THE SUDAN

HL Deb 12 February 1953 vol 180 cc413-8

3.46 p.m.

THE MARQUESS OF READING

My Lords, I should like now to make a statement on our negotiations with the Egyptian Government concerning the Sudan, in continuation of the statement which I made on January 20 last. I am glad to be able to report that Her Majesty's Ambassador at Cairo has concluded an Agreement between Her Majesty's Government in the United Kingdom and the Egyptian Government concerning the introduction of self-government for the Sudanese, to be followed by self-determination.

I will not now go into the long history of our discussions with Egypt on this question, except to recall that in October, 1951, the then Government of Egypt announced that it had unilaterally abrogated the Condominium Agreement of 1899. That Government, and successive Egyptian Governments, insisted upon recognition by us of the Egyptian claim to the unity of Egypt and the Sudan, and also of the claim that the King of Egypt was also King of the Sudan. They insisted upon this as a pre-condition of any discussions regarding the future of the Sudan. We declined to accept this unilateral abrogation and consistently refused to agree to any change in the status of the Sudan without consultation with the Sudanese.

Last autumn, however, General Neguib's Government took the decisive step of recognising that the Sudanese should have self-determination and that sovereignty should be reserved for the Sudanese until that time. I should like the House to realise the significance of this step. It completely changed the situation. Whereas hitherto we had been unable to find any basis for negotiations, from that moment there was good reason to hope that we could reach agreement. The present Agreement expressly recognises the right of the Sudanese people to self-determination and the effective exercise thereof at the appropriate time and with the necessary safeguards. It also provides that, in order to enable them to exercise self-determination in a free and neutral atmosphere, there shall be a transitional period not exceeding three years which shall provide full self-government for the Sudanese and which shall begin after the Parliament has been elected. As a consequence of this, early elections will be held for the Sudanese Parliament. It is the intention that preparations for these shall be put in hand at once. All this, of course, is in full accord with the policy which successive Governments in this country have pursued in respect of the Sudan and with the statement which I made to this House on November 15, 1951. The Agreement further provides that during the transitional period the sovereignty of the Sudan shall be kept in reserve for the Sudanese until self-determination is achieved. These notable developments have been warmly welcomed by the Sudanese themselves.

Our recent discussions with the Egyptian Government, have dealt with the practical arrangements to give effect to these intentions. The Egyptian Government have accepted, subject to certain amendments, a draft Statute for the introduction of self-government in the Sudan. This Statute had been produced by the present Sudan Government as a result of the work of a Constitutional Commission, consisting of thirteen Sudanese under a British Chairman. It had been subsequently accepted by the Sudanese Legislative Assembly. It contained an article giving the Governor-General a special responsibility in respect of the Southern Provinces of the Sudan. This article has now been amended, by agreement, to confer upon the Governor-General a special responsibility to ensure fair and equitable treatment to all the inhabitants of the different Provinces of the Sudan. This wording, of course, includes the Southern Provinces. Moreover, the Constitution to which the Egyptian Government have agreed provides for about a quarter of the seats in each of the Houses of the new Parliament to go to Southern representatives and for not less than two Southern Ministers in the new Cabinet.

The Governor-General will be the supreme constitutional authority in the Sudan. In regard to external affairs, he will be directly responsible to the two Governments. In the exercise of his responsibility to ensure fair and equitable treatment for the public service he will have sole discretion, and in the exercise of certain other discretionary powers he will act with the prior approval of a Commission to be called the Governor-General's Commission. It will consist of a Pakistani member, who shall act as Chairman; two Sudanese, proposed by the British and Egyptian Governments in agreement, and subsequently approved by the Sudanese Parliament which shall be entitled to nominate alternative candidates in case of disapproval; also one British and one Egyptian member. The Governor-General's special responsibility to ensure equitable treatment for all the different Provinces of the Sudan will be exercised with the approval of his Commission.

It has also been agreed that an Electoral Commission shall supervise the preparation and conduct of the elections, which, as I have said, it is intended will be held very soon. This Commission will consist of seven members—namely, three Sudanese, appointed by the Governor-General with the approval of his Commission; one British, one Egyptian, one United States; and one Indian who shall be Chairman. As the House is aware, it has been the policy of successive British Governments that the public services in the Sudan should be gradually Sudanised. It has therefore been agreed to establish a Sudanisation Committee, consisting of one British and one Egyptian, nominated by their respective Governments and appointed by the Governor-General, together with three Sudanese members selected by the Governor-General from a list of five submitted to him by the Prime Minister of the Sudan.

