desire for European protection which has for some years been expressed by the chiefs of the Samoan group. Mr. Williams, Her Majesty's Consul at Apia, has lately visited Auckland on his way to Sydney on account of a very serious bodily affliction, and he has reported that the

No. 4, page 4. No. 3, page 14.

A.—3

16

Part I. ■p . , r the Governor, •

chiefs, disappointed by the non-acceptance of their overtures to ourselves, have contracted some sort of engagement with an American Commissioner, involving exclusive concessions, and understood to contemplate the establishment of a naval station by the United States in the magnificent harbour of Pango-Pango. Considering, however, that the Government of the United States, while securing the advantages of influence over certain of the Pacific Island groups, have hitherto abstained from assuming sovereignty or responsibilities, and that the Senate has shown itself averse to the acquisition of distant territories, my Advisers think that should the Government delay to propose, or Congress hesitate to agree to, such an undertaking as is stated to be in contemplation, it may be possible to transfer once more the overtures of the chiefs to ourselves. •They have therefore moved me to solicit from Her Majesty's Government immediate permission to send a Commissioner there, and to avail themselves of such opportunity as may present itself either to preserve for New Zealand as a British possession equal rights and advantages with the United States, or to gain a more considerable footing in the event of the Government of the United States not following up their present advantage. 10. It would be desirable at the same time to establish friendly relations with the chiefs of the Friendly or Tonga group; but as it is understood that the Native Government is better organized and averse to foreign control, no question of sovereignty with regard to them now presents itself. It would, however, be intended, by maintaining friendly relations with them, to secure, if possible, their possession, should internal dissensions or decay render them available to foreign acquisition. 11. My Advisers, in their present Memorandum, claim for the Government of New Zealand a special aptitude for dealing with a native population ; and it must be remembered that the inhabitants of the Samoan group are of the same type, and indeed are believed to be the very stock of the Maori population of New Zealand. lam aware that this assertion of my Advisers is one that may be controverted, but I believe that it must be admitted that, whatever mistakes have been committed, the intention of the Government of New Zealand towards the Natives, from its first establishment, has been more just and equitable than that of any European settlers who have secured dominion over a coloured race, if that of the English, and perhaps the French, in India be set aside. 12. My Advisers do not attempt at this moment to define the details of a plan which must depend upon so many previous contingencies; but they notice as possible alternatives, government or rather control by officers upon a footing, as I understand it, similar to that of the Residents at Nativp Courts in India, or as Provinces as an extension of the New Zealand General Government. I may be permitted to say that, looking at the geographical circumstances, that of the Mysore Commissioner would appear to me a more suitable type than the former, and that great difficulties would arise from the reception into a parliamentary union of Provinces, themselves having responsible government, of one or more in which, from the nature of the case, representative institutions appear to be utterly impossible. If those imply equal representation irrespective of race, the white settlers would decline them, as they do in Fiji; if they do not, they would be a sham and an injustice. Moreover, in this respect New Zealand offers no true analogy, inasmuch as, owing to her temperate climate, the white race soon outnumbered the coloured; whereas in the Pacific, white labour being impossible, the great preponderance of the coloured races must be kept up by importation, should it fail from natural causes. 13. That some good government through colonial agency is possible I do not doubt, and that it would be greatly preferred to the present anarchy and its attendant evils and contingent dangers by all the British Colonies of the South, whether prepared themselves to undertake it or not, your Lordship is already informed; but at the present day, and with the heavy cost of their own development, any one of them could undertake it at great disadvantage and, as it seems to me, with infinitely inferior prospects of benefit to the subject race, than would accrue were the Imperial Government to do so with a due recognition of the magnitude of the task and with corresponding grasp. 14. At the same time, my Advisers are prepared to propose to the General Assembly the measures necessary to give effect to the decision of Her Majesty's Government, should it be to empower this Colony to undertake the government, in any form or degree that might be selected, of such of the islands as might be now or from time to time submitted to us by their chiefs or populations. It may be expected that such arrangements, whether with Her Majesty's Government or with one of her possessions, would become more numerous according to the success and advantage to the native communities which might attend the first experiments. 15. Since writing the foregoing, my attention has been called to the statements in Sydney newspapers, that, at the instance of his Advisers, Sir Hercules Robinson has informed your Lordship, by telegraph, of the desire of the Colony of New South Wales that Her Majesty's Government should interfere to prevent the consequences of the present anarchy in Fiji. My Advisers desire that I should express as their view that the state of affairs in Fiji imperatively requires the control of Her Majesty's Government, and that in the event of their preferring to empower a Colonial Government to undertake that control rather than do so themselves, New Zealand is that Colony which lias the most natural affinity to Fiji and the adjacent groups, both in regard to its comparative proximity and to the greater facilities of intercourse afforded by the prevailing winds. I have, &c, James Fergusson, The Right Hon. the Earl of Kimberley. • Governor.

