United Nations Nations Unies UNRESTRIC'l!ED T/46/Add.;.l 25 September 1947 TRUSTEESHIP CON'SEIL. QRIGINAL: ETIULISH COUNCIL DE TUTELLE.

REPORT TO THE TRUSTEESHIP COUNCIL BY THE

UNITED- NnTIONS i' 1u SSION TO WESTERN SI,l-10A.

. ____ ...,.._

ANNEXES

TO THE REP CRT .T1/.l16/ic..d.,l \.Page i ''~.

,... . ~...... -;- _, , . , .• ,• .•,

T,';BLE 'OF CONTEii'I'S

I. GENERAL: B;..CKGROOND

A. '!'he physical· s~tting . . . . l

B. The people ...... : ♦ ' • 2 ,, I., . Ths hi storical .background •..,. • . • • • • • ,5

D. Research • . . . . • . •. . . 8 II. POLITIC.AL ;i.DV;,NCEt..EfJT

A. The basis of goYer nment • · . ·· 9 B. Executive goverP~nent . •• I 9 C. Legislative syr-tem ...... · 10

D. T'm: Hon0l:r-:1ble F,'l.ut~a • ' , • ♦ • • • 12 E. The Fono of Fai~ule . . .. 12 F. The Department of Nati ve Affair s 14 . G. Di strict and Yill,:i.'ge ad..T.inistr a tioI?, 15

H. The town of Apia . .. '• ...... 17 I. Public order 17

J . . . .' . .. . 18 The st ~tut e law and 3amoan custom . .• . . . 21

T .LI . Personnel • ...... 22 M. Publ ic Fin'.'.llce ...... • ...... 27 / . il. • General economic situation B. Governr.,ent organization • ...... 40 C. · Land ......

D. Labour • • 91; • •• • • • • • .44 E. The Al eha. Land Gettlement .. . · ...... 47 F. The -New Ze.s.land Reparation E?tat-es. .. 49 G. Corr.m.uni cations and public works 50 T/46/ Add,l ! . Pago ii

IV. --SCCL\L--·-- ADV;J~CEI:ENT A. Health ...... 54 B. Educati-:m . . . . ., ...... 59 ·

A.N"i-2X II - JEXI' Cr C.i-LFTF'i tS XII f,ND XIII CF THE CH;~RTER OF ...... 68

'IRUSTEESJHF ;·,~F.EE(I:l~T F0:1 T: lE TERHITCIRY OF WESTEKN S,.. Lo,:_ • • 73

...... ,79 t..N!T"i.X_J:'.. - ST::rs::EJJ7 J,::_o:~ BY TE3 i:If_S_I_C_·N_t_lf_·O_N ITS ,'.,ffiHVd, )N WEST?JiiN c;~;· ..o; . cu 4 JeLY 191+7 ......

F'()IN?2 2.UBLITTED TO 'I'HE ;·~I2:3.ICN BY TES EUROPE;,,N · CITI?EN:1 1 G(X .dTTEE QH 9 JUI.Y 191+.7, rnr.t:JDIN~

♦ • . .. • • • ' • 90

ANNLX VII - POiJ:TB EE0,JWilJG SF.LF-C:-OVERlI. :E:JT RECO}lMENDED TO TH;; i-;rs::c:ICN EY THE F,\!JTU,\S . hti·.BERS c,F THE

1 I.EGI.:::L., TIVE 1';0r_1NCIL . F;.IFJLE:;. :.GfOCI. • 'l'ED

...... 94 i'.!.NNEX VIII :::T;.. TI:i-::ENT !'•i:.DE Ii'J T!i'E HOUGE CF REFRESEiJTf~TlVES ')F NE~~ ZE.J,:·.rm c,n 27 ... :JGL'ST 191.i.7 l"Y ;.CTING P:1.D(E riW.ISTFR . THB RIGdT HON . , .• N.nCH. CW P0LITic,;,1, ;,nv. J,!C?:; J~l'JT IN LiS'I'El:UJ SHi .o;,. • • T/46/Add.l' Pagel

ANNEX · I

FACTUAL INFORM.A.TION ON UESTElli\J §AMOA

I - GENERAL BACKGRCUND

A. The physical s2tting

1. The land area cf Western Samoa is approximately 1130 square miles. .The

Territory is _made up of two main islands, Upolu1 on which the capital town Apia

is situated, and' Savai ti. Upolu with several outlying islets has a tctal area

of about, 430 square miles, and Savai 'i ·has about 700 square miles. For comparison

it may be noted that adjacent_ American Samoa has arc area of approximately 75

square miles, and Tonga I mentioned in the petition, appr0ximateiy 270 squa.re mi-

les.

