Administrative Union

Mr. Ward Describes Trusteeship

Council’S View Of Ng Set-Up

Russia Says ’No’ to Papua-New Guinea Administrative Union

IN the House of Representatives, Canberra, on September 21, the Minister for External Territories (Mr.

E. J. Ward) made a statement on discussions which had taken place in respect of New Guinea, at the session of the Trusteeship Council of the

United Nations, last July.

In accordance with her commit ments under the United Nations Charter, Australia had submitted a report on the Administration of New Guinea for the period between July 1, 1946, and June 30, 1947. And, although Australia was not obliged to do so, she had advised the Council, at the same time, of the proposed administrative union of Papua-New Guinea.

Australia was represented at the July session of the Council by Mr. W.

D. Forsyth of the Department of External Affairs, and by Mr. J. R.

Halligan, secretary of the Department

of External Territories.

In his statement to Parliament, Mr.

Ward said:— THERE were two phases of the dis cussions by the Trusteeship Council.

The first dealt with the question of administrative union and the second was devoted to a consideration, based on the annual report and supplementary in formation furnished by the special repre sentative (Mr. Halligan), of every aspect of life and conditions in the Territory.

At the conclusion of its deliberations on these two phases, the Trusteeship Council prepared for the General Assembly a re port on New Guinea embodying a brief review of conditions in the Territory, some observations thereon, and the Council’s conclusions and recommendations, includ ing its views on administrative union.

With regard to the latter, the Council, in its report, takes the position that the establishment of the union is a highly important problem of serious con sequences; and expresses the conviction that an administrative union must remain strictly administrative in its nature and scope, and that it must not lead to a union of a closer, permanent nature with still greater implications. The Council also considered that, insofar as the problem (as to whether or not the pro posed union is within the terms of the Trusteeship Agreement approved by the General Assembly) is partly juridical in nature, it might to that extent be resolved by recourse to the appropriate juridical body, the International Court of Justice.

The Trusteeship Agreement for New Guinea provides in Article 4 that the Aus tralian Government will have the same powers of legislation, administration and jurisdiction in and over the Territory as if it were an integral part of Australia.

Article 5 states that in the exercise of these powers under Article 4. the Aus tralian Government “will be at liberty to bring the Territory into a customs, fiscal or administrative union or federation with <pther dependent territories under its jurisdiction or control,” if. in the opinion of the Australian Government, it would

be in the interests of the Territory and not inconsistent with the basic objectives of the Trusteeship system.

At the United Nations General Assembly in 1946, when the Trusteeship Agreement was approved, the Australian Government, in common with other governments administering trust territories, gave an assurance that it did not consider the terms of Articles 4 and 5 empowered it to establish any form of political associa tion between the trust territory and adjacent territories which would involve annexation of the trust territory or would have the effect of extinguishing its status as a trust territory.

Prior to the general debate on admin istrative union, the Australian repre sentative had informed Council members of the reasons which prompted the de cision, and explained that the Government was convinced that the establishment of an administrative union between New Guinea and Papua would not suppress or prejudice the juridical status of the Trust Territory. It would be in the interests of the inhabitants and would facilitate materially the fulfilment of the objectives of the United Nations Charter.

A political union which would result in the annexation or extinction of the status

of New Guinea as a Trust Territory, would not be entered into. All that was in tended was a joint machinery set up in the interests of the inhabitants to facilitate the administration of the two territories.

IN the discussions which followed in the Council, France favoured the plan— the representative of that country stating that from a social, economic and administrative point of view, he believed it would be to the advantage of the in digenous population.

The Belgian representative said Aus tralia had indicated its desire to administer both territories in accordance with the provisions of the Charter and he saw no danger of the Trust Territory losing its entity because of an administrative union with Papua. He suggested, however, that the legislation might specifically mention the number of members New Guinea should have on the Legislative Council.

The United States spokesman was doubtful that the proposal did not go be yond mere administrative union and em phasised the need /or preserving fully, in practice, the means of the Trusteeship Council’s supervision including the sub mission of complete and separate factual information concerning New Guinea as distinct from Papua.

The United Kingdom representative pointed out that in other trust territories where common administration with neigh bouring colonies had been carried on for many years during the period of the Mandate System, the separate identity of the Mandate had never been in doubt. He concluded that there was no doubt of the intentions of Australia to maintain the identity of the Trust Territory of New Guinea and the proposed legislation was clear on the point.

The Chinese and Philippines represent atives expressed fears that the union sug gested annexation; while the Mexician delegate also feared that the practical working of the scheme would suppress the identity of the trust territory.

The Soviet view was that it would be impossible to envisage independence when all aspects of administration were fused and the plan would, in practice, inevit ably prevent New Guinea attaining self government or independence.

THE Australian representative replied to all points of criticism and objec tion concerning administrative union, his principal points being: • Articles 4 and 5 of the Trusteeship Agreement for New Guinea make the administering authority responsible for decisions as to the form of govern ment of the Territory and tjie powers mentioned in Article 5 are not limit ing. • The proposal is in accord with the Agreement and the declaration of non annexation made in 1946, and the terms of the proposed legislation make it quite clear that the identity of the trust territory will be preserved. • The Government of Australia was ready, however, to make its intentions even more clear by incorporating a new clause to that effect, and would consider certain other suggestions advanced by members of the Council. • The supervisory functions of the Council would be preserved in their entirety, separate factual and statistical information would be submitted and the Council, by means of visiting missions, would be able to satisfy it self as to the manner in which the administering authority was fulfilling its trusteeship obligations. • The proposed legislation was designed for the present stage of development.