A.—3

No. 5. (No. 15.) Government House, Wellington, My Lord, — New Zealand, 11th March, 1874. I have the honor to inform you that a Joint Stock Company is in course of formation in New Zealand, for the purpose of engaging largely in trade with the islanders of the Pacific Ocean, which my Advisers propose to assist by a guarantee, by the Government of New Zealand, of interest at the rate of 5 per cent, upon its share capital, retaining certain power of control over its operations. 2. This scheme was at first devised by a private individual, who contemplated an attempt to form a company in England and Germany. He communicated it to the Premier, the Hon. Mr. Vogel, C.M.G., who deemed it to be one which New Zealand should not only encourage, but adopt and control, in consideration of the advantages which would accrue to her through a reciprocal trade with the islands, and possibly by becoming, at a future time, the centre of their government. 3. Your Lordship is already aware that Mr. Vogel is very anxious that any opportunity of promoting these objects should not be lost, and I have some reason to believe that in such a course' he would be supported by the opinion of the Colony. 4. In several conversations on the subject, I have pointed out to him that any project with respect to the Pacific which the Government of the Colony might adopt, must be kept free from political elements to have the sanction of Her Majesty's Government. Your Lordship's recent Despatches with respect to arrangements with the chiefs of the Navigator Islands, show that no project involving interference with the Government of those or other islands would be in accordance with their views. 5. Mr. Vogel has now placed in my hands a paper, in which the views are set forth, of which I enclose a copy, together with a Memorandum therein referred to, which he had previously addressed confidentially to myself, a supplement to the former, in which is stated the result of conferences between himself and Mr. Whitaker, a barrister of old standing in the Colony, as the representative of the promoters of the Company, and the heads of agreement contemplated to be entered into between the Government and the promoters, and intended to be laid before the General Assembly along with the Bill by which the Company will be incorporated and the Government empowered to support it. 6. Your Lordship will perceive that important and extensive as is the scheme embodied in these papers, it does not include any political features, or involve any direct or indirect Imperial responsibilities. Any footing which the Company might gain in the islands would be as private individuals resident in foreign countries, and deriving their position and privileges solely from the existing rulers whoever they might be. 7. At the same time, Mr. Vogel does not disguise his hopes that the establishment and operations of such a Company would tend to the strengthening of British influence in the numerous communities of the Pacific Ocean, to the acquisition by New Zealand of a leading position, as representing the mother country, and ultimately to her becoming the head of a new " Dominion." 8. The scheme as indicated by Mr. Vogel's Memorandum almost directly contemplated political engagements, and certainly the establishment of the Company upon exclusive terms for the benefit of New Zealand. It remained to be seen how far these views would be embodied in a Bill, but in the form which it has now assumed, and especially in the proposed head of agreement, which will, I assume, constitute the real substance of the measure, the Bill merely enabling the Government to enter into such an agreement, such features are eliminated, and I do not perceive any provisions which would necessarily require the reservation of the measure for the signification of Her Majesty's pleasure thereon. 9. I had pointed out to Mr. Vogel that there were features in the scheme, as at first devised, which might possibly render such reservation necessary, and I have no doubt that the Government and the Company will be very desirous of avoiding any proposals which would involve consequent delay and uncertainty, which might very injuriously affect the success of their project. They have rivals, not only in other rising commercial communities, but in foreign Governments, who are not insensible to the value of the field for commercial enterprise on the one hand, and of the strategic positions on the other, which is presented by the scattered, but collectively populous, islands of the Pacific. 10. In my Despatch No. 82, of the 22nd October, 1873, covering a Ministerial Memorandum with reference to the Navigator Islands, I endeavoured to present to your Lordship's consideration the aspiration and sentiments entertained in New Zealand on this subject, and the anxiety felt lest the opportunities which have been, and may be still, open to the extension of British influence over the groups nearest to this Colony, should be lost, and lest, through the disinclination of Her Majesty's Government to extend its responsibilities, and so not only that the probable commercial advantages accruing from political influence might be forfeited, but that foreign powers might establish naval stations in positions which in the future might be disquieting if not hazardous to the colonial communities, whose future is estimated at a high rate by themselves. 11. It is now considered certain that the Government of the United States have accepted the tender of the protectorate of the Navigator (Samoan) group, and especially the concession of 3—A. 3.

