(c) crown copyright

Catalogue Reference:CAB/129/100 Image Reference:0028

( T H I S D O C U M E N T IS T H E P R O P E R T Y O F H E R D R I T A N N I C M A J E S T Y ' S G O V E R N M E N T )

C . ( 6 0 ) 26 C O P Y NO.

16th F e b r u a r y , I960

IMPORTANT INFO 97-100

CABINET

C O N S T I T U T I O N A L A D V A N C E IN S O U T H E R N R H O D E S I A

M e m o r a n d u m by t h e S e c r e t a r y of S t a t e f o r C o m m o n w e a l t h R e l a t i o n s

In N o v e m b e r , 1 9 5 9 , S i r E d g a r W h i t e h e a d , P r i m e M i n i s t e r o f
S o u t h e r n R h o d e s i a , c a m e to L o n d o n a t h i s o w n r e q u e s t t o put f o r w a r d
p r o p o s a l s f o r t h e r e m o v a l of t h e r e s t r i c t i o n s i n t h e 1923 C o n s t i t u t i o n
o f S o u t h e r n R h o d e s i a w h i c h a m o u n t e d to c o m p l e t e i n d e p e n d e n c e i n t h e
T e r r i t o r i a l s p h e r e . (A n o t e o n t h e e l e m e n t s o f s u b o r d i n a t i o n i n t h e
S o u t h e r n R h o d e s i a n C o n s t i t u t i o n and the m e a s u r e s w h i c h
S i r E d g a r W h i t e h e a d p r o p o s e d f o r t h e i r r e m o v a l i s a t A n n e x A to
this paper.) I t o l d S i r E d g a r W h i t e h e a d that I c o u l d not c o m m i t
1
H e r M a j e s t y s G o v e r n m e n t to g r a n t i n g a n y c o n s t i t u t i o n a l a d v a n c e ,
o r e v e n p r o m i s i n g i t , t o S o u t h e r n R h o d e s i a i n a d v a n c e of t h e I 9 6 0
R e v i e w of t h e C o n s t i t u t i o n of t h e F e d e r a t i o n , but t h a t i f h e w o u l d
put f o r w a r d d e t a i l e d p r o p o s a l s , t h e s e w o u l d be c o n s i d e r e d . When
h e l e f t L o n d o n he e x p e c t e d to f o r w a r d h i s d e t a i l e d p r o p o s a l s i n
February, I960.

2. T h i s q u e s t i o n h a s b e e n b r o u g h t t o a h e a d by t h e s t r o n g
r e a c t i o n s of t h e P r i m e M i n i s t e r o f t h e F e d e r a t i o n , S i r R o y W e l e n s k y ,
a n d S i r E d g a r W h i t e h e a d to o u r p l a n s f o r r e l e a s i n g D r . E a n d a a n d
p r o c e e d i n g to d i s c u s s i o n s of c o n s t i t u t i o n a l a d v a n c e i n N y a s a l a n d .
Sir R o y W e l e n k s y h a s hinted to m e that the m a i n o p p o s i t i o n c o m e s
f r o m S i r E d g a r W h i t e h e a d , a n d that a g r e e m e n t m i g h t b e p o s s i b l e
o v e r o u r p l a n s for N y a s a l a n d i f w e c o u l d a t t h e s a m e t i m e g i v e
Southern R h o d e s i a substantial s a t i s f a c t i o n on h e r c l a i m s for
"independence" in the T e r r i t o r i a l s p h e r e .

3. T h e r e is a c e r t a i n flavour of b l a c k m a i l about t h i s . But

w e s h a l l c e r t a i n l y b e f a c e d v e r y s o o n w i t h t h e p r o b l e m of r e m o v i n g
t h e r e s t r a i n t s o n S o u t h e r n R h o d e s i a . If b y d e a l i n g w i t h i t n o w
instead of later we can avert a m a j o r c r i s i s developing in our
r e l a t i o n s w i t h the F e d e r a l and S o u t h e r n R h o d e s i a n G o v e r n m e n t s
a s a r e s u l t of o u r p o l i c y i n N y a s a l a n d , t h e p r i c e i s n o t a n e x c e s s i v e
o n e to p a y .

