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Imperial Federation (Defence) Committee, This Committee adopts the following Resolutions passed by the Con- ference which founded the Imperial Federation League in 1884 : — That in order to secure the permanent unity of the Empire some form of Federation is essential. That no scheme of Federation should interfere with the existing rights of Local Parliaments as regards local affairs. That any scheme of Imperial Federation should combine on an equitable basis the resources of the Empire for the main- tenance of common interests, and adequately provide for an organised defence of common rights. It also adopts the expansion of the principles of those Resolutions by the vSpecial Committee of 1892, as expressed in the summary taken from the Report adopted by the Council of the Imperial Federation League in the same year. In particular, the Committee recognises as the lesson to be drawn from the experience of the nine years' working of tlie late League — 1. That an adequate system of Maritime Defence is the primary necessity common to all parts of the Empire. 2. That such a system of defence does not exist under present conditions. 3. That if the self-governing Colonies take their share in the cost of such a system of defence, they must have a proportionate share in its administration and control; and il those Colonies are not willing to take their share in a common system of defence, it is evident that P'ederation is not practicable, whatever arrangements may be proposed or adopted as regards interchange of commerce, means of intercommuni- cation, monetary standards, etc. 4. That, given a common system of Maritime Defence, provided and controlled by a body in which all parts of the Empire are represented, the Federation of the Empire is attained, so far as essentials are concerned. 5. That combination for the defence of common intertsts "here- fore— as was recognised in 1884— the one essential pu.nt, and the test of the practicability of Imperial Federation. 6. That proposals involving participation by them in the cost of general maritime security, which has hitherto been enjoyed without expense, cannot be expected to come, in the first instance, from Colonial Governments. It will therefore be the first aim of the Committee to call the attention of the people of the United Kingdom to the anomalous and precarious state of affairr. now existing, and to induce Her Majesty's Government to make to those Colonial Governments, in an official manner, such state- ments as to the present means by which defence is provided, and such proposals regarding the future, as will elicit from them an expression as to their willingness to take part in such a combination. In order to narrow the issue as much as possible, and thereby to concentrate effort upon this one essential point, it is specifically declared that the objects of the Committee do not include any proposal involving an alt'iation of the fiscal policy either of the United Kingdom or of any of the Colonies. c i n 4" No. 1. \ The Colonies and Maritime Defence. In view of the fact that Parhament has just (April, 1894) unanimously voted a sum of ^17,000,000 as the annual provision for the service of the Navy, and whereas the whole of this large sum will be paid by the tax-payers of the United Kingdom only, the Imperial Fkderation (Defence) Committee invite atten- tion to some facts not generally recognised, which have an important bearing upon this and future votes for the maintenance of the Navy. The Commerce of the Empire. The annual value of the commerce of the Empire carried upon the high seas was, in 1891, 970 millions Sterling. 696 millions of this belong to the United Kingdom, and 143 millions belong to the self-governing Colonies. Of this last sum 95 millions represent trade done by these Colonies with countries other than the United Kingdom. From these figures it will be seen that about one-sevesth of the commerce to be protected is that of the self-governing Colonies in Australasia, North America, and South Africa ; and that two-thirds of this trade is carried on with other countries, the United Kingdom not being concerned with it in any way. "What the United Kingdom Pays for its Protection. The Navy which protects this commerce is, nevertheless, paid for almost entirely by the people of the United Kingdom. The ordinary annual expenditure by thr United Kingdom 4" upon the Navy may be put at 15 millions; in addition to this no less than 33 millions of extra expenditure hi;s been pro- vided by the United Kingdom for increasing the strength of the Navy since 1882. What the Colonies Pay. The self-governing Colonies during the year 1891 spent upon sea going forces the following sums : — North American Colonies .. 5,000,000 people .. Nothing. Australasian Colonies .. 4,250,000 ,, . £86,000. South African Colonies . . 