2. The islands 7 situated some 14 degrees south of the equator I have a tropicql .

cli.Jn...ate, with heaV'J precipitation and occasional seve+e storms. They are of vol-·

canic fom.ation, with rugged and mountainous terrain, rising to.an elevation of

3,608 feet in Up0lu a~d 6,094 feet in savaiti. Coral roefs fringe much of the

coastline. Volcanic eruptions have covered sections of the i·slands with lava :

flows, especially on savai ri, where volcanic activity has occurred as recently as

1905 and 1906. Though the islands are heavily forestC::d 1 scils a.re generally thin

and rocky, and cultiv3.tion t-o date has been l:L1iited aJ.Jnost wholly to the coastal ,

area where the people liv8 1 and to the adjacent _lower slopes.·

3. The economic res0urces of the Territory are confined to agricultural

and marine prnducts, together with lirriited but useful forestry resources. No

.rlnerals of ccrmT,ercial value are known to exist. Transport and communication

are restricted by the fact that apart from several bays on north Upolu the

sea approaches are' limited to passage by small _boat. Vessels from 0verseas come only to Apia, where there is· fairly sheltered anchorage inside the reef• T/46/Add.l Page 2 B. --·----The people 4. Tho l~test official estiffi~tes (31 March, 1947) indicated a total

population of 71,460. It consisted of 372 full (white) Eurcpeans, 5,134

Eurripeans 11f part--SU!i',OQ.n r:.nc.:;stry, 65,695 Samoans, 296 Chinese, of whom all

I but si..x were lab0urers, and 63 Melanesian labourers. Of ·the group classed

as sc..moe.n ilbnut 6on are really isl.1.nd0rs frcm other central Pacific Islar:ds

living te;::rpor2.rily or ::-iermancntly in the Territcry 0

5. The general l,:;7cl of living conditions n.nd health n! ,t.he resi- dent population is r8ason::-,bl;y gc0d. There are no problems cf post~war rcconstr~ction and rchabiljtatinn, such as are at present serious' in many parts of the world. J!o poverty er dcsti tution o:ists, b0cause of the ease of getting a li vcliho0d and the mc:intcnance of fc?.r:ii.ly and cc.::rn.'Tlunity cr,'.'.'pera- tion under the S~t'D!J.n s0cial system.

6. Tha S2moan people 2.re at this tirne one of the most r2.pidly in­

croasinc p0pub.ticn gr0ups in the ~-,c-rld. According to thi census figures 1 which appear rc::isonably accurate, tho number C'f S,3.J'.';oans has increased from

32,601 i!l J.921 to 52,266 in 1936, ::.nd then to 61,867 Ly 19!+5, the date of tbe

Ls.st c cr;sus. Their birth:t.:-:.tc, lir,ked t0 persisting S:-1,.n,orm Fa:nily customs, contimws to be vsry high by western st:mdarcl.s, while the dsath r,3.te has been lcwered th::--o"..lgh he;alth vmrk

' At the time o:t the 1945 census, 1+5. 8 percent of the population was under fifteen years of age, an extr~orcinarily high proportion, which opens the we.y to a contfr1uing- rapid incrB::>.se 3,t le.1.cit fer the next generation or two as these children erter the reproductive age levels. If pres,mt tr~nds con­ tinue witl,~ut sctb2cks such as serious epider.i.ics, the Samo&n population may well doubl~ within twenty yefcrs, bringing the tot3.l to about 150,000. This is cnmpc1r,:i.ble to the situation in American .Samoa, with n present population of ~bout 18,000 sa~0ans now increasing at approxirnately the same rate. ,.., I• The full (tihite) European population has decreased considerably in the la.st two decades. Apart from the c:,fficiul and missionary groups and

8 mployees of the New ze2.land Reparation Estates, there are only about 75 ·.- T/46/Add.l . Page 3

white resident; in the Territo~.r:· Almost no new inm1igration ·has taken place

in recent 1ears, and most of these older settl~rs are married to .persons of

scni.oa.n encestry. By today over 93 percent of ·the group holding EtJ.i,opcan sta.- •.. . .· . \ ., tus are local~born ·part.:...sarr:9-ans. -. This group has ·oeen increasing faster· even

·than the Samoans, and a majority of them are at the pre-:-productive age._.

levels, presaging further rapid increase.

8. The categories 11 Samoann and nEuropean11 , w~ich once had·a racial

basis, have by now a legal status which does not have strict reference either ' ; . \ ' ' ,- .:._ to type of ancestr

. . . . tiated importantly as regards, their legal rights and limitations, as in ~ \ - .

