A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA BY NORMAN LEYS, M.B., D.P.H. (foKMKRLY 0¥ NYASALAMD and BRITISH EAST AFRICA) LONDON : LEAGUE OF NATIONS UNION, 15, GROSVENOR CRESCENT, S.W.i 1921 PRICE SEVENPENCE A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA '0 EAU OF INTERNATIONAL RELATIO^ srsity of Cr= /. ^:) LONDON : [^LEAGUE OF NATIONS UNION, L^^^-^ 15, GROSVENOR CRESCENT, S.W.i. 1921 j:)ioSi PREFACE Africans who were German subjects before the War are now to be governed under Mandates, " Mandate " being the name given to the directions given by the League of Nations to some State, called a " Mandatory," to which the League entrusts actual governing. This new plan of government by Mandate differs in kind, and, if the hopes of some are realised, will differ in results, from the ordinary way of governing Africans. In ordinary African dependencies the sole depository of authority is the Governor appointed by some Sovereign State in Europe. He is, in effect, absolute, as Governors and Governments of native origin, whether in Europe, Asia, or Africa, never are. The man on the spot, in an African dependency, has all the powers of a traditional Oriental despot. He may, by a simple act of sovereignty, assume the ownership of the whole of the land of the dependency or transfer a whole tribe bodily from one area to another. There is no European State with African possessions that has not done these very things. These arbitrary powers may, or may not, be used unwisely or unjustly. African Governments with arbitrary powers differ in policy and method almost as widely as European Govern- ments with no arbitrary powers. But while in a free country the authority of the Executive is limited by other authorities of native origin, the authority of government in an African dependency is unlimited except by its own voluntary acts which may at will be undone. Whether they are called colonies or protectorates, whether their titles are derived from conquest, cession, or treaty, the Governments of dependencies in tropical Africa are, in fact, autocracies. To government of that type government by Mandate offers the completest contrast. Authority no longer resides in any sole, unrivalled seat; it issues from a loose association ot all civilised States, the League of Nations; it passes for the time M4983S 4 k ^LAN tOR GOVERNMENT BY MANDATE IN AFRICA tcf'^rft^ ot these States, the Mandatories; it is destined thence to be transferred to, and is finally to rest in, the not yet existent organs of the governed themselves. There are thus three parties to every Mandate. Of these the third, as it has still to be created, can at present have no legal existence. A party in fact, it cannot be a party in law. In form, accordingly, a Mandate must appear as a contract between League and Mandatory. The place of the League in that contract is already fixed by law, by the terms of the Covenant in the Treaty of Versailles. The place of the Mandatory is also similarly fixed. But in fixing its place, fact and circumstance are relevant equally with law. No Government of an uncivilised people can be successful unless it is endowed with intact prerogatives of Sovereignty. There remains to be fixed the place the third party is to be given. In law, as we have seen, Africans are the passive subjects of the authority delegated by League to Mandatory, with no active share in acquiring or defending property, rights, or citizenship. So menial a status is, no doubt, inevitable. A Mandate is a new thing in the world. In time, no doubt, its operations will bring into being a new appropriate legal terminology. Meanwhile the old terminology has to serve. But the fact that a Mandate in law must appear as a contract between League and Mandatory concerned with property must not be allowed to obscure the real facts. Property under disposal may be the only category in which existing law can place Africans. In reality Africans are not, and never will be, passive and obedient subjects to be disposed of as authority, whether of League or Mandatory, may decide. In reality the grant of a Mandate initiates a series of events that will be determined by what Africans desire and can perform. A Mandate is an attempt to solve an African, not a European, problem. If it is to solve it, it must consist of provisions for that process in which Africans will be the active agents in producing an African society. Unavoidably, no doubt, the terms of Mandates, like the A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 5 terms of the Covenant itself, must betray the almost exclusive preoccupation with economics that is characteristic of the thought of our time. Article XXII. is indefinite even upon the question of the ownership of the land and other forms of property lying within the areas to be governed by Mandatories, the question in which Europe and Europeans, of course, are interested beyond all others. By implication, indeed, the Article provides for the ownership of the land by the inhabi- tants. Even so, merely to decide that land is in the ownership of those who inhabit it is to leave undecided the even more important questions of how, by what method, and how rapidly it is to be exploited, and of how the resulting wealth is to be distributed and by whom enjoyed. But while to Europeans the problem of African govern- ment bears an exclusively economic aspect, it is far otherwise with Africans. We cannot solve that problem with minds filled with concern for wealth production. The only thing about a Mandate that is going to matter in the long run is the kind of life it creates, encourages, or develops among the