4. T h e r e a r e p o s i t i v e r e a s o n s f o r a g r e e i n g n o w to t a c k l e t h e
p r o b l e m of the Southern R h o d e s i a n C o n s t i t u t i o n : ­

(a) Our d e c i s i o n t h a t a m e a s u r e of c o n s t i t u t i o n a l a d v a n c e
should be c o n c e d e d to N y a s a l a n d b e f o r e the I960 F e d e r a l constitutional
r e v i e w , e v e n i f it d o e s n o t t a k e e f f e c t u n t i l a f t e r t h e r e v i e w , m a k e s
it d i f f i c u l t to m a i n t a i n t h e a t t i t u d e t h a t w e a d o p t e d t o w a r d s
S i r E d g a r W h i t e h e a d ' s r e q u e s t i n 1 9 5 9 . It m u s t be b o r n e i n m i n d

-1­
that t h e S o u t h e r n R h o d e s i a n C o n s t i t u t i o n g o e s b a c k to 1 9 2 3 .
In a n y c a s e , i t c a n b e a r g u e d that,, at the t i m e of t h e F e d e r a l
c o n s t i t u t i o n a l r e v i e w , e a c h T e r r i t o r y s h o u l d b e a b l e to
s e e the c o n s t i t u t i o n a l s h a p e o f t h e o t h e r t w o T e r r i t o r i e s
w i t h w h i c h it i s a s k e d to c o n t i n u e i n F e d e r a t i o n .

(b) F e e l i n g i s bad a m o n g s t the E u r o p e a n s i n t h e F e d e r a t i o n

a s a r e s u l t of t h e c o n c a t e n a t i o n of v a r i o u s r e c e n t e v e n t s . O u r
H i g h C o m m i s s i o n e r i n S a l i s b u r y r e p o r t s a s f o l l o w s :­

"It i s d i f f i c u l t t o a s s e s s o p i n i o n i n t h e F e d e r a t i o n s i n c e
the P r i m e M i n i s t e r ' s v i s i t a s p r o c e s s of d i g e s t i o n s t i l l c o n t i n u e s .
But t h e r e i s n o d o u b t that u n c e r t a i n t y and u n e a s i n e s s a m o n g
E u r o p e a n s h a v e b e e n brought up t o a h e a d during p a s t w e e k o r two.
P r i m e M i n i s t e r s a i d n o t h i n g n e w t o f r i g h t e n t h e m , but f a c t
that t h i n g s h e s a i d w e r e s a i d by h i m a n d i n F e d e r a t i o n m a d e
t h e m p u l l t h e i r h e a d s out of t h e s a n d . T h e y do n o t m u c h l i k e
what they s e e ; A f r i c a n s a s left a s Orton Chirwa paying t r i b u t e s
to s o m e of P r i m e M i n i s t e r ' s s t a t e m e n t s , p r o b a b l e r e l e a s e of
1
B a n d a , i m m i n e n c e of M o n c k t o n C o m m i s s i o n , W h i t e h e a d s t a l k
of s e c e s s i o n , Kenya talks and c o u r s e of e v e n t s in B e l g i a n Congo
a n d A l g i e r s . A l l t h e s e d e v e l o p m e n t s c o m i n g at o n c e h a v e m a d e
t h e m a n i n t h e s t r e e t a n x i o u s a b o u t h i s f u t u r e and t h e r e i s a
lot of d e f e a t i s t talk b a s e d on fear that p o l i t i c a l wind i n B r i t a i n
a n d e l s e w h e r e i s b l o w i n g i n f a v o u r of A f r i c a n N a t i o n a l i s m .
P r i m e M i n i s t e r ' s r e f e r e n c e i n h i s C a p e T o w n s p e e c h to n e e d
"to c o m e t o t e r m s " w i t h A f r i c a n N a t i o n a l i s m h a s b e e n s e i z e d
on in this context. "

In a s u b s e q u e n t l e t t e r to m e he c o m m e n t s : ­

"If s o m e t h i n g c a n be a g r e e d o n t h e l i n e s o f W e l e n s k y ' s
p r o p o s e d c o m p r o m i s e , t h i s w i l l g i v e a big b o o s t to E u r o p e a n
m o r a l e a n d h e l p u s to c a r r y t h e m o v e r t h e N y a s a l a n d h u r d l e . "

Of c o u r s e , t h e s u b s t a n c e o f t h e s e f e a r s d e r i v e s f r o m a s i t u a t i o n
of f a c t w h i c h i s o u t s i d e a n y b o d y ' s c o n t r o l . But a n a d v a n c e i n t h e
S o u t h e r n R h o d e s i a n C o n s t i t u t i o n w h i c h a p p e a r s to g i v e t h e
( s o f a r e n t i r e l y E u r o p e a n ) G o v e r n m e n t f r e e d o m to m a n a g e t h e i r
o w n a f f a i r s m i g h t b e w e l c o m e d a s a g e s t u r e of o u r c o n t i n u e d
c o n f i d e n c e i n t h e w h i t e p o p u l a t i o n and c o u l d h a v e a s t e a d y i n g
effect.