, - political representation; land holding, schooling, and.c<'.lurt procedures.

But the Sarnoan group contains, .. in addition to full Samoans 1 a numerous ' though statistically uncounted ele:r..1ent of mixed white· or /1piatic descent 1 and also persons of oth~r island ancestry. stnce 193~, too, a legal pr9~

cedure has existed by which part-Samoans of European status who are of

half or more Samoan blood may be grant~d samoanstatus. jA reverse' proce-

dure has existed even longer, in fact from German times, bi which persons

of Samoan status who are of part~EUropean ancestry may be granted European

status. Other part-Samoans hold European status as bei~g the legitirnate

descendants in the :male line of EUropean fathers by legal marriages. _Still ·

,. . others have obtained this status by a lc;,w of 1944 which declared to be

Europeans all persons not already considered as Sa.moans, 'and not haying male

· ancestors in the male line· with more than three-que.rters ·polynesian blood •.

By this law a· large number of persons of Asiatic-sa..~oan ancestry, descen- / _, , I / dants of Chinese fathers·, became Europeans, so that abo~t 15 percent of. the

~ ' . . . Europeans in the Territory are not of white ance~try at, ·all.

9.· This legal dichotomy between the sa~oan and European residents,

so obviously by now an artificial distinctio·r:,, has created serious problems, especially for many-of the.part,;_Samoans, and is an increasing.. sourcc·of strain in the Territory. · rt is resented greatly by the Samoans, especially . -~ r

' / I , • - • ,• • ' to the degree that it involves social and other discrimination. Persistence · 'T/46/Add.l Page 4

in the EU1-opean.,group of a sense of superiority probably acc_ounts largely

for the fa.ct that while up to the 31 March 1947, 51+1 part-Samoans in the

Samoan ;;roup have petiticncd for and have bc:..:1 granted European status, cnh ' . ' 27 of those in the EUropea.n group hav:J correspondingly become Sai'TI.oans, and cf

these latter 3 have in turn re-petitioned and_become :Europeans again recently,

10. According to a resolution adopted by the ~ouncil of the League of

. . ;rc~ticns en 23 April 1923, 11 the status of the riati ve inhabitants of a rr.and:o.te:

territory is distin~t fron the.t of the nation.'.3.ls of thE: Mandatory Power and

ce.nnct 'be ider.ti±."ied therGwith by any process having general application.n

It was. however not considered inconsistent with this principle 11that indivi-

._dual inhabit2nt·s cf the r.1ar.dated territor;r should voltmtarily obtain natura­

lisation fror.1 the M:1.ndntory ?ower. rr In documents of travel the Samoans hare

been described as 11 British-protected persons, Natives of the Vi:1.ndated Terri­

tory of trestern SaJ;1oa. 11 The provisions of the British Nationality and sta­

tus of :,liens (in ]'Jew Zealand) ;ict, 1928, allow individual inhabitants of·

the Territory vclur,tq..rily to 0bte.in British naturalization, :i.s of 31

· Harch 1947, ce~tificates of naturn.lization had been granted to 50 Native

Sa.r:•oans and to 71 inhabitar.ts of Europe3.n status, including children.

11. )lost of the Sar.10ans continue to reside in their ancestral villages

sc~ttE:red round the coast. Altogether thGre ara' 192 such villages. The

h02.viest concentration is along the north coast of Upolu. Here, too, is

tne town of Apia, which now has within the boundaries of the old Municipality

a total population of cl~se to 10,000, inclusive of five sa~oan villages.

:Most persr:ms of European- sb,tus othc:r:- than mission workers, livc in or

around Apia. i, sraall but increasing number of smnoans from outer areas

also 1 i ve .in Apb, temporarily or perr..anently on an individual basis. In ge-

' -~eral, however., the elaborate social syster., of samoan communities, rooted

in the extended fnmily and the authority ,of the matai (tit1ehold~r) and

fono ( council), are still largely i.1tact.

-1?. All sar:cans have long been converted to Christianity. The census

of 194~ showed religio-µs affilidion 3,s fallows: London Missionary. . T /46 /A.dd. l Page 5

society 36,661;. Roman catholics 11,786; .Methodist i'J,580;. · Latter Day

saints (Momon) 2,337;· Sat1oan Congregational Church .5L{1f' s·eve.nth Diiy

Adventist 505; other 5~ The church ·is an fuportant social as' well as

spirituB.l center in srunoan COI:."I'.lur..ities I

· C. The historical background -

:!J. In the . nineteenth ·century under the stirmlus of European poli­

tical contacts, a Samoan "Kingdom" took form: wit~ a samo&n 11r:ing" ( Tupu).