governed. And that depends upon the social and political plan it provides for. If the terms of a Mandate ensure the growth of a free society in which the chief part to be played by a Mandatory is instruction and encouragement, the problem of the ownership, production, and distribution of wealth will be settled in conformitv. If, on the other hand, the terms of a Mandate are not to have that main design, government by the Mandatory will be left wholly indeterminate in theory. In practice, in such an event. Mandatories will follow the policy they follow now in the dependencies in which they are Sovereign — the very policy which government by Mandates was intended to supplant. With that political policy the economic policy contemplated by the terms of the Covenant is incompatible. If Africans are to remain barbarians, and if they are not to be free to create and to transform the organs of their corporate life, the ownership of (he abundant unusued wealth around them can only be a curse to them, and an irresistible temptation to their guardians. 6 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA Every Government must adopt, deliberately or not, and follow, steadily or with uncertainty, some political policy. It is upon its political and social, rather than upon its economic policy that its part in the life of those whom it governs depends. A Mandate*s chief purpose must, therefore, be to describe or define a social and political plan. The fundamental ques- tion set to the civilised world in the task of writing an African Mandate by the facts of African life is, what kind of society is going to grow up under the Mandatory's government ? All other questions are secondary, derivative, and, in comparison, unimportant. In this matter it is of no service to avow right principles. Fervent attachment to right principles has in Africa always been compatible with political folly and crim.e. It is only too certain that the new purpose for Africa expressed by the terms of the Covenant is too ill-informed and too irresolute to be acted upon at once. The task of our day, when the times are not ripe, is to ripen public opinion. If the document that follows had been arranged naturally the paragraphs dealing with politics, as the crucial part of the scheme, would have come first. But it has been thought better to follow, in the arrangement, the order of the subjects dealt with in the draft Mandate already published under, the authority of the Union. Many of these subjects would settle themselves, if the Mandatory Government, from the very start, had in all its policy the fixed and conscious aim of developing* a free African society. But as a period of transition, both in European opinion and in African policy, has to be provided for, these temporary provisions to meet immediate needs may reasonably be given a place in the scheme. This scheme appears from the title page to be the work of one man. It is really the work of many. The names of most need no mention here, as they are well known to have experience or knowledge of African affairs. To one, however, Mr. Leonard Stein, who has no special knowledge of African life, the scheme owes improvements of very great value. A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 7 DRAFT '' B " MANDATE. This draft Mandate was prepared by the Mandates Com- mittee of the League of Nations Union, and submitted by the Union to the members of the Assembly of the League at Geneva in December last. The draft was considered by the Mandates Sub-Committee and recommended to the consideration of the Council of the League. DRAFT MANDATE, CLASS " B." Prefatory Statement. The relations between a Mandatory Power and a mandated territory differ in kind from those between a Sovereign State and its dependencies. The Mandatory's status is not that of a proprietor, but of a trustee. He is not free to govern in his own interests by right of conquest. Such authority as he exercises over the inhabitants of the territory is exercised on behalf of the League of Nations ; and it is conferred upon him solely with a view to secure their well-being and development, and to open the territory to the trade and enterprise of all the Members of the League. In accepting a Mandate he does not acquire the right of annexation. He assumes the duty of tutelage. With the property lying within the mandated area, the Mandatory must deal in the manner appropriate to a trustee. Land which is used, or capable of being used, by the inhabi- tants should, under the Mandatory system, be their own. Unoccupied land and natural resources without recognised owners cannot be so simply disposed of. But this, at least, may be laid down — that the inhabitants of the territory in which these sources of wealth are found should share in its advantages, that its exploitation should proceed on the lines laid down in the Covenant of the League of Nations, and that fees, export duties, royalties, or profits derived from it may be properly retained by the Mandatory to meet the cost of local administration, but for no other purpose. 