5. T h e e l e m e n t s of s u b o r d i n a t i o n i n t h e S o u t h e r n R h o d e s i a n
C o n s t i t u t i o n w e r e d e s i g n e d to p r e v e n t d i s c r i m i n a t i o n a g a i n s t the
i n d i g e n o u s A f r i c a n s and to s a f e g u a r d t h e i r l a n d ( s e e A n n e x ' A '
for d e t a i l s ) .

6. T h e i n f l u e n c e w h i c h the U n i t e d K i n g d o m G o v e r n m e n t
and P a r l i a m e n t can e x e r t a s a r e s u l t of t h e s e p r o v i s i o n s i s
i n p r a c t i c e l i m i t e d . T h e y g i v e u s no p o s i t i v e p o w e r to i n s i s t
o n i m p r o v e m e n t s i n the l o t o f t h e A f r i c a n . T h e y h a v e i n f a c t
o n l y b e e n e x e r t e d i n t h e b a c k g r o u n d to e n c o u r a g e t h e S o u t h e r n
R h o d e s i a n G o v e r n m e n t to g r e a t e r l i b e r a l i t y . T h e i r e x i s t e n c e

-2-

S EC RET
h a s no doubt in s o m e i n s t a n c e s d i s c o u r a g e d the S o u t h e r n R h o d e s i a n
G o v e r n m e n t f r o m putting f o r w a r d l e g i s l a t i o n of a r e t r o g r a d e kind.
But i n t h e l a s t r e s o r t , i f w e d i s a g r e e d w i t h a m e a s u r e w h i c h w a s
a d o p t e d by t h e S o u t h e r n R h o d e s i a n P a r l i a m e n t a n d to w h i c h the
S o u t h e r n R h o d e s i a n G o v e r n m e n t a t t a c h e d i m p o r t a n c e , the u s e b y
t h e U n i t e d K i n g d o m G o v e r n m e n t of t h e i r p o w e r s u n d e r t h e
Constitution to d i s a l l o w it would p r o v o k e a m a j o r c r i s i s i n r e l a t i o n s ,
and in fact this h a s n e v e r happened.

7. F r o m a p r a c t i c a l point of v i e w , t h e r e f o r e , it would
probably m a k e little d i f f e r e n c e if t h e s e r e s t r a i n t s w e r e r e p l a c e d
b y s o m e k i n d of " b u i l t - i n " s a f e g u a r d s i n t h e C o n s t i t u t i o n .
Sir E d g a r Whitehead h a s in m i n d the i d e a of a s e c o n d Chamber
with delaying powers ( s e e Annex A). This would need careful
e x a m i n a t i o n and working out, and, in p a r t i c u l a r , the c o m p o s i t i o n
and m e t h o d of e l e c t i o n of a s e c o n d C h a m b e r would be i m p o r t a n t
considerations. But o n t h e f a c e o f i t t h i s c o u l d be a n a c c e p t a b l e
a l t e r n a t i v e to t h e p r e s e n t s y s t e m o f U n i t e d K i n g d o m c o n t r o l . I
w o u l d , h o w e v e r , p r o p o s e t h a t a m e n d m e n t s t o t h o s e p a r t s o f the
C o n s t i t u t i o n w h i c h e m b o d y the new s a f e g u a r d s should continue
to r e q u i r e U n i t e d K i n g d o m a p p r o v a l .

0. N e v e r t h e l e s s , t h e r e w i l l u n d o u b t e d l y b e c r i t i c i s m of
a n y d e c i s i o n to a b a n d o n o u r r e s t r a i n t s o v e r S o u t h e r n R h o d e s i a .
W h e n t h e F r i m e Minister m e t a n u m b e r o f r e p r e s e n t a t i v e s o f
A f r i c a n opinion in S a l i s b u r y in J a n u a r y the l a t t e r i m p r e s s e d
u p o n h i m t h e i r o p p o s i t i o n to a n y s u r r e n d e r o f t h e r e s e r v e d p o w e r s
t o t h e S o u t h e r n R h o d e s i a G o v e r n m e n t , a s at p r e s e n t c o n s t i t u t e d .
It w a s a p p a r e n t t h a t , w h a t e v e r t h e r e a l v a l u e o f t h e s a f e g u a r d s
i f it c a m e to a s h o w d o w n , t h e p o l i t i c a l l y c o n s c i o u s A f r i c a n s
have s o m e faith in their efficacy. Opinion in this country would
r e p r e s e n t that we w e r e bargaining our r e s p o n s i b i l i t i e s towards
A f r i c a n s in Southern R h o d e s i a a g a i n s t Sir E d g a r Whitehead's
a g r e e m e n t to c o n s t i t u t i o n a l a d v a n c e i n N y a s a l a n d . I t w o u l d be
1
Loth p o l i t i c a n d r i g h t t h a t i f w e a g r e e to S i r E d g a r W h i t e h e a d s
d e m a n d for c o n s t i t u t i o n a l a d v a n c e , w e should t r y to get f r o m h i m
at t h e s a m e t i m e s o m e p o s i t i v e m e a s u r e of r e f o r m i n f a v o u r of
the A f r i c a n .