. . The latter position was held by a. non-heredi ta:f.y ;succes'sion of. SCLTilOan chie_fs I

··, representative of the highest ·ramilies 'in Samoa, but the rivalries engen-

dered kept· the islands in alr.lost -constant civil strife. The Kingdom per­

sist€d, ·however, u...vitil 1899 ,· C:;::;rt:.iri :Jri vil~ges were obtairied from the .. , 11 independent11 Sa.":loan Government ·by Germany, Great. Britain and the United

. ' states including the r~ght to establish coal::tng _st2.tions. -These three . -

Powers also establisheg. a separate --Tripartite rcgir:1e over the :Mun.icipality

of Apia, where nt:arly all Europeans were living. A suprecie-Court dealt

with matters involving both sa~oans and Europeans.

14. The frequent ir.tervention of the powers and their ·nationals in

Samoan aff:drs I conjoined with -the devisive tendencies in the traditional

Samoan political organization, made.the last two decades oLthe nineteenth century a particularly ,troubled period of wars and intrigues•' In 1899, after a new :::lis;:iute over succession te> the Kings)1ip, the three Powers sont a High

CoIW'~ssion to Sa:::-Da. As a result the position of King was abolished with the acqi.escer:ce 0f certain sz~:r.,oan leaders. Then·, on 16 February l 9CO, · by a se­ ries of conventions,. the powers pa:r;·titioned, the islands, the -:Jnited states · renouncing all rights to the main, western, part•including Apia, which then was taken over by Gerinany, and Geruani in turn renouncing all. rights .to the smaller east'3rn part, with its harbour of Pago-Pago, which went to the United states. Great Britain~ obtained 1r:iperial adjust:r.i:ents :elsewhere;

15. The partitioning of Samoa is considered by many Samoans today to hav.:; been an arbitrary act performed without the consent of- the smnoari people, · rt appears, however, that when the German Government r_aised its T/46/AJd.l Pege 6 ,

flag on 1 March 1900, and declared Western Samoa a German Protectorat8, the

leaders of the tine gave at least public acquiescence •. Mata tafa. Josefa, tha

outstanding candidate for the title of King (Tupu), accepted a newly created

title of ?ara.r:iount Chief (f.li 1i .Sil~) and the TUP:: title was conferred instc2

on the Gern.3.n r.aiser,

16. The German ;\d..'Tlinistrat:ion of lJest0rn ,Sa;;1oa continued until 29 ;1ugust

1914, when, as a conscquenco of the war, a New Zealand Expeditionary Force

took over the c:dr.-J.nistrt1tion fro.:n the Ger.:nan authorities. TDe New Zealand

. Governrr.ent instituted a military regime under the laws of belligerent occu­

pation. This lasted for six years.

17. Undur the Treaty of Peace of 28 Jur.e 1919, Geri:1.::my renou:qced in fa­

vour of the Principal :1.llicd .and Associ~ted Powers all her rights .:md titles

over her overseas possessions including 1,;est8rn S'.°moa. Article 22 of the

PE3.ce Treaty. ( and of the Covenant of the Le'lZ,UC of Nci,tions) in setting up

the i,:~mdatss systf;J'7l provided that these territcries srl".mld be ad,ninistered en

beh:i.lf of the League and under its supervision. Cn ·7 May 1919 the supre;;:e

Gour,cil of the [;.llied Powers decided to c onfor the Mandate for, i·.Tcstern sar:oa

upan His Brits.nnic Mc1jesty, to be exercised on His behalf by the Governr.ent

nf New Zealand. The terns of th2 Mand1.te f0r ,?estern sa::noa (a 11 CII class

m!lnd2.te) were confir;:1ed by the Council ,of the Lea.gue of Nc1tions on 17 De­

cerr:ber 1920. A constitution for the T~rrit0ry we.s provided by '1n. ;,.ct of

thc New Zealand Par:J:iaJ;1.ent called The Si.l.ffioa !tct, · 1921. The residents of

the Territory were not fom.'llly consulted on these arrangements •

.Ht tJeither Article 22 of the Covenant of· the League of Nations, which sta,, tcs the underlying principles of the mandates system, hor the Mane.ates char­ t-Jr itself, mad.e explicit -reference to 11 self-governmcnt 11 as arL objective nf the }1ar.datory regime.·, but they stressed, the responsibilities of · ,·trusteeship and ·,tutelage:: towards 11those peoples not yet able to stand by themselves under the strenuous conditions'- of tho m0de:rn, world. 11 The Bandato,ry' Power T/46/Add.l Page 7

. pledged itself to 11 promote to· th~ utmost the material and mor:21 well-being

. and the social progress of the· inhabitants 11 •

19·. 1,rhen the League of Nations came to an' end the tJew ~Zealand

· Government did not regr~rd its rights as having been increased or dimi-.