Pact I.

Despatches from the Governor.

No. 5, page 5.

17

A.—3

18

Part I. Despatches from the G-overnor.

the excellent harbour of Pango-Pango as a naval station, which the chiefs had previously offered to Her Majesty's Government, an event which can hardly be regarded otherwise than as a misfortune by this community. 12. In the scheme with which I am desirous of fully acquainting your Lordship, there is undoubtedly concerned the same motives which have constantly actuated the people and Government of this Colony, and which perhaps are characteristic of the nation to which they belong. It is not surprising that the spirit which has so widely extended the British Colonies, which has led our fellow countrymen to settle upon many shores, and now, as in North America, to bind distant settlements together in a -strong and united dominion, should be displayed by those who have planted so deeply in this hemisphere the roots of British power. 13. In the great British Colonies of North America, commercial undertakings have not bsen free from political features ; and in the material assistance which the mother country has afforded, by means of the Imperial guarantee, to the intercolonial railways, their political and strategic importance have been expressly recognized in Parliament. If, in the scheme now in question, similar considerations are contingent, it may not be improper to remark that any Imperial liabilities which may be anticipated are only such as are involved by the extension of British commerce, which ever entails possible claims upon the protection of the Imperial forces ; but that to discourage such extension upon that account, would imply disapproval of those national tendencies which have contributed so largely to the national power. 14. I would beg leave to remark, also, that for the development of these Colonies spontaneous growth cannot be relied upon. Such colonies, at least in their early stages, as leave their supply of labour, their public works, their commercial undertakings, to follow naturally the demand, are stagnant or slow in their rise; while those which stimulate their own progress by energetic if well-devised measures, advance by rapid strides. In one sense, much of the present prosperity of New Zealand is artificial. It has been found, for example, that active agencies and liberal inducements are required to divert the stream of emigration from seeking the nearer shores of America ; the means of internal communications are only constructed by the direct agency of Government, or by its guarantee of profit to contractors. Shipping companies must often be promoted and submarine telegraphic companies subsidized. The assistance or encouragement of a trading and shipping company in the Pacific by the Colonial Government, is only thus a fresh extension of a system under which the progress of the Colony is already rapid. 15. In the hope that in the measure in which the present scheme will be embodied, notwithstanding the avowed aspirations with which it is supported, there may be no provisions which will render it my duty to reserve it, I nevertheless desire to make your Lordship fully acquainted with its history and scope, having regard to its possible bearing upon the policy of Her Majesty's Government with reference to other kindred and pending questions, at such an early period that I may receive any directions which you may desire to give before the Bill has arrived at the stage at which my decision will be required. I do not anticipate the commencement of the Parliamentary Session before the beginning of July. I have, &c, James Fekgusson, The Right Hon. the Earl of Kimberley. Governor.