9. A n o b v i o u s s t e p that w e could a s k for i s an i m p r o v e m e n t

i n the f r a n c h i s e t o i n c l u d e m o r e A f r i c a n s . ( T h e p r e s e n t A s s e m b l y
o f 30 i s a l l E u r o p e a n . D e t a i l s o f t h e f r a n c h i s e a r e i n A n n e x ' B ' ;
the f r a n c h i s e i s not e m b o d i e d in the Constitution. The
e l e c t o r a t e n u m b e r s about 6 4 , 0 0 0 , of w h o m under 2 , 0 0 0 a r e A f r i c a n s
t h o u g h p r o b a b l y u p to 1 7 , 0 0 0 a r e e l i g i b l e . ) A l t e r n a t i v e l y ,
w e c o u l d a s k h i m t o a g r e e to s o m e m e a s u r e o f l a n d r e d i s t r i b u t i o n
i n favour of the A f r i c a n s . (At the p r e s e n t t i m e about 43 p e r cent
of the l a n d - a n d g e n e r a l l y t h e p o o r e r l a n d at t h a t - h a s to
s u p p o r t the m a j o r p a r t o f t h e A f r i c a n p o p u l a t i o n of about t w o a n d
a half m i l l i o n s , w h i l e about 4 8 per cent i s s e t a s i d e for o c c u p a t i o n
by E u r o p e a n s , who n u m b e r about a q u a r t e r of a m i l l i o n . The
A f r i c a n p o p u l a t i o n i s a l r e a d y p r e s s i n g o n t h e a v a i l a b l e l a n d . ) It
w i l l not be a t a l l e a s y to p e r s u a d e S i r E d g a r W h i t e h e a d to t a k e
a c t i o n i n e i t h e r of t h e s e d i r e c t i o n s ; they a r e both m a t t e r s on w h i c h
the E u r o p e a n s feel v e r y strongly.

-3-

SECREf
 10. If t h e r e a r e t o b e c o n s t i t u t i o n a l d i s c u s s i o n s w i t h
Southern R h o d e s i a , the q u e s t i o n w i l l a r i s e w h e t h e r we should deal
s o l e l y with Sir Edgar Whitehead, whose United F e d e r a l Party holds
17 o u t of 3 0 s e a t s a n d p o l l e d 1 7 , 0 0 0 v o t e s a t t h e l a s t e l e c t i o n .
T h e D o m i n i o n P a r t y h o l d s 13 s e a t s and p o l l e d 1 L , 0 0 0 v o t e s . The
p a t t e r n of p r o c e d u r e , w h i c h h a s b e e n f o l l o w e d w h e n o t h e r d e p e n d e n t
t e r r i t o r i e s a r e a b o u t to a c h i e v e c o n s t i t u t i o n a l a d v a n c e , h a s b e e n
that all s h a d e s of political opinion and all significant c o m m u n i t i e s
h a v e b e e n , by m e a n s o f r o u n d - t a b l e c o n f e r e n c e a n d / o r a g e n e r a l
e l e c t i o n , e n a b l e d to e x p r e s s t h e i r v i e w s . T h e r e s u l t of a g e n e r a l
e l e c t i o n o n t h e e x i s t i n g f r a n c h i s e w o u l d not b e r e g a r d e d h e r e a s a n
e x p r e s s i o n of A f r i c a n v i e w s . T h i s points to a constitutional
c o n f e r e n c e with Southern Rhodesia. But, if w e i n s i s t on that, we
s h a l l be f a c e d w i t h t h e q u e s t i o n w h e t h e r t o s e t t l e w i t h t h e t w o
( E u r o p e a n ) P a r l i a m e n t a r y P a r t i e s a l o n e , o r to i n s i s t o n the
p a r t i c i p a t i o n o f A f r i c a n s , o r p e r s o n s w h o c a n c l a i m to r e p r e s e n t
their v i e w s , such as Mr. Garfield Todd's Central African Party.
A t p r e s e n t t h e A f r i c a n s i n S o u t h e r n R h o d e s i a a r e not p o l i t i c a l l y
organised. The Southern Rhodesia African National C o n g r e s s has
b e e n p r o s c r i b e d and i t s l e a d e r s a r e i n d e t e n t i o n o r e x i l e . To
i n s i s t o n A f r i c a n p a r t i c i p a t i o n w i l l l e a d a t o n c e to a d d i t i o n a l
difficulty with Sir Edgar Whitehead. T h e m i n i m u m that w e s h o u l d
a g r e e to i s a S o u t h e r n R h o d e s i a n d e l e g a t i o n w i t h r e p r e s e n t a t i v e s o f
the t h r e e m a i n political P a r t i e s , including the Central A f r i c a n
Party.