\ Rished by this fact. It, therefore, propos~d tci continue the- 2drdnistra-

tion of the Territory in ~ccordance with the principles of th~ ~and~te

until other arfangerients were 62.de in agreement with th'3 United. Nations.

20~ The establishment of the· United Nations· was the occasion for··

the development of a leg.'.ll substitute for the Mandates systen; · The· pre­

. :pa.ration of the Cho.rte.r also gave ?pportunit;;r for forward- steps to be

taken ·in developing the concept cf int0rn&tiont1l trusteeship~ It.nay.be

noted that· vigorous leadership :eras given by -the Prime r{inister of New

Zealand; the Right w,nourable Mr. Fraser, as Chairr:an of the Trusteeship

., . , ,_ .

·· Committee 2.t the San Francisco Conference I in extending _the spheres of

international responsibility and introducing explicitly, as an oojective of

the administration of non-self-governing peoples, the progressive developm.ent

·. of free political institutions and of s0lf-govern•r1ent. Under the new Trustee-

ship Agreement as approved by the Gener:11. Assembly of the United Nations on

13 Deccrr;ber 1946 the New zeo.land Governinent assu.'T!es direct respon·s:ibility

for the administration- of ~-:restern Samoa,·

( 21. In the German era, political disturbances occurred from time to time·. These arose f ro6 conflict between the sam.oan-style politic2.l or- , / ganization, including powerful orator groups·known as Tlffilua and Pule, and the German authority. The Germans suppressed these older forms of leader­

ship I substituting for thBm new positions which still exist; the Fautua

(High Advisors) and the Faipule (District RGpresenb.ti vus). · A· major out­ break in 1909 known as the nLauati rebellion 11 -resulted in the banishment of a number. of sanoan' leaders. to the 1,:ariana · Islands.

22.·From 1921 the Newzealand,authoritir;s launchedan a:ctive.pro-­ a gram of dev.s3lopment and welfare, based on/policy of putting S~noan in- terests first. This was interrupted by the rise in 1926 of a movement T/46/Ad.d. l Page 8 ·

11 called the Mau ( 11 0pinion ). This moverrteht was .in ·some respects a re:1.cticn

against the vigorous impact of n8w government measures, and involved so~e

resurgence. of the older Samoe.n politic::~1 •institutions. But it also had

the elsr:i.ents of a modern nationalist movement, including slognns for self­

det~rrrination, and political techniques of non-cooperation and boycott.

Certain European leaders supposedly e.ssociated with the rise of the Eau were banished at this time to New Zealand. A minority of Se.moans held aloof fror:1 the mover.wnt, but a.Inong the bulk of the population the Mau leaders organized a separate Territory-wide aci':linistration roughly;:· parellel­

11 11 ing the Malo ( goverrrnent ). For a brief period in 1929 violence flnred 1 and blood was shed, but ~therwise the movement was peaceful.

23. Th~ great deprossion of the early 1930's reduced the political activity of both the Halo and the Viau to a r:d.nir..um. · In 1935 the-present l/3.bour Government c[;!J;l.e into power in New Zealand, and the following year it sent a. ttGoodwill Hission11 to Samoc:t. ThG banished leaders were returned, and a series of measures were t ak0n to break the stalemate between 'M~lo and }trn, and to adv.'.:'.nco the welfare of the Territory, In 1939 the second

World War interrupted this program.

24. 1..restern sa1noa felt the impact of the war to a considerable degroe. . . From the start of hostilities wit.h German;{ in 1939 ·the agricultural resources of the Territory assur;ied import,3,nce as a source of supply for

E.arly in i942, after the l§nited states entered_ the war, the Territory became a bas? for thousands of United states troops. These forces were finally withdrawn in 1945 after influencing considerably the eco- not'i.c and other life l"lf the Territory. Hundreds of persons from :··Testern sn.moa also went to American s::ur:.oa during this time to work on-constructive projects. The p0st-w~r period has been marked by the greatest economic boom in the history of the Territory as a result of exceptionally high prices for some of the local products.