2,000,000 ,, . Nothing. The small sum spent liy the seven Australasian Colonies is for ships of their own, for coast and harbour defence. These Colonies have also undertaken to pay a sum not exceeding £126,000 per annum towards the maintenance of a certain number of ships of the British Navy on the Australian Station. These ships are not available for the general protection of commerce, as is the Navy provided by the United Kingdom. But allowing these sums to stand on the same footing as the United Kingdom expenditure, it appears that 38 million people in the United Kingdom spend on the general protection of the Empire and its commerce £18,000,000 a year, while 11 million people in these Colonies spend £200,000 Only. " With Half the Bevenue of Great Britain. Comparing the revenue of these countries, we find that the self-governing Colonies have a revenue of 43 millions sterling, almost half that of the United Kingdom, which is 91 millions : yet they contribute to the maintenance of the Navy which pro- tects them and their possessions but a ninetieth part of its cost. A " Twopence-three-farthings " Contribntion. Of every ^"i spent on the Naval Defence of the Empire these Colonies provide twopence-three-farthings. The contribution of the Colonies per head is fourpence- * Parlinmentary Paper, No. 372, 1803. f JiVK I f halfpenny, against nineand-sixpence per head contributed by the United Kingdom. It the area of these countries he compared with that of the United Kingdom, it will be seen that the extent of territory to be defended is fifty times greater in the case of the Colonies than in that of the United Kingdom. A Manifest Inequality. In short, the Navy, employed and relied upon for the protec- tion of the whole Emi)ire, is provided and maintained entirely at the cost of the people of the United Kingdom, though there are ii million people of the same race, inhabiting some of the richest countries of the world, under the same Sovereign, and enjoying the .same i)rivileges, who contribute practically nothing to that expenditure. Not the Fault of the Colonies. This inequitable state of affairs is not primarily the fault of the Colonies referred to. They have not been asked to con- tribute. Until they have been asked to do so in such a manner as to let them feel the full weight of their responsibility in replying, no reproach can justly be levelled at them in this respect. i I I They Need to be Asked. It is for the people of the United Kingdom to call upon their own Government to afford to their countrymen in the Colonies the opportunity of taking their just share in the cost and in the administration of the finest Defensive Force in the world. This is an offer which no Englishman need object to make. AAi^here the Besponsibillty Lies. If the Colonies, or any of them, after full consideration, de- cide to decline the offer, they will, in effect, be taking upon themselves, with their eyes open, the full responsibility for any [ 4 ] deficiency there may be in providing for the safety of their countries and their commerce. At the same time, having thus once put the case before the Colonies, the United Kingdom will be relieved of the moral responsibility which, until that has been done, still devolves upon it, of itself m.ndng complcic provision for their defence. Objections have been Baised and Answered. Attempts have been made in various quarters to show that by erectmg fortifications in their own countries, and providing Militia, the Colonies are contributing to the general defence of the Empire, and thus to fasten the burden of the cost of the Navy for ever on the United Kingdom. These and other arguments of a similar character are fully set out and replied to in the notes which follow. The Committee recommends the discussion of this question during the ensuing Session by the political organisations, parlia- ments, and debating societies of the United Kingdom, in order that it may be understood in all its bearings, as it is inevitable that some action should be taken in the matter before long. T f 5 1 "PROS AND CONS." The following are some of the arguments which are occasionally used in favour of the continuance of the present anomalous state of things, together with the answers which common sense, common knowledge, and the plain flicts suggest in reply :— I. ^' The Colonies havhiir fortijied certain ports in their own countries and established a Militia, have made a proper contribution to the defence of the Empire, and should not be called upon to do more" This is not a question of local defence, but of the general defence, of the P:mpire and its commerce on the high seas. The United Kingdom has also fortified its ports, and has not only a Militia, but a standing Army. Where the Colonies spend thousands upon these objects, the United Kingdom spends millions. Moreover, in many of the Colonial harbours which claim to be fortified— as Esquinjalt, King George's Sound, Thursday Island, Cape Town, etc.