11. On a b a l a n c e o f a l l t h e c o n s i d e r a t i o n s , a n d b e a r i n g i n
m i n d the i m p o r t a n c e of breaking the p o l i t i c a l i m p a s s e i n N y a s a l a n d ,
m y v i e w i s t h a t w e s h o u l d b e p r e p a r e d to c o n c e d e to
S i r E d g a r W h i t e h e a d t h e s u b s t a n c e of t h e c o n s t i t u t i o n a l c h a n g e s f o r
w h i c h he a s k s . A s i s p r o p o s e d in the c a s e of N y a s a l a n d , t h e s e
c h a n g e s s h o u l d be a g r e e d i n a d v a n c e o f t h e F e d e r a l C o n s t i t u t i o n a l
R e v i e w but s h o u l d not b e i m p l e m e n t e d u n t i l a f t e r i t . P r o v i d e d that
he (and Sir R o y Welensky) a r e p r e p a r e d to w i t h d r a w t h e i r o p p o s i t i o n
to o u r p l a n s f o r N y a s a l a n d a n d D r . B a n d a , I w o u l d p r o p o s e t o s e e k
a g r e e m e n t with him on the following l i n e s : ­

(a) A n a n n o u n c e m e n t would be m a d e a s f o l l o w s : ­

(i) T h e United K i n g d o m G o v e r n m e n t a r e p r e p a r e d to
c o n s i d e r t h e r e m o v a l of t h e e x i s t i n g r e s t r a i n t s
v e s t e d in the United K i n g d o m G o v e r n m e n t o v e r
Southern Rhodesian l e g i s l a t i o n and administration,
p r o v i d e d t h a t a d e q u a t e a l t e r n a t i v e s a f e g u a r d s to
f u l f i l t h e p u r p o s e s of t h o s e r e s t r a i n t s c a n b e
d e v i s e d and entrenched in the Southern Rhodesian
Constitution.

(ii) A Constitutional C o n f e r e n c e w i l l be held / in

L o n d o n i n J u n e , 1 9 6 0 / to d e c i d e w h a t
constitutional c h a n g e s would be n e c e s s a r y for
these purposes. The Southern Rhodesian
d e l e g a t i o n to t h i s C o n f e r e n c e would be w i d e l y
r e p r e s e n t a t i v e of opinion in S o u t h e r n R h o d e s i a .

(iii) The a m e n d m e n t s in the Constitution so a g r e e d would

take effect after the c o n c l u s i o n of the F e d e r a l
Constitutional Review.
-4­
 (b) The timing of this announcement should be a s n e a r l y a s
p o s s i b l e s i m u l t a n e o u s w i t h . t h a t of t h e r e l e a s e of D r . D a n d a .

(c) I w o u l d i n d i c a t e t o S i r E d g a r W h i t e h e a d ( t h o u g h i t n e e d not
b e s a i d i n t h e p u b l i s h e d s t a t e m e n t ) t h a t w e s h o u l d p r o b a b l y h a v e to
i n s i s t that a n y c h a n g e s i n the r e l e v a n t p a r t s of the a m e n d e d
C o n s t i t u t i o n should continue to r e a u i r e U n i t e d K i n g d o m a p p r o v a l .

(d) In o r d e r t o m a k e the p r o p o s e d c h a n g e s p a l a t a b l e t o
P a r l i a m e n t a r y and public opinion, w e m u s t p r e s s
S i r E d g a r W h i t e h e a d t o a g r e e to s o m e e a r l y m e a s u r e o f a d v a n c e ­
m e n t for the A f r i c a n s , e . g . , an i m p r o v e m e n t in the Southern
R h o d e s i a n f r a n c h i s e o r s o m e r e - d i s t r i b u t i o n of l a n d . It w o u l d be
u n r e a s o n a b l e to e x p e c t h i m to m a k e a n y p r o m i s e s i n c o n n e c t i o n
w i t h t h e a n n o u n c e m e n t u n d e r ( a ) , but I s h o u l d w a r n h i m t h a t w e
should probably h a v e difficulty in getting the constitutional changes
w h i c h m a y be a g r e e d i n June t h r o u g h P a r l i a m e n t u n l e s s w e can
p o i n t to s o m e p o s i t i v e a c t i o n o f t h i s k i n d b y t h e S o u t h e r n
Rhodesian Government.