8 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA The Mandatory's duties to the mandated territory go far beyond the development of its economic resources. His concern is not solely or mainly the production of wealth, it is rather the well-being of the inhabitants. The population of tropical Africa has rapidly declined during the last generation. The Mandatory must use every endeavour to secure the extir- pation of epidemic and endemic disease. He is, moreover, responsible not only for the physical welfare of the peoples under his care, but for their personal liberty. He must refuse to tolerate their enslavement, under whatever name it may be called. Finally, he has undertaken to secure, not merely their well-being, but their development. He must, accordingly, do all in his power on the one hand to further the spread of education, and on the other to encourage the growth of suit- able indigenous social and political institutions. Whereas it has been decided by the Supreme Council of the Allied and Associated Powers that the tutelage of the territory (name of territory) hereinafter termed the territory should, under the provisions of the League of Nations Cove- nant, be entrusted to (name of Mandatory) hereinafter styled the Mandatory, and whereas the peoples inhabiting the above- mentioned territory are not yet able to stand by themselves under the strenuous conditions of the modern world, and the well-being and development of these peoples form a sacred trust of civilisation, and for the performance of this trust securities have been embodied in the Covenant of the League of Nations, and whereas the territory is one to which para- graph 5 of Article XXH. of the League of Nations Covenant is applicable and (name of Mandatory) is willing to accept the tutelage of the peoples of the territory — ^as Mandatory on behalf of the League of Nations. L It is hereby agreed between the Council of the League of Nations and the Mandatory, hereinafter termed the Contract- ing Parties, that the Mandatory shall administer the territory, A PLAN FOR GOVEKNMENT BY MANDATE IN AFRICA subject to the Covenant of the League of Nations and to the conditions set out under the terms of this Mandate. II. It is further agreed between the Contracting Parties that :— (i) Liberty of conscience and religion should be guaranteed to the inhabitants of the territory with no limitations other than may be imposed by the necessity of maintaining order ; and that (2) Except for purposes of police or for the defence of the territory, no fortifications, or naval or military bases shall be established or maintained in the territory, nor shall any military training be given to the inhabitants of the territory ; and that (3) The traffic in arms shall be suppressed in accordance with the terms of the Convention of Versailles, 1919, for that purpose ; and that (4) The slave trade in all its forms, and any system of forced labour that is analogous to slavery, shall be com- pletely suppressed in the territory ; and that (5) The manufacture, import, export, or sale of potable liquids containing more than 12 per cent, by weight of alcohol shall be forbidden in the territory ; and that (6) There shall be equal opportunities for the trade and commerce of all Members of the League of Nations in the territory, and the grant of any monopoly or con- cession in the nature of a monopoly shall not be valid unless communicated to the League of Nations. III. It is further agreed between the Contracting Parties that the well-being and development of the peoples of the territory will be best guaranteed by the observance of the following principles, viz. : — (i) The national status for all persons habitually resident in the territory and not having other recognised national status shall be that of citizens of the territory. 10 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA Citizens of the territory when outside the boundaries of the territory, shall enjoy the diplomatic and consular protection of the Mandatory. (2) No disability shall be imposed on and no privilege shall be granted to any person in the territory by reason only of his religion, place of birth, descent, colour, or any of them. (3) Native Governments shall be maintained or established for the administration of tribal affairs subject to the advice and veto of the Mandatory Power. (4) There shall be a gradual but steadily progressive education and training of the inhabitants of the territory with a view to the development of such a system of self- government as may be appropriate for the territory and to the development of the territory for the benefit of its inhabitants. (5) Such a land policy shall be adopted as will afford to the inhabitants of the territory security of tenure and promote their economic independence and progress. The Mandatory shall declare all lands not already alienated by regular title whether occupied or unoccupied on the date of the coming into force of this Mandate to be native lands. All native lands, and all rights over same, shall be under the control and subject to the disposi- tion of the Mandatory, and shall be held and administered for the use and common benefit of the natives of the terri- tory, and no title to the occupation and use of any such lands shall be valid without the consent of the Mandatory. The Mandatory, in the exercise of the powers conferred by this Mandate with respect to any lands shall have regard to the native laws and customs existing in the district in which such land is situated. (6) All revenue raised in the territory shall be expended upon it. IV. The Mandatory shall send to the Permanent Mandates Commission of the League of Nations an Annual Report con- A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 11 cerning the territory for submission to the Council of the League of Nations. V. If a dispute arises between the Council of the League of Nations and the Mandatory, or between any State being a Member of the League of Nations and the Mandatory, regard- ing the interpretation of any article or provision of any article in this Mandate, and if such dispute does not prove capable of settlement by direct negotiations between the parties