Dominions and Colonies
Dominion Autonomy in Practice. By A. B. Keith, D.C.L., D. Litt. (Orford University Press. be.) The Colonial Service. By Sir Anton Bertram. (Cambridge University Press. 10s. 6d.) Tim University Presses of Oxford and Cambridge, by coincidence, we may suppose, rather than by design, have published two books which read in conjunction will provide the ordinary reader with all that he needs to know about the Constitutions and Administrations of the British Dominions and Colonies.
Dr. A. B. Keith describes his slim little book, which can easily be slipped into the pocket, as a " new edition " of
Dominion Home Rule in Practice which appeared in 1921 ;
but so much has happened since 1621 that the " new edition " is in effect a new book. The status of the Dominions was, of course, transformed by the memorable Declaration of 1926. They are now " autonomous communities within the British -Empire, equal in status, in no way subordinate one to another in any aspect of their domestic or external affairs, though united by a common allegiance to the Crown, and freely associated as members of the British Commonwealth of Nations." This definition was written by Lord Balfour under peculiar condition.4. The Prime Minister of the Union of South Africa was anxious to prove that sovereign independence was. attainable within the Empire, and the representative of the Irish Free State was not less concerned to prove that Mr. De Valera was quite wrong in arguing Plat Dominion status meant subordination to Great Britain.
The ideal of 1926 has not yet been fully worked out, but everyone who follows Dr. Keith in his admirable examination of the problems will be able to understand whatever sequels there may be. By far the most important matter of the near future will be the reconciliation of a theoretical equality of status with certain inevitable inequalities of function. Obviously, if all the Dominions functioned in exactly the same manner as Great Britain there would be no Imperial unity at all ; each Dominion could go its own way—in regard to neutrality in war, for instance—and the result would be that the British Commonwealth would no longer stand before the world for a coherent collaboration in thought
and action. Dr. Keith is of the school of General Smuts. He sees that-there must be no pedantic clinging to " sovereign independence." The Dominions will serve the peace and progress of the world best by remembering that they ought to look - -outwards rather than morbidly Inivards. They must help to save the world before they can hope to save their own souls. A recent legal Report on the shipping laws in relation to the new definition of Dominion status was, we think, a regrettable exercise in legalistic interpretations carried to a point where they would be likely to prevent the emergence of any workable political principle.
One certainty of the future is that the Imperial Conference will steadily krovr in. importance, and it Seems hardly less certain that, sooner or later, a Permanent Secretariat will have to be attached to it
The substance of Sir Anton Bertram's book was originally delivered in lectures to students at Cambridge going through the special courses for Civil Servants in the Colonies. The expansion of these Colonial schools at Oxford and Cambridge. has been very significant in recent years. Criticisms of the public schools and the older Universities are familiar enough, but it seems that whatever faults there may be have not prevented what is loosely called the " public school type " from being the best Colonial administrator in the world. Lord Lugard, a very enlightened and very successful Colonial Governor, is of this opinion.
Sir Anton surveys the whole field. He gives .us, first, general geographical review of the Colonial Empire, and then describes the functions of the Governor and the Colonial Secretary and the " machinery of government." He discusses the merits of direct and indirect rule, that is to say, rule which is indirect because it makes use of ancient tribal customs, and rule which is direct if only because there is an absence of such customs. In Kenya it is not possible at present to govern indirectly because no authority of tribal chiefs is available. It is a nice point whether the Administration itself can in some way act in a patriarchal spirit and take the place of the ancient chiefs in the imagination of the natives.
Sir Anton is convinced that indirect rule is preferable _ — _
wherever it is possible. In describing the functions of the. Colonial Secretary he quotes a passage by Sir Hugh Clifford which deserves to be treasured by every young man who goes: out to join a Colonial Administration. A District Officer in a British Colony does not correspond to any official known in this country. He is as nearly as may be the prefet of France with all the prefers wide range of discretion and intervention., Sir Anton goes on to analyze the organization of Justice and of the Legislatures and ends with, chapters . on the Protectorates and the Mandated Territories. He is. particularly interesting on the inevitable differences between Colonies where settlers gradually built up theii own. Constitutions and Colonies which were acquired by conquest • or cession and in which the Crown could establish and mould a Constitution at its will. Colonies in the first category were populated by British pioneers who were conceived as carrying with them the Common Law of England. In such Colonies.
the Crown could, of course, create a Constitution jf it wished, but only one which provided for a representative body having powers of taxation. The Bahamas, Bermuda and
Barbados still have Constitutions thus established by a kind of -compromise-between the settlers and the Crown. Jamaica abolished her Constitution as unworkable. We .commend these chapters to anyone who wishes to understand what " representative government-" - the. earlier -stakes of Colonial democracy was like. Great Britain has, of course, long since developed for herself " responsible government " which makes the Executive responsible to Parliament. The Amevican democracy,-having fixed its Constitution in writing, has remained in the earlier stage.
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