H.

Commonwealth Relations Office,

S. W . l .

16th F e b r u a r y , I960.
 A N N E X LA'

CONSTITUTION O F SOUTHERN RHODESIA

U n d e r the e x i s t i n g c o n s t i t u t i o n a l a r r a n g e m e n t s , S o u t h e r n R h o d e s i a
r a n k s a s a s e l f - g o v e r n i n g c o l o n y , but i s , n e v e r t h e l e s s , s u b j e c t t o
t h e P a r l i a m e n t a n d G o v e r n m e n t o f the- U n i t e d K i n g d o m i n a n u m b e r of
w a y s of w h i c h the f o l l o w i n g a r e t h e m o s t i m p o r t a n t : ­

(a) T h e G o v e r n o r i s a p p o i n t e d o n t h e a d v i c e of U n i t e d K i n g d o m
Ministers.

(b) G e n e r a l l y , t h e G o v e r n o r i s r e q u i r e d to a c t i n a c c o r d a n c e
w i t h t h e a d v i c e of h i s E x e c u t i v e C o u n c i l , but h e i s s u b j e c t to d i r e c t i o n s
i s s u e d by T h e .^ueen o n t h e a d v i c e of the S e c r e t a r y o f S t a t e a n d m a y ,
i f he d e e m s it n e c e s s a r y , a c t i n o p p o s i t i o n to t h e o p i n i o n o f t h e
E x e c u t i v e Council i n w h i c h c a s e he m u s t r e p o r t h i s r e a s o n s for so
d o i n g to t h e S e c r e t a r y of S t a t e .

(c) The L e g i s l a t i v e A s s e m b l y m a y not a m e n d o r r e p e a l c e r t a i n

k e y p r o v i s i o n s of t h e C o n s t i t u t i o n ( i . e . the p o w e r to m a k e l a w s , t h e
p r o v i s i o n s r e g a r d i n g r e s e r v a t i o n of l e g i s l a t i o n , c e r t a i n m a t t e r s
c o n n e c t e d w i t h N a t i v e A d m i n i s t r a t i o n , e s p e c i a l l y n a t i v e l a n d ) , but
m a y a m e n d t h e o t h e r p r o v i s i o n s o f the C o n s t i t u t i o n b y a t w o - t h i r d s
majority.

(d) T h e G o v e r n o r h a s d i s c r e t i o n to r e s e r v e o r to a s s e n t o r
w i t h h o l d a s s e n t t ) a n y B i l l , but i s r e q u i r e d to r e s e r v e c e r t a i n
c a t e g o r i e s of B i l l ( s e e b e l o w ) u n l e s s h e h a s r e c e i v e p r e v i o u s i n s t r u c t i o n
to a s s e n t o r u n l e s s t h e l a w c o n t a i n s a s u s p e n d i n g c l a u s e .

(e) W h e r e a B i l l i s r e s e r v e d , T h e :,*ueen i s a d v i s e d b y the

S e c r e t a r y of S t a t e .

(f) T h e C r o w n h a s a p o w e r of d i s a l l o w a n c e .

(g) W i t h o u t t h e p r i o r a p p r o v a l of the S e c r e t a r y o f S t a t e , no
subordinate legislation can be m a d e which d i s c r i m i n a t e s against
n a t i v e s i n a m a n n e r not a u t h o r i s e d by t h e p a r e n t A c t .

(h) T h e p r i n c i p a l c a t e g o r i e s o f B i l l s r e q u i r e d to be r e s e r v e d
by the G o v e r n o r a r e t h o s e w h i c h contain p r o v i s i o n s : ­

(i) d i s c r i m i n a t i n g a g a i n s t n a t i v e s ( e x c e p t in r e s p e c t of the
s u p p l y of a r m s , a m m u n i t i o n o r l i q u o r ) ;

(ii) r e p e a l i n g o r a m e n d i n g t h e L a n d A p p o r t i o n m e n t A c t ;

(iii) amending the Constitution;

(iv) e s t a b l i s h i n g a s e c o n d C h a m b e r ;

(v) c o n t r a r y to t r e a t y o b l i g a t i o n s .