con- cerned, it may be submitted for determination at the instance of any party thereto to the Permanent Court of International Justice set up by the League of Nations. If a complaint is made by any person in the territory of the non-observance of the terms of the Mandate, the complaint may be made to the League of Nations through the Man- datory, and the Council of the League may in its discretion either decide the matter, or refer it for determination to the Permanent Court of International Justice, or to the Assembly of the League. Members of the League may likewise bring any claims on behalf of their nationals in respect of serious infraction of their rights as guaranteed by this Mandate before the League of Nations, and the Council of the League may in its discretion either decide the matter or refer it for determination to the Permanent Court of International Justice or to the Assembly of the League. The decision of the Permanent Court of International Justice on any point shall be final and binding. In witness whereof the Contracting Parties have, S:c. 12 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA A PLAN FOR GOVERNMENT BY MANDATE. I. Freedom of Conscience. The Mandatory should afford reasonable facilities, includ- ing facilities for leasing land, adequate for the building of schools, hospitals, and places of worship, to every duly constituted religious body. No child should be compelled to receive any religious instruction contrary to its parents* wishes. Subject to the requirements of decency and order, the Mandatory should impose no restriction on liberty of speech, of public meeting, or of publication. No person should enjoy any privilege or suffer any disability by reason of his religious faith or a change of faith. II. Defence. No inhabitant of the territory should be required to engage in military training. The police and defence forces snould not exceed such a number and should be provided wit'n such arms as the League of Nations may approve. These foQ:es should be used solely for police purposes and for the defence of the territory. III. Arms. Provision should be made for the sale to the inhabitants of the territory of such weapons as they may reasonably require for their protection against wild animals. IV. Slavery. Slavery, the slave trade, and all systems of forced labour analogous to slavery should be completely suppressed in the territory. No contract of personal service for a period exceed- ing six months should be legally enforceable in any Court, in which the servant is a person of African race. Breaches of contract to supply or to engage in labour should not form the subject of criminal proceedings, except only in cases of fraud. No taxation should be imposed which varies in amount accord- ing as the taxpayer does or does not engage in any particular A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 13 occupation. It should be a criminal offence for an employer to punish an employee by fine, flogging, imprisonment, or otherwise. It should be a criminal offence for a public servant to seek to persuade a person of African race to accept any employment otherwise than in his own personal service or under a public authority. V. Labour for Puj3lic Service. The Mandatory should endeavour to have any customary unpaid labour rendered to any native authority replaced by free labour paid at market rates, and should in every case cause the exaction of such unpaid labour to cease within ten years. In the event of its being necessary for the Mandatory Government itself to exact labour from any person, a full statement of the circumstances and reasons should be rendered to the League of Nations, and the labour should be paid at a rate exceeding by at least lo per cent, the market rate for such labour. All persons compelled to labour more than ten miles from home for more than two months should be provided with quarters for their families. Free transport for the families should in such cases be provided by the Mandatory. VI. Recruiting of Labour. • All persons seeking to engage natives of the territory to work outside the territory should be registered. The emigra- tion of any native of the territory under contract to work should be forbidden unless the following conditions have been complied with :— (i) The terms of employment, including duration (w^hich shall not exceed a period of six months), pay, food, clothing, and accommodation, shall be printed or endorsed on the contract and posted outside the Courthouse of the province in which the labourer lives. (2) The assent of the labourer to these terms, previously explained to each labourer separately, shall be given before a Magistrate. 14 A FLAN FOR GOVERNMENT BY MANDATE IN AFRICA (3) The employer or his agent shall deposit with the Magistrate the sum of at least los. for each labourer, and shall undertake his free repatriation at the expiry of the contract, or at any time when required to repatriate him by any authorised agent of the Mandatory. The Mandatory should reserve and should exercise the right to inspect every labourer emigrated under contract at least every six months, and should further reserve the right to recover the cost of such inspection from the Government in whose territory the labourers work. The Mandatory should make it a condition of every licence for the emigration of native labour that any breach of the contract of service shall be remedied by civil proceedings only, save in cases of fraud. VII. Alcohol. The manufacture, importation, and sale of potable liquids containing more than 12 per cent, by weight of alcohol should be forbidden except under the