D~ Research

. 25. The size and resources Qf western Samoa !have so :(ar ma.de it im- T/46/Add.l Page 9

possible for the New Zealand_ author~tiE;s -:to establish' research facilities

in the Territory to cover necessary fields such as economic develoDrnent and . . education. For econo;nic research it has had to depend 1::-,rgely upon the. \ work of the New Zealand Reparations Estates whic·h are not a part of the

Adlrinistro.tion. ( see E?eparations Estates). t;here n~cessary, experts have

/ been brought fr~m New ze~land.

26. The New Zealand Government novir hopes that the co-operntive

research work projected under the new south Pacific Commission can be of

direct aid in the development of the Territory.

II POLITICAL ADVAl'JCE[\\J~JT

A. Th9 B~sis of Government'

1. The constitution.al bo.sis o_f ths:; pr;_,se:;nt systen o.f government in . . . Western S:'.LlO.c. is provided by the S2.mo-s- A.ct, 1921 and subs·equent m2end1.1ants,

together wit:1 other l0gislation as referred to below. The ,S.:J,moa ·J;.ct, 1921,

ir.1ple:nented the r:andate as conferred at that tiEie by the League of Nations u­

pon ·His Brit'lnnic :Majesty, to be exercised on his behalf by the Govcrn::,cnt

0f the Dominion of New Zealand •. It is based on the princip~_e thc,t the Hew

Zealand Goverru:1.ent 11 shall have full power of 2.dr:tlnistr,3,tion and lef;isl:.ltion .... / subject to the terns of the mand::cte, as o,n integral portion of the Do1dnion

of New ze2-L::md. '1

2. Under the now Trustessqip ;'i.gr0ern0nt, the New Ze:il!::nd Govcrrnrn,nt

assumes direct responsibility for the Goip:;rnre:1t of the Territory, . .J.though

provisions of thn,t 11.grecraent o.re socff,i'nt ciifferent from the terns of the

Mandate the New zeil:.nd Govcr"msc.t 1 no·1-rov::or; has not yet· revised forra-3.lly

the constitution.:1l basis of che TerritorJ, so thr~t c.uthority still derives

from tl-'js earlier Lody of the law.

B. Executive Governiaent

J. The Sar.'i0a Act vests the executive goverrunent of the territory in

"His Majesty the King in the saDe manner as if the' Territory were part '.'.)f

His Majesty 18 Dominions. n rt provides th~.,,t. an "\dministrn,tor shall be appoin­ ted by the Governor-General of New zeiland, to be· charged with· the adniinis- T/46/Add.l Page 10

tr.3.tion o~ the Territory, subj Get to the control of the Einistcr· of ~e:rr:u

~\ff:__ irs. The last named has subsequently b0en chs.nged to the };inister of Is­

land Territories, the portfolio being held currently by the r:-rime Finist0r of

New Zealand.

4, With subsequent legislation the S:1.moa ~let ss:,ts up. the centr:il cxe-

cutive depc:.rtments of adrninistrn.tion. The system has now b•:::cn som6What sfo­

plified fron th,1t first developed hy 'thd New zes.land ~mthori tics.~· 'fr18 JTCstnt

departments .'.l.re ns follows: (i) A.dr-inj_strc,tor [l_nd Govurn:::tent House; (ii) Ec.u­

c2.tion; (iii) Health; (iv) Justice, with which is n.ssochted 1;:,bour o.nd the

Public Trust; (v) Lands c.nd s:.irv. .::;y; (vi) Nativo ;Sf·.:.irs; (vii) Police and

Prisons; ( v'l:i.i) Postal ar:d ?:adio; ( ix)'' ..I.tiu:Jlic Porks·'. , (x) sacratariat;

(xi) Tree..sur~,, Custor·.s, .?reduct Ins:>3ction, etc, The heods of dep:,:::-tr::ents

arc 2.9pointed by the I-Jew Zc:'.:J.laLd. ?ublic s0rvicr:; Cor. ..'7lission, with the exception

of the Chief Judge who is a:ipoir.ted by tho r,"ir,ist.Jr.

pllss nets which h:1v'- the force of lc.w in th0 territory. In addition, by

the S

such regul,:-,tio!1s as he th:Lnks nccE;ss2ry for thC; pc.'.:.ce, ord:,r and good govern­

ment'! of the Tcrritor'J. This s:,:,,km • of lsgisle.tL1g from New zcal'c.nd by or­

der-in-council in the form of regul?.tions has been freely used to de~.l not oruJ

with the l-c1rger considars.tions of Hew zoo.land suv~rvision but [,lso with de-

tails of internal administration.