— the United Kingdom has had to provide the guns for these fortifications, probably the most expensive part of the work. 2. It is often said, " Canada has built the Canadian Pacific Railway— 'an Imperial highway'— an important contribution to Imperial Defence. Is not this enough ? " The Canadian Pacific Railway* belongs to the Company * Canadian Pacific Railway. — '' The Company was incorporated in February, i88i, for the purpose of constructing aline of rail.vay to connect the sea-board of British Columbia on the Pacific Ocean with the railway system of Canada, and of operating tlie same for ever. "The Dominion Government gave a subsidy of twenty-five million dollars in cash, twenty-five million acres of land and sections of railways, some built, others to be built, to the extent of 713 miles. To compensate the Company for the extra expense incurred in anticipating by as much as five years the contract time for the completion of the road, further material assistance was subsequently given by the Government, the most important thing being the purchase back of a large portion of the land grant at one and a half dollars per acre ; and in 1888, as compensation for the surrender of the monopoly clause in its charter, which protected the Company for twenty years from competition in the North- West, the (iovemmeut guaranteed the interest on fifteen million dollars 3I per cent, land-grant bonds."— /'//<• Stock Excliarific Ycar-licck, page mb. ofth.it name, a. much as the London ami North Western does to Its shareholders. The C. l\ R. was built as a commercial undertaking to pay dividends to its shareholders, and its construction was subsidised, encouraged, and supported by the Canadian riovernment of the day in order to increase the i)rospcrity of the country, and to make a real union of the provinces of which the Dominion is composed. I he Imperial Government has no authority over it, and pays for Jts servants who use it occasionally, like anyone else. 'I'lie Suez Canal is used for British purposes a thousand tunes more than the Canadian Pacific Railway, yet we recognise no obligation to France who made it, beyond that of paying when we use it. i j t> 3- *' yy^i- Australian Colonies are gohi}^ throui^h a fieriod o, ae/^ression, and should not he asked Just noio.'' Have the Australian Colonies a monopoly of depression ? Is there not def)ression in Great Britain ? Hoth New Zealand and (,)ueensland Treasurers have recently declared a surplus of revenue over expenditure. Canada has done so for a long time. In the United Kingdom the Chancellor of ^he Exchequer has to meet a deficit ; yet we find the extra millions needed for the Navy, while t/iey cut down their expenditure upon .Yaval Forces by one-third, and enormously reduce their votes tor iMilitary Defence. 4. It has been claimed that Canada contributes seven million dollars per annum to the defence of the Empire, because certain canals and railways have been made in Canada, because Canada maintains a Militia, a permanent Militia, Mounted Police and Police Boats for the protection of inshore fisheries, and because Canada subsidises a line of Steamers lahich place her in communi- cation ivith Japan. If these be contributions to Imperial Defence, there must be added to Great Britain's expenditure for that purpose the cost of the Manchester Ship Canal and fifty others, some ^900,000,000 sterling spent upon railways in the United King- dom alone, the cost of Militia, Standing Army, Reserves and Volunteers, the cost of Irish Constabulary, City and Metropolitan Police, and subsidies to all the Steamship Lines which (arry her mails ;■ and still the British taxpayer pays T u T -•u I 7 I nineteen and ninepence in the pound <.„ the cost of the NavM Defence of the Kmpire, and Canada nothing. But, of course, the fact is that it is idle to put forward any of these matters as conlrihufions to Iniperial Defence. They are purely local matters which every loui try has to provide for Itself If it claims to be civilised. The general defence of the Kmpire is entirely outside such considerations. 5- Australians have said, " M^e do not need your Navx. We are so far aioay thai nobody ivill attack us. If, an deal with a stray cruiser, and that is the utmost danger we are likely to incur" Hut this is what Mr. Service, Ex-Premier of Victoria, said when the Minister of Defenct was dcsi)atched to this countr- at the end of 1893 ; " It would be well for Mr. Reid to take every opportunity of backing that party in the Mother Country who are striving tooth and nail, to put the Navy of (Ireat Britain on a proper footing It would be difficult to say what would be the position of Aus- tralia if war should break out ; but if the Navy of (;reat Britain was kept at its proper strengtii, relatively to the Navies of other countries, the Colonies would have nothing to fear." Mr. Patterson, speaking us Premier of the same Colony said on the same occasion, "The control of the ocean i« of miportance to every man who grows a bag of wheat in the Colonics. AVhat is the good of producing and exporting if the produce is not to be secured a safe transit across the water ? " 6. Others have said, " The Navy is maintained for the defence of En:^lish com me f . ■ ; defence of Colonial commerce is only incidental. If England 7vere without her Colonies, she could not reduce her Aavv by one ship." -^ Tills involves a fallacy. It might as well be said by Kent or by Cornwall that they need not contribute to the cost of the Navy because if they were submerged the Navy would still have to be kept at its present strength. The argument therefore proves too much. Every part of the Empire that enjoys the advan- tages of defence is under an equal obligation to contribute to its cost. i [ 8 ] 7. It has Ijcen objected that ''England maintains a squadron in every sea to protect her own commerce. It would be as reason- able to ask the United States or China to contribute to the expense of the Navy because a British squadron was maintained upon their coasts, as to ask the Colonies." Neither the coasts nor the commerce of America or China are defended liy the Britisli squadrons, but on every sea the British squadron there protects Colonial as well as British com- merce, and it protects their coasts and harbours also. 8. It has been suggested that " Perhaps it may offend the Colmnes to ask them to pay anything to the Navy. This is how we lost the American Colonies'' The circumstances are totally different. Then, a war had been fought on 'o -ir behalf, and it was sought to make thein pay for its cost, bout giving them a voice either in the raising cr in the expc.uiture of the taxes required for that purpose. Now, it is proposed to call the attention of the Colonies, before the war, to the necessity for providing a system of defence for their countries and their commerce, and to invite them to share in the cost, in the ownership, and in the administration of the finest Navy in the world. If such a proposal should cause them to secede from the Empire, it must be admitted that the connection which now exists is hardly worth having, and that the chance of their being with us in time of trouble is reduced to something very small. 9. Lastly, it has been said that, ''Rightly or ivrongly^ the Colonies think they are taxed enough already.'' Possibly. " Rightly or wrongly," this view is somewhat gener- ally held in other parts of the Empire, and not least in the United Kingdom, where the people have to bear the burden of so much Imperial expenditure in addition to their own internal expenses. X Copies of this pamphlet may be obtained for distribution at the rate of 5 J. //•;- hundred, by application to the Hon. Secretary, who will also be glad to supply further information upon this subject and to receive promises of support on behalf of the Committee. Address~T,o, Charles Street, Berkeley Square, London, II ', i m n- se ir a e 1- T SUMMARY OF THE CASE. The Royal Navy protects the Commerce of the entire Empire. The value of this commerce is ^970,000,000. The Commerce of the United Kingdom is ;^696,ooo,ooo The Commerce of the self-governing Colonies is ;^i43,ooo,ooo Thus it will be seen that Colonial commerce forms ONlv SEVENTH of the total trade of the Empire. For the Naval protection of the trade of the Empire there is paid an annual sum of Of the above total the United Kingdom l^d V 3a»> ••• ••• ••• •■• Self-governing Colonies in North America, Australasia, and South Africa, pay Thus it will be seen that the Colonies which possess ONK- SEVENTH of the trade contribute ONE-NINETIETH only of the cost of protecting the trade. ElGHTY-NINE NINETIETHS are contributed by the taxpayers of the United Kingdom. .^18,200,000 ;^ 1 8,000,000 ;^200,000 The following table shows the revenue and population of the United Kingdom and the self-governing Colonics respectively : — REVENUE. POPULATION. United Kingdom ;{;9 1,000,000 ... 38,000,000 Self-governing Colo- nies ... ;^43,ooo,ooo ... 11,000,000 It will thus be seen that though the Colonies contribute only ONE-NINETIETH part of the cost of the Naval Defence of the Empire, their population is more than A QUARTER of that of the United Kingdom, and that their revenue is NEARLY HALF that of the United Kingdom. opinions of Colonial Statesmen. " Britain's Fleet is the instrument of power and the symbol of her unity. British ships of war are the safeguard of Colonial liberty, and the natural chain which holds the scattered communities together. The Fleet, therefore, ought to be one. Division is weakness, and the old story of the bundle of sticks has here its proper application. Let there be one Navy, under the rule of a single Admiralty— a Navy in which the Colonies shall be as much interested as the Mother Country, which shall be theirs as well as hers, and on which they may all rely in time of danger."— The late Right Hon. W. B. DALLEY, Chief Secretary of New South Wales. " It would be difficult to say what would be the position of Australia if war should break out ; but if the Navy of Great Britain was kept at its proper strength, relatively to the Navies of other coun- tries, the Colonies would have nothing to fear."~ The Hon. JAMES SERVICE, Ex-Premier of Victoria. Melbourne Argus, December 19th, 1893. " The control of the ocean is of importance to every man who grows a bag of wheat in the Colonies. "What is the good of producing and ex- porting if the produce is not to be secured a safe transit across the water P "—The Hon. J. B. PATTERSON, Premier of Victoria. Melbourne Argus, December 19th, 1898. " I do not think the Colonies would be disin- clined to contribute towards the cost of the Imperial Navy on well-defined terms. .♦ . " I believe an able Government of the United Kingdom would, if it tried, succeed in bringing the whole of the outlying possessions to a satisfactory agreement with the Mother Country."— Sir JULIUS VOGEL, K.C.M.G., Ex-Premier of New Zealand. The Times, April 7ih, 1894.