No. 6. (No. 27.) Government House, Auckland, My Lord,— New Zealand, 13th April, 1874. I have the honor to transmit copies of a Memorandum which has been addressed to me by the Premier on the part of the Ministry, with a request that I would transmit it to your Lordship. 2. I have so fully explained to your Lordship's predecessor my sense of the earnest desire of the people of this Colony to see British government extended in the South Pacific, where European settlement has spread, that it is unnecessary for me to do more than assure your Lordship that in my belief my Advisers are justified in reckoning on the support of the Assembly in the proposition which they make. 3. I do not understand Ministers to recommend or advocate the constitutional union of Fiji with New Zealand. The dissimilar circumstances of the two communities, the one possessing a large and growing predominance of the Europeans, and the other of the colonial race, seem to me to render the idea of a collective Parliament out of the question. It is, then, to the personal government of the Governor of New Zealand, assisted by his Responsible Advisers, perhaps, as Councillors, that the charge of the local government of Fiji, whatever it might be, would be committed. I think that I can offer no remarks upon this proposal that would be of service to Her Majesty's Government. They are well aware that the British people of New Zealand possess a large experience of a similar race to those which inhabit the Fiji and neighbouring groups, and that whatever failures may have occurred in the early stages of the Colony, the management of Native affairs is now prudent and successful. 4. In the event of Her Majesty's Government undertaking the sovereignty of or protectorate of Fiji, and preferring to place the Lieutenant-Governor, Agent, or Resident, under the govern-

No. 6, page 10.

19

A.—3

ment-in-chief of the Governor of New Zealand, I see no considerable difficulty in the way. If he should be made personally responsible for the details of government, it would certainly be necessary for him to pay to the islands at first a visit of some duration, and to visit them subsequently at occasional periods. To this there is not now likely to be any obstacle in the condition of New Zealand, and steam communication is regular and rapid. I have, &c, James Fergusson, The Right Hon. the Earl of Carnarvon. Governor.

Pact I. Despatches from the Grovernor.

No. 7. (No. 37.) Government House, Wellington, My Lord, — New Zealand, 24th June, 1874. I have the honor to transmit to your Lordship a copy of a Memorandum which has been addressed to me by the Premier on behalf of the Ministry, explanatory of their proposal made to Her Majesty's Government in my Despatch No. 65, of Ist August, 1873, that in the event of Her Majesty's Government not being prepared to undertake any direct responsibilities with respect to the Navigator Islands, the Government of New Zealand should be permitted to make such arrangements with the chiefs of those islands as would protect New Zealand interests; which proposal the Earl of Kimberley considered to be too undefined to enable Her Majesty's Government to form an opinion thereupon. 2. I have so fully described what I believed to be the sentiments of the Government and of the public of New Zealand upon this subject, and upon the large questions connected with it, that I do not think your Lordship will expect me to make any remarks upon the present communication. • . I have, &c, James Fergusson, The Right Hon. the Earl of Carnarvon. Governor.

No. 7, page 11. No. 3, page 14.

IV.—DESPATCHES FROM THE SECRETARY OF STATE FOR THE COLONIES. No. 1. (No. 10.) Sir, — Downing Street, 23rd February, 1872. Her Majesty's Government have had under their consideration your Despatch No. 112, of 24th November, transmitting a Memorandum by your Advisers, with a copy of a Resolution adopted by the Legislative Council of New Zealand, on the subject of the Navigator Islands. Her Majesty's Government are not insensible to the fact that the increase of commerce in the Pacific, and the constant advance of European settlement in those regions, must render the South Sea Islands of far greater interest than formerly. They are not, however, prepared to advise Her Majesty to take upon herself further direct responsibilities, such as would be entailed upon her by the assumption of sovereignty or of a protectorate over the Navigator Islands. I have, &c, Governor Sir G. F. Bowen, G.C.M.G. Kimberley.

No. 1, page 13.

No. 2. (No. 78.) Sir, — Downing Street, 18th December, 1872. I have to acknowledge your Despatch No. 56, of 26th June, forwarding a Ministerial Memorandum on questions relating to the Navigator Islands. I enclose, for your information, a copy of a correspondence which has passed on the subject between this office and the Foreign Office. I have, &c, Governor Sir G. F. Bowen, G.C.M.G. Kimberley. Enclosures. Mr. Holland to the Under Secretary, Foreign Office. Sir, — - Downing Street, 11th September, 1872. With reference to your letter of 22nd June, and to previous correspondence, I am directed by the Earl of Kimberley to transmit to you, to be laid before Eai'l Granville, the copy of a Despatch from the Governor of New Zealand, enclosing a Ministerial Memorandum from the Postmaster-General of the Colony respecting certain questions connected with the Navigator Islands. I have, &c, The Under Secretary of State, Foreign Office. H. T. Holland.