6. The s2.::no~ ;.ct also creates the org2.ns for ],c:gii=;l::.tion .i1r w0st0rn sa:--:ioa, subject to the lhiitations set by this wider lcgisb.tiv2 framework, the Ldmin­ istr.::.tor, "acting with the advice and consent of the Legislc.tive Council of

1,.restern Sm:10:i, 11 ?ay .make l,"tws, to b8 known as ordinances, for the 11 pc?.ce,

order, 'ln/i gnod goverrnjent of the Territory. 11 The e.ssent of the .Administra­

tor is required to such loc::l legisJ.2.tion, 3.DO. the (Jovc:rnor-Gcm,r2.l of New

. Zealand her,s power to disallow an:,c Ordin.::nco within one year of its enactment. T/46/Add~i Page Ll

7. · The form of the I,egislative cciJ.rid~n I which replaced an earlier advi­ sory body of G~T".Ilan tk,es, has undergone various rr.odifications. But its basic

pattorn has rema,ined the same, namely a Ill2,jority of. offici·.~l me:rnbers and a

/ ninority of unofficial menlb0rs. In its pressnt form the Legisl~tive Council

is presided over b~r the Administr-'.ltor, anci coeprises (i) the Secretary of tho

, , - Adr.rinistr"l.tion and five senior dspc,rt:r.:ent head~ :is d0signa.t0d by th~ Governor-

Gener·:;.l o_f New Zealand; (ii) four ·s3.r::oan m0:r:1bcrs formally appointed by the

Governor-General but in· practice noc.inatod by the Sa1,;oan fono of Faipule

/ (below); . and (iii) two SU.ropean membc-rs elected as represcntHtives of ;the

European co:rrnunity. The term of office of the }':'embers of the Legisl;:i,tive

Council is_ three ;years.

8. The tegislJ.tiv8 Council ir.eets .-;.t such tL:es :'.s the Administr~,tor n;;.y

frora tine to ti.me det:;ri;,J.ne. Legisl·::ti_ve initb.tive lie;s with the_;.dministra-

tor, wto presents the ~nrmal. budget, to'getho'r with other l::,gislation }')reposed

by the Governr.ent. Unofficial me·ci.b-Ts 'hr(ve power to proposs Ordinn.nces; so_· ' .. far as these do not involve t3.JG:tion or fint,.ncial expenditures. But t!1is

power has r:;.rcly been exercised~ Unofficial moz,b .:rs c.lso have the right t'o -

present r.ieti tio;:J.s I ask ciuestions I and -:::•repose motions. BecD.use of th,J tendency

to legisl.ste directly by ordor in council r,'J.thor than by local. ordinances, the work of- the Le1~i.slJ.tive ,::;ouncil has bcien light, occupjring only a few brief

sessions .~::-.nually. ,This has s.lso tended to undermine confiden6e c.:.nd interest in th0 Council a:uong the loc2..l population,

9-. .For the Europecln cor:ir,unity, reprosc:mt.:tion is bc.sed on a roll of regis­ tered vct0rs holding Europen.n status who have been_ resident for nt ieast one

- • / ,, - ' ,• S C r ye3.r, ,:;nd ;:;,re 21 ye2rs of age or over, In the earlier years '::', property quali- fic,:ation 1'~as set_, so that the electorate was lirrited to so:.T,ewhat over one him­ dred whites and pP,rt-se.moans of higher ccono1;ic st .tus. · In 1936 the franchise

·# ,._ ,' _, I • • ,·/ wns extended to all 2-,dult · mci'bers of tlTs European cor:rrr_unity who c3.rz.•d to -register,_

::s of the last dection, hold on 1 Novcrr:bcr 1944 ~ the roll totalled 792, of whom 560 voted, 1J~s yet no signific-:nt political partie,s have t:1ken forri. T/46/Add . l Page 12

10. on budgete.ry n:1tters an t~d visory Fi nance Committee is consulted by -

the .:.d;·:::;.r.istr-:-~tor. '.:.his body, cre.·~ted in 1936, hn.s thr";e official metibr;rs

i n -:!.ddi t ion to the A

11~ The !1&.inistr:·, tor is n.dvised in ~1:.tt.,➔ rs r elating to ths s~.:.t:-O 'J,n 9eople

by threE'J 11 High ii.dvisors 11 (F2..utu~) ::ippo"intt:d by the Y:inister of.-Island Ter-·

r itori•~s . The · 'Hor.our:.ole F'lutuA. ar~J t he highost S,Y1o~n titlqholders, r epre­

sentjng the outstc:inding 11 royal11 fomily lines of 5::-.;·· o m society, ,;>.nd currently

holdinr.; the histor i c!llly well-known titles , T~r,~t\scso , i~alietoa and 1-,'ateilfa,