following provisions : — (i) Their manufacture, importation, and sale shall be a monopoly of the Mandatory. (2) Their sale shall only be permitted on production of the certificate of a registered medical practitioner. Note. — Twelve per cent, is suggested as the maximum percentage of alcohol to be permitted in potable liquids, as this would exclude spirits, but include native beers. The sale of cocaine, opium (and its derivatives), and such other dangerous drugs as the League of Nations may specify should be similarly restricted. Records of the importation of alcohol and of dangerous drugs and of their sale to consumers should be kept and should be available for public inspection. VIII. COAIMERCE. The nationals of all States Members of the League of Nations should enjoy equal opportunities of entering, travelling, residing and trading in the territory. The Mandatory should extend equal treatment to the com- A FLAN FOR GOVERNMENT BY MANDATE IN AFRICA 15 merce and navigation of all States Members of the League of Nations. It should not discriminate directly or indirectly in favour of its own nationals. In particular, it should not distinguish in respect of customs duties or otherwise between the persons to or by whom or between the places to or from which exports and imports are consigned or shipped as the case may be, provided that such persons are nationals, and such places are within the territory, of a State Member of the League of Nations. For the purpose of this article inhabitants of the territory should, if they have no other nationality, be deemed to be nationals of the Mandatory. IX. Public Works. All public works not directly executed by the Mandatory or by a public authority should be open to public tender. When the Mandatory or a public authority subject to its juris- diction accepts any tender but the lowest, the reasons for such action should be communicated to the League of Nations. X. Distinctions of Race, &c. Nothing in these articles should be deemed to prohibit: — (i) Communal representation of minorities under a scheme communicated to and expressly approved by the League of Nations. (2) The practice of taking judicial notice of native law and custom. XL Deportation. Deportation from the territory or from one part of it to another of any person of any race shall not be resorted to except as a punishment for a crime of which the deported person has been convicted in due course of law. XIL Politics. (a) The Mandatory should, within two years of accepting- the Mandate, divide the whole of the territory (with the excep- tion of townships, railways, uninhabited areas, land already 16 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA granted to non- Africans, and the larger forests) into provinces, with their boundaries those now dividing tribes or groups of tribes from one another. In each province the Mandatory should set up, within two years of accepting the Mandate, a native Government with a Resident Adviser. Resident Advisers should be the servants of the Mandatory and should perform such duties as the Mandatory shall direct. {h) The constitution and powers of native Governments should in each case be determined by the Mandatory, provided that :— (i) Claims to tribal rights and privileges shall be determined by the tribal authority. {2) All appointments to office in native Governments, whether by succession or b}^ election, shall be freely made without interference by any person who is not a member of the tribe. {3) Persons of any race and Africans of any tribe shall be eligible for any elective office in any native Government. {4) Native Governments shall be empowered to grant or to refuse membership of the tribe to any person. {5) Every native Government shall have liberty to meet when it chooses and to publish accounts of its proceedings. - {6) Native Governments shall be at liberty to consult with one another as and when they may desire. (c) The Mandatory, the Resident Adviser, and all ils other agents should pursue such a policy as shall best and most rapidly lead: (i) to the extension of all political rights and privileges to every adult member of each tribe ; (2) to the increasingly complete control by native Governments of all political affairs other than those of necessarily national scope; and (3) to the ultimate co-operation, federation, or union of tribes and provincial Governments so as to form a fully equipped and responsible Government of national status A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 17 (d) Resident Advisers should be empowered to veto any legislative or administrative proposal of any native Govern- ment, which should, in turn, have a right of appeal to the Mandatory without prejudice to the right of appeal to the League of Nations conferred by Article V. Pending a decision on appeal, the veto shall remain in force. (e) In all settlements and townships or groups of settle- ments or townships excluded from the provinces under clause (a) above the Mandatory should promote the development of municipal Governments on a representative basis. Special educational and sanitary services should be provided for all urban areas, and separate reports upon their work in each township should be submitted to the Mandates Commission of the League. XI IL Africans in the Public Service. Public servants of African race should enjoy the same security as those of the same grade who are of European race. The Mandatory should increasingly fill the ranks of its ser- vices with persons of African race as they become available through the spread of education. XIV. Judiciary. All judges and magistrates should perform their