-6­
 (i) In r e g a r d to N a t i v e A d m i n i s t r a t i o n , the p r i n c i p a l restrictions
on the G o v e r n m e n t of Southern R h o d e s i a a r e : ­

(i) the S e c r e t a r y of State n o m i n a t e s and appoints the C h a i r m a n

a n d D e p u t y C h a i r m a n of t h e B o a r d o f T r u s t e e s i n w h o m t h e
native r e s e r v e s are vested;

(ii) t h e H e a d of t h e N a t i v e A f f a i r s D e p a r t m e n t i s not r e m o v a b l e
w i t h o u t t h e a p p r o v a l of t h e S e c r e t a r y of S t a t e ;

(iii) t h e a p p r o v a l of t h e S e c r e t a r y o f S t a t e i s r e q u i r e d i n c o n n e c t i o n
w i t h s e v e r a l o f t h e B o a r d ' s a c t i v i t i e s : t h e e x c h a n g e of l a n d
b e t w e e n the N a t i v e R e s e r v e s and other a r e a s ; any o c c u p a t i o n
of N a t i v e R e s e r v e l a n d b y a n o n - n a t i v e ; and t h e r e g u l a t i o n s
g o v e r n i n g t h e u s e of t h e r e v e n u e s o f t h e N a t i v e R e s e r v e s .

(iv) the p r o v i s i o n s g o v e r n i n g the c o m p e n s a t i o n due to any d i s p o s s e s s e d

native a r e laid down in the Constitution.

(j) Under the Colonial L a w s Validity A c t , 1865, Southern R h o d e s i a n

l e g i s l a t i o n i s v o i d t o t h e e x t e n t t h a t i t i s r e p u g n a n t to a n y U n i t e d
K i n g d o m l a w a p p l i c a b l e to the Colony.

(k) P a r l i a m e n t h a s f u l l p o w e r t o l e g i s l a t e for t h e C o l o n y t h o u g h
by c o n v e n t i o n t h i s i s not done without l o c a l c o n s e n t .

2. I n a m e m o r a n d u m w h i c h he s e n t to t h e C o m m o n w e a l t h S e c r e t a r y ,
S i r E d g a r W h i t e h e a d put f o r w a r d t h e f o l l o w i n g p r o p o s a l s i n r e l a t i o n
to t h e s e p o w e r s .

(a) He p r o p o s e d t h a t a m e n d m e n t o f the C o n s t i t u t i o n s h o u l d
b e w i t h i n t h e p o w e r of a t w o - t h i r d s m a j o r i t y of t h e t o t a l n u m b e r of the
m e m b e r s o f b o t h the L e g i s l a t i v e A s s e m b l y and t h e L e g i s l a t i v e
C o u n c i l ( t h e s e c o n d C h a m b e r , t h e e s t a b l i s h m e n t of w h i c h i s p e r m i t t e d
u n d e r t h e e x i s t i n g C o n s t i t u t i o n , but h a s n e v e r b e e n c a r r i e d o u t . )

(b) T h e r e p e a l of t h o s e s e c t i o n s of t h e C o n s t i t u t i o n r e l a t i n g
to the r e s e r v a t i o n and d i s a l l o w a n c e of B i l l s .

( c ) T h e r e p e a l of t h o s e s e c t i o n s of t h e C o n s t i t u t i o n d e a l i n g
with native a d m i n i s t r a t i o n and the safeguarding of A f r i c a n land r i g h t s .

(d) T h e e x c l u s i o n of the c o l o n y f r o m t h e o p e r a t i o n of t h e
C o l o n i a l L a w s V a l i d i t y A c t a n d , e x c e p t i n r e l a t i o n to e x t e r n a l a f f a i r s
a n d t h e p o w e r to m a k e l a w s h a v i n g e x t r a t e r r i t o r i a l e f f e c t , p l a c e d
in the s a m e p o s i t i o n a s the D o m i n i o n s .

3. In the c o u r s e o f h i s d i s c u s s i o n s w i t h t h e C o m m o n w e a l t h S c r e t a r y
e

S i r E d g a r W h i t e h e a d s u g g e s t e d that a n a l t e r n a t i v e f o r m of s a f e g u a r d
m i g h t be a s e c o n d C h a m b e r e l e c t e d o n a d i f f e r e n t b a s i s f r o m the
e x i s t i n g A s s e m b l y w i t h p o w e r s to d e l a y l e g i s l a t i o n d u r i n g a p a r l i a m e n t ,
although r a c i a l r e p r e s e n t a t i o n a s such would be a departure from the
n o r m a l p r a c t i c e i n S o u t h e r n R h o d e s i a . He w a s p r e p a r e d to c o n t e m p l a t e
it i n r e l a t i o n to t h e s e c o n d u n t i l s u b s t a n t i a l A f r i c a n r e p r e s e n t a t i o n
in the l o w e r C h a m b e r , which he r e g a r d e d a s inevitable on the b a s i s
o f t h e p r e s e n t f r a n c h i s e , c a m e to p a s s . He w o u l d b e a g a i n s t t h e

