Consultation on Matters of Foreign Policy and General Imperial Interest. Correspondence with the Governments of the self-governing Dominions. No. 1. The Secretary of State for the Colonies to the Governors-General of Canada, the Commonwealth of Australia, New Zealand, and the Union of South Africa, and the Governor of Newfoundland. [TELEGRAM.] (Sent 23rd June, 1924.) [Answered by Nos. 3 and 6, 5, 4, 13 and 8 respectively.] 23RD JUNE. Following from Prime Minister for your Prime Minister : Begins: You will probably have seen from Press reports of recent speeches of Secretary of State for the Colonies and myself in Parliament that we are concerned as to adequacy of present system of consultation with other self-governing parts of Empire on matters of foreign policy and general Imperial interest. We fully accept principle of necessity for effective arrangements for continuous consultation in all important matters of common Imperial concern, and for such necessary concerted action, founded on consultation, as the several Governments may determine (see Resolution IX of Imperial War Conference, 1917). We also realise that action to be taken as result of consultation whether at or between Imperial Conferences must be subject to constitutional requirements of each country. But we feel, as result of our experience since taking office, that system in practice has two main deficiencies. First, it renders immediate action extremely difficult, more especially between Conferences, on occasions when such action. is imperatively needed, particularly in sphere of foreign policy. Secondly, when matters under discussion are subjects of political controversy, economic or otherwise, conclusions reached at and between Imperial Conferences are liable to be reversed through changes of Government. Such a state of affairs inevitably leads to ineffectiveness; it also causes disappointment, and doubts are thrown on utility of whole Imperial Conference system. What the remedy is, it is difficult to say. On the first point, i.e., the importance of securing, on occasion, rapid decisions, particularly on matters of foreign policy, it occurs to us that further examination of the Resolution on Negotiation, etc., of Treaties passed at last year's Imperial Conference might be worth while in order to consider how far that Resolution needs to be supplemented and interpreted, and whether principles embodied in it can usefully be extended to other matters affecting foreign relations. On the second point, i.e., means of making Imperial Conference Resolutions, whether they relate to economic or other matters, more effective, what is wanted is, I think, as I indicated in a speech in Parliament-.on. 18th June, creation of some sort of workable machinery so that the public opinion of the whole of our Commonwealth of States should influence the policy for which the Commonwealth must be responsible." We had in view, desirability of avoiding party issues when proposing appointment of Economic Committee with a reference framed so. as to exclude questions of tariff policy. One method of bringing about result desired which was mentioned by Secretary of State in recent speech in Parliament is that perial Conferences in future should not be confined to representatives of parties in office for time being. When it. was contemplated some years ago that a special Constitutronal Conference should be held, it was proposed from more than one quarter that such a Conference should be representative of Oppositions as well as Governments. On the other hand we realise that this suggestion is open to the criticism that it would tend to hamper the frank exchange of views and unrestricted inter-communication of confidential information on such matters as foreign policy and defence which have become so outstanding features of recent Conferences. Another method might be to continue representation of Governments only but to arrange for each Government to obtain from its own Parliament beforehand a general approval, within sufficiently wide limits, of the attitude to be taken up by its representatives. Whilst avoiding the criticism of the first method, this might tend to diminish flexibility of Conference procedure. We should like your views on these suggestions, and if you should be able to make any others they would be welcome. We ourselves have quite an open mind, and are merely exploring situation. Our own feeling is that time has hardly come either to revive idea of Constitutional Conference or to call special meeting of Imperial Conference to consider problems outlined above. But we should like these problems given preliminary examination in near future and it has occurred to us that possible method might be to have a meeting of, say, two representatives of each country concerned who have had experience of constitutional working, to consider these problems and present a report as basis for further discussion. How would you view this idea, and, if it commends itself, what time would be most convenient for a meeting? Possibly October might be suitable as this would permit of some of Dominion delegates to next Assembly of League of Nations being amongst representatives if this were desired. Similar telegram sent to other Prime Ministers. -THOMAS, RAMSAY The Secretary of State for the Colonies to the Governor-General of the Irish Free State. Downing Street, 25th June, 1924. I have the honour to transmit to Your Excellency, for communication to the President of the Executive Council, a copy of a telegram* which has been sent to the other self-governing Dominions containing a message from the Prime Minister regarding the present system of consultation on matters of foreign policy and general Imperial interest. 