judicial duties in complete independence of the Executive Government. All Courts of Law should be under the sole direction of the Chief Justice of the territory. XV. Education. The Mandatory should use his best endeavours : — (i) To ensure that primary education is provided for every child in the territory between the ages of 7 and 13. (2) To establish an adequate number of training colleges for teachers. (3) To provide facilities for higher and technical education, including agricultural and medical education, for all 18 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA inhabitants of the territory who are desirous and capable of taking advantage of them. A scheme designed to secure these objects should be pre- pared and transmitted to the League of Nations by the Mandatory within two years of the acceptance of the Mandate. It should be carried into effect as rapidly as the revenues available for the purpose may permit. The progress made with its execution should form the subject of an annual report which shall form part of the report referred to in Article XXII. of the Covenant of the League of Nations.* XVI. Land. (a) The control of all native lands in each province estab- lished by the Mandatory should be delegated by the Manda- tory to the native Government of the province. {h) If the members of any tribe can make use of more land than is included within the provincial boundary, the Mandatory should acquire and add to the province the additional area needed. All grants and leases of such lands to natives of the territory should be subject to the law and authority of the native Government, provided that every member of a tribe shall have the right, enforceable upon the native Government in the Courts, to as much arable land, free of rent but not of public charges, as he can cultivate. Where communal tenures are customary, native Governments should have power to recognise, extend, or otherwise provide for them. (c) All land not included within provinces should be under the direct control of the Mandatory. Ex-slaves and other adult natives of the territory who have no tribal rights, and * It would be most desirable, and quite reasonable, to require of the Mandatory that educational facilities for all cJiildren in townships should be provided within not more than five years. Under (ierman rule compulsory education was already in force in certain townships before 1914. A longer time limit for providing a complete scheme for the whole area, say twenty or twenty-five years, is equally desirable. A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA 19 either do not desire or are refused membership of a tribe, should have the right, enforceable upon the Mandatory in the Courts, to as much rent-free land as they can cultivate, on payment of a fee of not more than 20s. Such tenancies should be strictly personal to the lessees, and should be revocable by legal process on proof of three years' desertion, or of repeated breaches of such laws or regulations as the Mandatory may enact to secure good cultivation. (d) The Mandatory Government should establish a Land Registry with the sole right to sanction the grant to any person not a native of the territory of property in land, minerals, or natural products within the territory. No grant should be valid unless expressly sanctioned by the Registry, and duly registered in accordance with such regulations as the Mandatory may enact. Such regulations should (inter alia) : — (i) Require the Registry, before sanctioning any grant, to make enquiry into any customary native rights that may be affected by the grant, and to impose such conditions as shall protect such rights. (2) Prohibit grants other than leases for a term of years. (3) Provide for revision of rents at least every twenty years. (4) Provide that mineral and other concessions having the quality of monopoly shall only be granted on such terms as will ensure : (a) The sharing of profits for the benefit of the territory. (b) Equal opportunities for the nationals of all States Members of the League of Nations (among whom natives of the territory shall for this purpose be deemed to be included) in respect of the purchase and sale of goods and services. (e) It should be the duty of the Mandatory to co-operate with native Governments in organising and fostering trade and industry in the provinces, by the establishment of model farms, the sale of seed, stock, implements, and other neces- 20 A PLAN FOR GOVERNMENT BY MANDATE IN AFRICA saries at cost price, the grading of exportable produce, the provision of facihties for securing markets and transport, and otherwise. XVII. Revenue. The Mandatory should, so far as possible, allocate all revenues derived from direct taxation of Africans to the native Government, to be spent by them subject to the advice and approval of the Resident Advisers. The whole of the revenue of the Mandatory, from whatever sources arising, should be expended for the sole advantage of the inhabitants of the territory. The terms of all loans contracted and of all mineral and other concessions having the quality of a monopoly granted by the Mandatory, or by any public authority under its juris- diction, shall be submitted to the League of Nations. XVIII. Public Health. The Mandatory should, every five years, transmit to the League of Nations a scheme for the prevention of disease within the territory. It should publish annual reports upon the execution and results of such schemes, and should co- operate with other African Governments in the suppression of endemic and epidemic diseases. 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