HL Deb 20 April 1883 vol 278 cc724-31
THE EARL OF CARNARVON

, in asking the Secretary of State for the Colonies, Whether the report that the Government of Queensland has annexed the whole or part of New Guinea is correct; and whether Her Majesty's Government is a consenting party to this annexation? said: I wish to make a few observations upon the Question I have put to the noble Earl, and I will also add this further Question—Whether the other Australian Colonies are also consenting parties in the transaction? The territory which I understand to have been annexed may be described as half a continent. The other half belongs to the Dutch Government, and I believe, therefore, that the portions claimed by the Queensland Government are these towards the south and southeast. But, in the first place, I wish to say that I do not make my observations in any adverse spirit towards the Government of Queensland, my object simply is to understand some of the conditions and circumstances of this transaction. I think I can partly understand the grounds on which the Queensland Government have acted. There has been of late years a much larger intercourse growing up, and a larger traffic passing through the Torres Straits, and, no doubt, a greater tendency to abuse with regard to many of the Natives employed in that trade; and I can conceive it possible that some salutary restrictions of greater weight than now exist, and such as can be enforced only by an organized Government, are necessary. But I apprehend that the real fear of the Queensland Government is that which is common to the other Australian Colonies—namely, the fear of some foreign annexation. I myself do not share this apprehension, at all events at this moment. When this question arose—as it did in 1876—Germany distinctly repudiated any intention of acting in such a manner. The United States also followed their traditional policy, and showed no inclination to depart from it, and it would be an unfriendly act in any Foreign Power to intervene and annex any portion of New Guinea when they knew that the matter was under the consideration of Her Majesty's Government. But, at the same time, I can also make large allowances for the feeling of Queensland on this subject, and I can enter into and understand it. I believe there are many questions connected with the Australian Colonies which it is hard for us to understand in this country; such, for instance, as the dislike to admit Chinese into Australia. The real question which arises, as I understand it, is the question of the policy, and, still more, of the principle upon which such an appropriation of territory as this is made. From the Queensland point of view, so far as Queensland is concerned, I believe there is no Colony which has made greater strides during the last few years; its development has been enormous; but, at the same time, the territory which they have now is also enormous, and the territory which they propose to annex constitutes an immense addition to the responsibilities of the Government. It is very hot, being so many degrees nearer the equator, and the coast has always been supposed to be unhealthy. As far as I know, it is still comparatively a terra incognita, and some years ago, except the Missionaries, there were no White people in the Island. There are many savage tribes there; their numbers have been variously estimated, sometimes as high as 3,000,000 or 4,000,000; at all events, they are very considerable, and the larger the number of Natives the greater difficulty and responsibility in the administration. I want to understand whether it is proposed that the Government of Queensland is to govern this great territory by itself, or whether in connection with other Australian Colonies, or with ourselves? The Colonial Secretary was once very much opposed to annexation. I remember that he said in a speech some years ago that he thought we possessed "Blacks enough." and he did not desire that we should annex any more. I should like to hear his opinion on this question. I wish to draw the attention of your Lordships to another important point, and, in so doing, it will be necessary for me to refer for a moment to the history of the matter. In 1876 the question of New Guinea first arose. The annexation of the Fiji Islands had at that time been pressed on us in the interests of the Australian Colonies. At that time I thought it my duty to propose to these Colonies that they thould bear a share of the expense incurred in establishing the new Government. They declined, however, any system of joint responsibility in the matter. I did not complain then, nor do I now, of that action; but as soon as the question of contribution arose—and I asked for it, not for the sake of the money, but for the sake of the principle—they declined to assist. The next question which arose was that of the annexation of New Guinea, and I naturally reverted to the previous transactions with regard to Fiji. I will read a sentence showing the manner in which I mentioned this principle. In writing to the Governor of New South Wales, in December, 1875, I said— I am satisfied that not only is there no disinclination, but that there is a hearty willing- ness on the part of the people and Parliament of this country to accept, whether in expense or responsibility, the burdens which the annexation would throw on them; but it is simply impossible either to admit, or, if I made the admission, to persuade the English people that the Australian Colonies have no special interest in the annexation of New Guinea. And I then went on to argue from the case of Fiji that they ought to share in the burdens of that annexation. Since then the question has been at rest until now. But I draw attention to this point in order to show that if this annexation be accepted, it ought to be on some such principle that if ever greater consolidation is to be given to the Empire, it can only be given by and through that principle. Since I stated that principle in 1876, I believe the feeling, Colonially, has grown considerably in that direction. In time of war there has been ample evidence of the loyalty and devotion of these great Colonies. The slightest threatening of war has been sufficient to produce an outburst of loyalty on their part; and, therefore, it would not be a wise policy to press them unduly. But this is an occasion when that question forces itself on us for consideration. Of late years the Australian Colonies have been taking a forward step in this direction by erecting fortifications and works, which are no doubt primarily of importance to themselves, but secondarily of Imperial significance. The peculiarity of this annexation is that it has been done by a lawful, regular, and responsible Government, which has now appealed for the act to be sanctioned by Her Majesty's Government. I think that the action was premature; but I prefer to suspend my judgment upon it till I hear more of the case; and, anyhow, I now address this Question in no jealous or unfriendly spirit. I regret, however, extremely to find that "elsewhere" language has been used imputing to the Queensland Government unworthy and piratical motives. Such language is totally unworthy of the person using it, of the place, and of the subject to which it was applied; and if these words had been spoken with any authority they would be highly mischievous. The best excuse is the complete ignorance of facts which must have existed. But I am sorry such language has not been disavowed, and that the official answer made to it was such as may encourage a belief that Her Majesty's Government may possibly in some respects share the opinion which these words convey.