The duty of this Committee will be to complete the Sudanisation of the Administration, the Police, the Sudan Defence Force and any other Government posts which might affect the free choice of the Sudanese at the time of self-determination. It will report to the Sudanese Cabinet. If the Governor-General does not agree with its decisions, or with the views of the Sudanese Cabinet, he may, with the approval of his Commission, withhold his assent; and in the event of disagreement between the Governor-General and the Commission, the matter is to be referred to the British and Egyptian Governments. The Sudanisation Committee is to complete its duties within a period not exceeding three years. At the same time, the detailed preparations for the process of self-determination, including safeguards for ensuring the impartiality of the election and any other arrangements designed to secure a free and neutral atmosphere, are to be subject to international supervision. This supervision will extend to the process of Sudanisation, and we and the Egyptian Government have agreed to accept the recommendations of an international body established for this purpose.

The transitional period of self-government is to be brought to an end when the Sudanese Parliament pass a resolution expressing their desire that arrangements for self-determination shall be put in motion. When the British and Egyptian Governments have been formally notified of this resolution, the Sudanese Government will draw up a draft Law for the election of a Constituent Assembly.

I cannot let this occasion pass with out expressing the admiration which Her Majesty's Government feel, and in which I am sure the House will agree with me, for the Sudan Civil Service. Over the past fifty years, the members of the Sudan Civil Service have built for themselves a reputation for devotion to duty which has few equals in the world. We think of them particularly at this time. Whether or not the transfer of power in the Sudan proceeds in an orderly and smooth manner depends, to a very large extent, on their courage and patience. I feel sure that we can count upon them to see this transfer completed in conformity with their traditions. Her Majesty's Government will certainly not forget what they have done and will keep their interests in mind.

I do not think the House will wish me at this stage to go into any further detail regarding the complex arrangements which have necessarily had to be worked out in our discussions with the Egyptian Government. The text of the actual Agreement is now available in the Printed Paper Office. I also propose to lay before the House as soon as possible a While Paper covering these discussions and containing the texts of the relevant documents. Meanwhile I have thought it right to put before the House the main provisions of the Agreement which has been reached. I must emphasise, however, that this is no ordinary instance of a dependent territory proceeding towards self-government. There are many complications arising from the peculiar status of the Sudan as a condominium. I hope the House will agree with Her Majesty's Government that both the practical arrangements, and the recognition of the right of the Sudanese to order their own future development, constitute a reasonable settlement of this question which has for so long be devilled our relations with Egypt and contributed so much uncertainty to the future of the Sudan itself. I hope indeed that the outcome of these negotiations may prove to be a happy augury for the future well-being of the Sudanese.

I hope, too, that it may have its beneficial influence on Anglo-Egyptian relations. For our part, we shall give full consideration to any views which the Sudanese Parliament, when it is elected, may express upon this Agreement. I repeat that it has been, and remains, the resolve of Her Majesty's Government that the Sudanese shall freely decide their own future. It is in that spirit that successive Governments have worked for many years and it is in that spirit that we shall operate this Agreement. I am sure that the good wishes of the whole House will go out to the people of the Sudan as they set forth on this further stage in the development of their national life.

3.59 p.m.

VISCOUNT STANSGATE

My Lords, my noble friends on this side of the House desire to associate themselves heartily with the words of praise which were uttered by the noble Marquess for the Sudan Administration and the great work which it has done. That refers not only to the British but to the Sudanese and Egyptian members of the Administration. Secondly, we should like to express our great joy that an Anglo-Egyptian quarrel of at least thirty years' standing has come to an end. We cannot debate the Agreement; it is made and it must stand. But the quarrel is at an end, and that is a great achievement. Thirdly, we should like to say that in this country the people of the Sudan have warm friends, and we wish them well in their next step towards the achievement of their ambitions.

EARL WINTERTON

My Lords, I should like to ask the noble Marquess whether he will have regard to the fact that there are Members of your Lordships' House, including some who are not present here to-day, men who have rendered eminent service in the Middle East, who may not take such a favourable view of this Agreement as do noble Lords on the two Front Benches. I think that that should be placed on record.

THE MARQUESS OF READING

My Lords, I am obliged to the noble Viscount on the Opposition Front Bench for what he has said about this Agreement. With regard to what has fallen from the noble Earl, Lord Winterton, I take note of what he has said.

VISCOUNT SIMON

My Lords, can the noble Marquess tell us how soon this White Paper will be available? The account which he has given us is elaborate, but we shall need to examine the White Paper in some detail. I hope that it will reveal to us the author of this appalling word, "Sudanisation."

THE MARQUESS OF READING

My Lords the White Paper which contains nothing but the actual terms of the Agreement is, I believe, now available. Another White Paper, giving more history and reproducing further documents, will be available, I hope, quite shortly. I cannot yet give the exact date, because the Paper will naturally take some little time to prepare. I should like to take this opportunity of disclaiming any personal responsibility for the word "Sudanisation."