No. 2, page 14.

A.—3

20

Paetl.

Mr. Holland to the Under Secretary, Foreign Office. Sir, — Downing Street, 27th September, 1872. I am directed by the Earl of Kimberley to acknowledge the receipt of your letter of the 20th instant, enclosing a copy of a Despatch from Her Majesty's Minister at Washington, respecting the Navigator group of islands in the South Pacific Ocean. "With reference to the observations reported to have been made by Mr. Fish to Sir E. Thornton, upon the agreement made between the chief of the Island of Tutuila and Captain Meadc, relative to the port of Pago-Pago, Lord Kimberley does not understand how, if the United States are to "have an exclusive right to that harbour as a naval station and a coaling depot," this is not to " interfere with any other vessels which might frequent the port, nor with oommercial transactions." This statement seems to his Lordship to require some explanation. I have, &c, The Under Secretary of State, Foreign Office. H. T. Holland. The Right Hon. E. Hammond to the Under Secretary, Colonial Office. Sir,— Foreign Office, 20th September, 1872. I am directed by Earl Granville to transmit to you, to be laid before the Earl of Kimberley, the accompanying copy of a Despatch from Her Majesty's Minister at Washington in regard to the annexation of Samoa to the United States. I have, &c, The Under Secretary of State, Colonial Office. E. Hammond. Sir E. Thornton to Earl Granville. My Lord, — Washington, 18th July, 1872. On the receipt of your Lordship's Despatch No. 277, of the 22nd ultimo, I inquired of Mr. Hale, Acting Secretary of State, what was the decision of the United States Government with regard to a petition said to have been addressed to the President by the chiefs of Samoa, for the annexation of that island to the United States. Mr. Hale replied that he was under the impression that no such petition had been received, and referred to an answer given some time ago to an inquiry made by the House of Representatives, in which Mr. Fish stated that no such request had been received. I suggested that it might have arrived since that time, and Mr. Hale promised to inquire into the matter. On Mr. Fish's arrival here on the 15th instant, I made the same inquiry of him upon the subject, and after having looked into the papers, he this morning informed me that no document of the nature I described had reached the President. He, however, told me that Captain Meade, of the United States steamer " Narragansett," had come to an arrangement with the chief of the Island of Tutuila relative to the port of PagoPago. Captain Meade had made this agreement without any previous instructions or powers; but on its arrival here, the President had deemed it expedient to transmit it to the Senate for its sanction. This body had, however, closed its session without having taken any action on this convention or agreement. Mr. Fish said that he would have been glad to have shown me this document, but he had found upon inquiry that a copy of it had not been retained either at the State or Navy Department, and that the original, being now locked up in the Senate, was not accessible. As far as he remembered, however, its principal stipulation was that the United States should have an exclusive right to the harbour of Pago-Pago as a naval station and a coaling depot. This would not, however, interfere with any other vessels which might frequent the port, nor with commercial transactions. I alluded to a telegraphic report, published in to-day's newspapers, that Captain Meade had proclaimed the protectorate of the Island of Tutuila by the United States. Mr. Fish, in reply, said that the Government had received no information of such an act, and that, if it had taken place, it had been done without any instructions. I have the honor to enclose three printed copies of some documents relating to the Island of Tutuila, which were forwarded to the Navy Department by Captain Meade, and subsequently submitted to the House of Representatives. They include some commercial regulations for the harbour of Pago-Pago, signed by the chief of Tutuila, which Captain Meade forwards " with his approval/ and a somewhat grandiloquent address which he makes to the chiefs and people of that island. I have, &c., The Right Hon. the Earl Granville, K.G. Edward Thornton. The Right Hon. E. Hammond to the Under Secretary, Colonial Office. Sir, — Foreign Office, 9th December, 1872. With reference to your letter of the 27th of September last, I am directed by Earl Granville to transmit to you, to be laid before the Earl of Kimberley, a copy of a Despatch from Her Majesty's Minister at Washington, reporting a conversation with Mr. Fish respecting the establishment by the United States of a naval station at Pago-Pago. I have, &c, The Under Secretary of State, Colonial Office. E. Hammond.