-7­
i m p o s i t i o n of a s p e c i a l d u t y o n the s e c o n d C h a m b e r t o s a f e g u a r d
A f r i c a n i n t e r e s t s but h e w o u l d be p r e p a r e d to g i v e t h e m d u t y of
protecting all m i n o r i t i e s , including eventually even p e r h a p s European
He t h o u g h t h e c o u l d a s s u m e t h e s u p p o r t o f h i s e l e c t o r a t e f o r a n U p p e r
C h a m b e r c o n s i s t i n g at t h i s s t a g e o f p e r h a p s f i v e A f r i c a n s , o n e A s i a n ,
one C o l o u r e d and eight E u r o p e a n s so e l e c t e d a s to e n s u r e - t h e y w o u l d
c a r r y o u t t h e i r s p e c i a l c h a r g e of p r o t e c t i n g m i n o r i t y r i g h t s . Both
C h a m b e r s i n h i s v i e w s h o u l d b e e l e c t e d a n d d i s s o l v e d t o g e t h e r and
t h e p a r t i e s i n the L o w e r H o u s e m i g h t e a c h a p p o i n t m e m b e r s of t h e
s e c o n d C h a m b e r i n o r d e r to e n s u r e that the e i g h t E u r o p e a n s w o u l d
be unable to f o r m a s o l i d voting block. Sir Edgar emphasised
that h e h a d not r e a c h e d f i n a l i t y i n h i s t h i n k i n g o n t h i s q u e s t i o n a n d
that f u r t h e r s t u d y w a s n e c e s s a r y .

Another p o s s i b i l i t y which Sir Edgar w a s p r e p a r e d to c o n s i d e r

w a s t h a t t h e C o n s t i t u t i o n s h o u l d be c a p a b l e of a m e n d m e n t o n l y
following a r e f e r e n d u m of all t h o s e on the e l e c t o r a l r o l l .

February, I960

-o­
 1 1
ANNEX D

SOUTHERN RHODESIAN FRANCHISE

' ualifications

(1) Federal citizenship

(2) A g e 21 o r o v e r .

(3) Two y e a r s ' continuous r e s i d e n c e i n the F e d e r a t i o n and

t h r e e m o n t h s in the c o n s t i t u e n c y .

(4) A d e q u a t e k n o w l e d g e of E n g l i s h a n d a b i l i t y t o c o m p l e t e
and s i g n the r e g i s t r a t i o n f o r m .

(5) M e a n s and education: -

Ordinary Roll Special Roil

(a) Income £720 or ownership (d) Income £240

of i m m o v a b l e p r o p e r t y or
w o r t h £ 1 , 500.
or (e) Income £120, plus
(b) Income £480 or property two y e a r s ' s e c o n d a r y
worth £ 1 , 0 0 0 , plus c o m ­ education.
p l e t i o n o f c o u r s e of
p r i m a r y education,
or
(c) Income £300 or property
worth £ 5 0 0 plus four
years' secondary
education.

( M a r r i e d w o m e n a r e d e e m e d to h a v e the s a m e qualifications
as their husbands.)

V o t e r s o n the O r d i n a r y and S p e c i a l R o l l s vote t o g e t h e r o n o n e

c o m m o n r o l l i n e a c h c o n s t i t u e n c y , but it i s p r o v i d e d t h a t , v / h e n t h e
n u m b e r of S p e c i a l R o l l v o t e r s r e a c h e s o n e - f i f t i e t h of t h e - n u m b e r of
O r d i n a r y R o l l v o t e r s , the S p e c i a l R o l l s h a l l be c l o s e d a n d t h e p r o v i s i o n s
i n t h e E l e c t o r a l A c t by w h i c h i t i s e s t a b l i s h e d s h a l l a u t o m a t i c a l l y
b e r e p e a l e d . It i s t h e r e f o r e i m p o s s i b l e f o r f u r t h e r v o t e r s to be
r e g i s t e r e d w i t h the l o w e r q u a l i f i c a t i o n s o n c e the S p e c i a l R o l l has
r e a c h e d o n e - s i x t h of the total e l e c t o r a t e .

The a l t e r n a t i v e v o t e o p e r a t e s ; a v o t e r m a y , if he w i s h e s ,
i n d i c a t e the o r d e r of h i s p r e f e r e n c e for all the c a n d i d a t e s and if no
c a n d i d a t e s s e c u r e s a n a b s o l u t e m a j o r i t y at t h e f i r s t b a l l o t , v o t e s
c a s t f o r t h e l o w e s t c a n d i d a t e a r e t r a n s f e r r e d to t h e s e c o n d - p r e f e r e n c e
c a n d i d a t e , and s o o n u n t i l o n e c a n d i d a t e s e c u r e s a n a b s o l u t e m a j o r i t y .

February, I960