THE EARL OF DERBY

My Lords, I think I shall best answer the Question of my noble Friend—which I quite understand to be put in no unfriendly spirit towards the Government, and which, under the circumstances, is a perfectly natural and right Question to have been put—by telling your Lordships what I know in connection with this undoubtedly singular transaction that has taken place with reference to New Guinea. I think your Lordships will see why at the present stage it is better to abstain from all argumentative discussion, which, in my opinion, would be premature; and I will simply lay before you a plain statement of the facts. My Lords, some weeks ago Mr. Archer, the Agent General of the Queensland Government, called on me, by desire of his Government, and explained to me the strong feeling which prevailed in the Colony in favour of the annexation of New Guinea, or at least of that portion of it which most nearly adjoins the Australian coast. As I understood him, the desire for annexation was not due simply to a wish for extension of territory, but mainly it was due to three causes. First, a fear lest Foreign Powers should obtain command of the opposite coast of Torres Straits, and thereby be in a position to control and even to threaten a navigation which was every year becoming more important. Next, there was a fear lest some Foreign Powers should take advantage of the large unoccupied, territory of Now Guinea to establish a penal settlement there. That is a point on which the people, not only of Queensland, but of all Australia, are very sensitive. They apprehend if that were done it would be a great annoyance to the Australian Colonies. Thirdly, it was put forward that New Guinea was already becoming, or, at any rate, was very soon likely to become, the resort of adventurers and bad characters of all kinds, who go over from Australia, and when there are practically beyond the reach of British law, and who, if resident there, might become a source of annoyance to the Colonies. Mr. Archer stated to me that if the Home Government would only consent to the proposed annexation, the local authorities were ready to undertake all expense and responsibility. They wanted only our sanction. They did not ask us to do the work, but simply asked permission from us to do it themselves. I answered in general terms that I could not reply to a proposal of that kind without full consideration and without consulting the Cabinet, and, above all, without knowing much more than he had been able to tell me of the details of the plan on which it was desired to act. I told him that, until I knew more upon the subject, no expression of opinion from me was possible. I wrote at once to the Governor of Queensland, asking him various questions which naturally arose out of this conversation; and in the meanwhile I carefully abstained, as I have done from that day to this, from saying anything either to encourage or discourage the scheme. Nothing more passed. There has not been time for a reply to the depatch I sent out, and I heard nothing further until, I think, Saturday last; when to my extreme surprise the Heater's telegram, with which we are all acquainted, appeared in the newspapers announcing the annexation. I telegraphed at once to the Governor of Queensland asking for an explanation. I received a reply on Monday, that— To prevent Foreign Powers taking possession of New Guinea, the Queensland Government, through the Magistrate of Thursday Island, have taken formal possession, in Her Majesty's name, pending the decision of the Home Government. A despatch has been sent off. Mr. Archer called on me again, and brought me a telgram addressed to him from the Governor of Queensland in almost identical terms with that which I received. That is all that has passed, so far. We are awaiting these fuller explanations which will, no doubt, be forthcoming, but which cannot be sent by telegram. Until we receive these explanations I think it better to abstain from any comment on what has taken place. I may perhaps add that I have frequently seen in the newspapers communications, in which the annexation of New Guinea has been spoken of as if it were an accomplished fact; but the ceremony gone through of taking possession in the Queen's name does not in the slightest degree bind Her Majesty's Government until a decision has been taken at home, There are many in- stances of British officers having hoisted the British flag over territory unclaimed, in regard to which no subsequent action has been taken. I think it will be clear, from what I have said, that the action of the local authorities in this matter has been taken on their own account altogether, and without any promptings, direct or indirect, from the Colonial Office at home. I was quite unprepared for the steps that have been taken, and my noble Friend was premature in his compliment or condolence—I do not know which it was—as to the Government having found itself compelled to adopt a policy of annexation. The Government are unpledged on the subject, and will remain so until they have more details before them which will enable them to come to a decision. With regard to the other Question of my noble Friend, whether the other Australian Colonies besides Queensland are consenting parties to what has been done, I have a telegram from the Governor of one other Colony ex23ressing general approval and support of the act of the Queensland authorities; and, if I am to express a personal opinion, I have no doubt that there is a strong feeling in Australia generally in favour of the annexation. With regard to what my noble Friend said as to New Guinea, it is undoubted that there are foreign claims on the western part of the Island; but I am bound to say, in reference to the reason assigned by the Queensland authorities for what they have done, we here have no knowledge of any intention on the part of a Foreign Government to establish itself in the portion of New Guinea at present unoccupied and unclaimed. With regard to the nature of the county, to which my noble Friend has referred, there is nobody, I believe, in England or Australia, who can give much information as regards the interior. Though it is, as he says, a terra incognita, I am told that the coasts are becoming pretty well known. I am informed by some of these who have visited them that the imputation of unhealthiness that has been passed on this Island is not justified when speaking of it as a whole, but that the unhealthiness is supposed to be confined to certain portions adjoining the coast. As to the population, what their number is no one can possibly judge; but I dare say my noble Friend's estimate of 3,000,000 or 4,000,000 is not at all exaggerated. I am not in a position to make any further statement just now. The Government of this country is absolutely unpledged in the matter. We shall take no action until we have full information, and until we are able to subject the whole question to careful and deliberate consideration.