Despatches from the Secretary of State.

21

A.—3

Sir E. Thornton to Earl Granville. My Lord, — Washington, 18th November, 1872. On the receipt of your Lordship's Despatch No. 378, of the 30th ultimo, I again referred, in conversation with Mr. Fish, to the agreement which had been made between the United States naval officer and the chiefs of the Navigator Islands, for giving to the United States an exclusive right to establish a naval station and coaling depot in the Island of PagoPago, and I inquired whether the exercise of this right would interfere with other vessels which might frequent the port, or with commercial transactions. Mr. Fish replied that he had not, since he last spoke to me upon the subject, had access to the document granting the right in question, which had been hurriedly sent to the Senate, at the close of its session, without a copy of it having been kept, and that he could not be able to see it again till the meeting of Congress. His impression from memory, however, was, that although an exclusive right was granted to the United States to establish a naval station and coaling depot at Pago-Pago, this right would only prevent other Governments from doing the same, but would not interfere with other vessels frequenting the port, nor with their trading there, nor with any commercial transactions, neither would it prevent private coaling depots from being established there. Mr. Fish added that since the above-mentioned agreement had been made, a communication had been received signed by all the chiefs of the group of islands, asking the United States to establish a protectorate over the whole of them. As yet the receipt of this communication had merely been acknowledged, and he believed that very little attention would be paid to it. I have, &c., The Earl Granville, K.G. Edward Thornton.

Paetl. Despatches from the Secretary of State.

No. 3. (No. 79.) Sir, — Downing Street, 18th November, 1873. I have been in communication with the Secretary of State for Foreign Affairs, on the subject of your Despatch No. 65, of the Ist of August, communicating the wish of your Ministers that the Imperial Government should at once taken steps to prevent the Navigator Islands from falling into foreign hands, or should allow the New Zealand Government to make such arrangements with the chiefs of the islands as will protect New Zealand interests. As the nature of the arrangements which the New Zealand Government desires to make ■with the chiefs of the Navigator Islands is not stated, Her Majesty's Government are unable to form an opinion upon this application. They would not, however, be disposed to sanction any steps which would lay this Government under obligations to interfere in the affairs of these islands. I have, &c., Governor the Right Hon. Sir James Fergusson, Bart. Kimberley.

No. 3, page 14.

No. 4. Copy of a Despatch from the Right Hon. the Earl of Kimberley to Governor the Right Hon. Sir J. Fergusson, Bart. (No. 12.) Sir, — Downing Street, 10th February, 1874. I have to acknowledge the receipt of your Despatch No. 82, of the 22nd October, enclosing a Memorandum from your Ministers, suggesting whether, if Polynesia is not to be abandoned to foreign nations, it would not be well to entrust to New Zealand the task of aiding in extending British sway to the unappropriated islands of the Pacific, and stating that they have come to the conclusion that the Parliament of New Zealand would cordially entertain proposals which had for their object to give to the Colony the opportunity of assisting Great Britain in this great national work. 2. Her Majesty's Government had considered your Despatch and the Memorandum with the attention due to yourself and your Ministers, and had prepared an answer to it, but in present circumstances they think it better to postpone sending it. 3. With reference, however, to the passage in the Memorandum, "it is stated on apparently competent authority that the Imperial Government at length entertain the idea of annexing the Fiji group," I have to observe that Her Majesty's Government have given no authority to any one to intimate, on their behalf, any intention to annex those islands. 4. Upon the question of the protection of New Zealand interests in the Navigator Islands, I have to refer you to my Despatch of the 18th of November, No. 79. I have, &c, Governor the Right Hon. Sir James Fergusson, Bart. Kimberley. 4—A. 3.

No. 4, page 15.