2. The Prime Minister would be glad if the President of the Executive Council, after considering this telegram, would furnish him with his views on the suggestions put forward. I have, &c., J. H. THOMAS. No. 3. The Governor-General of Canada to the Secretary of State for the Colonies. [TELEGRAM.] (Received 26th June, 1924.) 25TH JUNE. Following for Prime Minister from my Prime Minister: Begins: Your telegram of 23rd June,* on the subject of the present system of consultation between His Majesty's Government and the other self-governing parts of the Empire on matters of foreign policy and general Imperial interest. My colleagues and myself are at present extremely occupied in winding up the present session of Parliament and unable at the moment to give to the despatch the careful consideration its importance merits. As soon as prorogation takes place we shall endeavour to give the subject matter of the despatch our best consideration. Ends. -BYNG. Note.-Copies sent, by direction of the Prime Minister, to the Prime Ministers of the Commonwealth of Australia, New Zealand, and the Union of South Africa, the President of the Executive Council of the Irish Free State, and the Prime Minister of Newfoundland by Secretary of State's despatch, 1st July. No. 4. The Governor-General of New Zealand to the Secretary of State for the Colonies. [TELEGRAM.] (Received 28th June, 1924.) 28TH JUNE. Your telegram 23rd June.* Consultation on matters of foreign policy and general Imperial interest. Following for Prime Minister from my Prime Minister :— Begins: The difficulties you point out are fully appreciated and I quite agree that a remedy is not easy to find. The point of real importance is to ensure that nothing will be done in the direction of weakening the unity of the Empire. I fear it would not be possible for me or any other Minister to leave New Zealand for probably eighteen months but I see no objection to the appointment of a small Committee to carry out a preliminary examination of this difficult subject. If there is a general desire for such an examination it might be undertaken by men-not necessarily politicians-from different parts of the Empire who are well versed in constitutional law and procedure. Their report could be considered by the various Governments before the meeting of the next Imperial Conference. Ends. -Jellicoe. Note.-Copies sent to Canada, the Commonwealth of Australia, the Union of South Africa, the Irish Free State, and Newfoundland by despatch, 3rd July. No. 5. The Governor-General of the Commonwealth of Australia to the Secretary of State for the Colonies. [TELEGRAM.] (Received 16th July, 1924.) [Answered by No. 9.] 16TH JULY. Following for Prime Minister from my Prime Minister : * Begins: Your telegram of 23rd June. My Government has noted the statements by the Secretary of State for the Colonies and yourself in Parliament affirming the principle of full consultation with the self-governing parts of the Empire on matters * No. 1. of foreign policy and general Imperial interest. We note also that you accept the principle of necessity for an effective arrangement for continuous consultations in important matters of common Imperial concern and for such concerted action as the several Governments may determine. My Government has given a great deal of consideration to this most important question, and notes with pleasure your Government's acceptance of the basic principle. It is, of course, obvious that in practice there are two main difficulties in establishment of an effective system of joint consultation and action, namely (a) the impossibility of full exchange of views when the Imperial Conference is not sitting, particularly in the sphere of foreign policy where immediate action is imperative, and (b) the possibility of conclusions of Imperial or Economic Conferences being reversed through change of government. The problems which have to be considered appear to divide themselves into: (1) the manner in which an Imperial policy should be laid down in regard to matters of common Empire interest, such as foreign policy, defence, and inter-Empire trade. (2) How should consultations take place with regard to giving effect to such policy when determined upon and for its alteration where necessity arises? (3) What steps can be taken to ensure that any common policy arrived at will be given effect to irrespective of change of government in different parts of the Empire? With regard to (1) it is now an established principle of Empire Government that Prime Minister Conferences shall take place at frequent intervals. At these Conferences a common Empire policy on questions of Imperial interest can be arrived at and submitted by the respective Prime Ministers to their individual Parliaments for their ratification and assent. The machinery for ensuring a common policy therefore already exists. by holding of the Imperial Conferences, and no alteration of existing practice appears either necessary or desirable. (2) It is unavoidable that questions of urgent foreign policy must be dealt with according to the circumstances in which they arise, and they are therefore in an entirely different category from other matters upon which a common policy may have been determined at an Imperial Conference. It appears to my Government therefore that no alteration in the underlying principle of consultation which at present exists is practicable, but considerable improvement could be effected in the operation of such machinery. These improvements should be on lines of (a) a closer liaison between the Foreign Office and Dominion Governments, which could be effected by the establishment by the Dominions of a Foreign Office Branch in their High Commissioners' Offices under the control of an officer of such standing and character as to enjoy the confidence of the Foreign Office; such a representative would be in a position to keep his |