The people were only now emerging from savagery and no concept of New Guinea or its people as an entity existed at this stage or could for some considerable time exist in the minds of the people. Such a concept must be the product of a period of tutelage, as must also any expression of the will of the indigenous inhabitants as a group. • Australia’s aim was the highest standard of administration and welfare both in the Territory of New Guinea and the Territory of Papua. The Council should not frown on benefits indirectly accruing to a colonial territory from the supervision of a neighbouring trust territory. • The General Assembly had approved the Trusteeship Agreement for New Guinea in the knowledge that admin istrative union with Papua was con templated and had also approved other agreements for territories which had long been administered in admin istrative union with neighbouring colonies.

The nature of the Council’s discussions on administrative union makes it clear that any doubts which members had were essentially legal ones; or arose from a feeling that the treatment of the native populations of the two territories as a unit will prevent the growth of con sciousness of New Guinea as an entity in the minds of the people of the Trust Territory: (Continued Next Page)

IN its general observations concerning conditions in New Guinea as revealed by the annual report and the question ing of the special representative, the Trusteeship Council recognised that the administering authority had been con fronted, not merely with difficulties in herent in a little-developed country, but also with great problems of reconstruction.

The Council, furthermore, declared that the “contributions and sufferings” of the indigenous population during the war, entitled New Guinea to the special atten tion of the administering authority.

In this and in its recommendations regarding social and political advance ment and increased medical and educa tional facilities for the native inhabitants, the Council was merely reaffirming the policy which the Government had been implementing in Papua and New Guinea since Administration was restored.

This was made clear to the Trusteeship Council by the Australian representatives at all stages of its deliberations on New Guinea.

It was pointed out that, as the first step towards improving the social and economic conditions of the natives, the Government had reduced the period of indenture to one year (with the intention of securing complete abolition of the system within five years); had lowered the working week from 55 hours to 44 hours; increased the minimum wage from 5/- to 15/- per month; and issued a re vised code covering working conditions generally, including provision of an adequate and balanced diet and free hous ing, maintenance, clothing and medical treatment for all indigenous employees.

The formation of native co-operatives was being fostered and the development of native enterprise, both agricultural and commercial, encouraged.

In reply to questions as to whether the interests of indigenous landowners were sufficiently protected by the laws govern ing the alienation of land, it was pointed out that, with the exception of a com paratively small area which had been alienated in the past, all land belonged to the natives who could dispose of it to only the Administration which, in turn, would authorise the sale only when the native interests would not be adversely affected.

The Council also inquired regarding participation, by the natives, in the political and administrative machinery of their country. It was explained that positive steps towards advancing the political development of the indigenous inhabitants were being taken through the expansion of such native institutions as village councils from which, it was planned District Councils with wider responsibil ities and scope would stem.

Furthermore, there would be native representatives in the Legislative Council and a system of native courts is to be introduced, commencing with the more advanced centres and expanding as the civil sense and political responsibility of the natives developed.

Public Health

IN the discussions on public health, it was emphasised that Australia has concentrated largely on the improve ment of the health of the natives and considerable progress has been made in improving the general standard of health

and eradicating many diseases. The plans were being made for a much augmented medical service.

In New Guinea, before the war, there were only 62 positions in the Health De partment. Under present plans, New Guinea will have nearly 200 European health officials, including at least 25 doctors, some of whom will be specialists.

About 100 officials have already been appointed, and the speed with which the remaining positions will be filled will be governed only by the availability of qualified personnel.

I might add that the European per sonnel employed in the Department of Public Health of Papua, before the war, comprised four doctors, eight medical assistants and a number of nurses. The present plans provide for approximately 100 European personnel including sixteen doctors. There are in addition in both Territories, large numbers of natives em ployed as medical orderlies and in hygiene services.

Education

IT was admitted that education in New Guinea was, prior to the war, almost exclusively in the hands of the Missions.

The Council was told that a programme

had now been evolved whereby the Missions will take their part in education, but the direction and control of education generally will be a function of the Adminaf^^andaYd^^rom^thT^llage B^^!) 5 ! to the msh School and technfcal school The Missions wihcarrv out

standards ZS

ment I Thenumber' of teachers available

Sfd ■the number“ Sat am will

determfne SeDMe t at a which education

can be brought Cthe pelple educatlon

Eventually the establishment of institutions of University standard will be necessary in the Territory itself; but until that stage is reached, natives showing capacity for higher education than that available locally will be sent to appropriate institutions outside the Territory. It is thus clear that in urging improved educational facilities for the natives of

New Guinea, the Trusteeship Council simply echoed the clearly expressed in tentions of the administering authority, The Council wac . informpri that thp Government had always considered the economic future and stability of the New Guinea P e °P les to be based on agriculture and that while the natives to date have in the main ’ P roduced only subsistence food cr °P s - the y were now bein S en " coura ged and assisted to develop cash crops which will be available for export.

The Council also enquired concerning the means by which the Territory obtained its revenue. It was explained that no direct taxation was imposed; but the Council, recognising the very con siderable expenditure that will be neces sary before the indigenous inhabitants can make adequate progress, recom mended the examination of the whole fiscal system for alleviating the burden

of indirect taxation where it presses un duly; the introduction of direct taxation based on individual capacity to pay, and an increasing participation by the in digenous inhabitants in the Territory’s abundant natural wealth THE Report of the Trusteeship Council was approved by a vote of 8 to 1 (Russia dissenting), with three abstentions.

Out of respect for the views of the Council regarding administrative union, the Australian Government is prepared to insert certain amendments which will afford further evidence, if that were necessary, of its intention to maintain the identity and status of New Guinea, and to defer presentation of the enabling legis lation until the General Assembly has considered the Trusteeship Council’s Re port.

So far as the remainder of the Council’s Report is concerned, the Government accepts it as an international expression of approval for a policy which it has con sistently advocated and maintained.