(Th•.:se arc liste.:l. ia t ht:ir order of a ;:,pointrr.ent ) . Though these leaders have r,o st.:1t·-1tory -00°.-: t; rs or duties , th~y ;,i-;et with the ;,dr;1inistr':l.tcr , usually once a ;;·.cnth. The f;fu-:-:in istr'lt0r con~uJ.ts with them on m.:1.ttcrs of imporfance t9 the .5-<:.:.o

F:1ip1.lh, (b:-;10\•t) nnd in special councils such c:.s t h0 one. which led t0 the

sm~~lir:~ of the p,:Jtiti on . Beer.use of th:.:.i r high r ,\nk thvy exercise ::J. great de&.l of ir.fluer.ce ir, s::i..r:·,oan aff: irs. On c e r anonial occasions they r ec~.ive nffic i·~ hcmcurs approprlrite to t heir stat·lls as 11 Royal Descendants. "

l?.~ Th.::: .f.~ pos::_tions were c r eated by the Ger F..,.,n Gover nment i n 1912, aft<.H· t he abol:l tion of the S'l!c,ocn Ki ngship ::nd th8 death of the potential

1 inCU;7.bor:.t 1 !c;}lt'.l ~r ,;. Iosi::- fa. , who h.3.d been gi v2n 8. substitute title PY t he

Germ.1ns : "?ararrmmt Chief" (;~ii , i Sili ) . It wci.s h0;>ed · ½h:tt by having the two gr eC!.test 11 r o:;ral1• l ines !.:ach r epresented withi n the Go verrnncnt , their historic riv~lry would be reduced snd co- oper~t io~ of both groups would be

1 assured. In 1936, at the request ·of the. s ,a:, ,:,oans , the .holder of t he. M,-:i.ta afo title was appointed 3.s a third f':.utua • .

?'. . The Fono of Fnipul.,, .

1.3 , In addition to ~he representation of the Samoan people by fo,ur nembcrs of the Lcgislnt i ve Council and .f; ur. on the FitKmc; Cqr.1rnittee ,' a Council of · samoa.n R,epre s enb.tiv:es hs.s been developed undGr the New zsaland Adr.1.inistration T/46/Add.l_­ Page 13

Ra:1led the_ Fono of Faipule and often. referred to by the sar:.oans as a ltparlia-

rr:enttr,

14, .,\.ftE;r various ckmges the .Fono now consists of 41 nembers, represent­

ing constituencies based on the tradftional Sanoan districts and· sub~districts~

It ordinarily meets t•.lico a ~rear, and the :r.1embers h:.1ve the st1tutory right

to 11 consider such.'rr.'.ltters rel:.tive to the welf2.re of the S2.1r.02,n people c:~s of

their own initiative they thin..1< proper or :is may be submitted to them by

the .Adl::.inistrator e,nd to express_ ,their opiciions _and mo.ke their recorrm,enda­

tions to the Admnistrator .11 ~Faipule Election Ordim.nce, 1939), In practice,

pro;;:iosed ordinances aL ecting the sa,1oan. people are submitted, ,'.lL1ong other

matters, to ,the Fono for th,~ir v;i,ews, and if tpey are; opposed the mea.sure is

rarely proc,::;edod with. , . 15. This body h&d its orig'.in P:'Ttly in a lower "House of Faipule" esta­

blished by the Constitution dravm up in 1873 by Steinberger for the s~moan

-Kingdo:n, ar:d pJ.rtly in a ce0ntral advisory council or regional offici::ls (F3:i­

pule) cr~ated in 1905 by the Ger:mc1n Go-yern.rnent to replace that House •. Under

New Zeal,md Ldministr.ti.on such a Cou;ncil was given st.J,tutory recognit,ion

(Samoa Amer,dr!lent Act 1923), though th,s Fnipule cont+nued to b"' no;ninat,ed by

the :,dr'lin5.stra,tor and still wer\:i looked on by_ the Samoans .as official repr©­

sentatives of the government rat0er thnn as their .,wn representatives in the

govern,ent. By the Faipule .Election Ordinance, 193?, a definite move wa,;;

ms.de, to shift the ui:w.phasis the other way. This Ordinance authorises each

constituency to "elect or choo.se" its repre.sentc:.tives in such n. m1:mner as

the~ (title-holders) of the constituency see fit, provided ~uch ~ person

is qu3,lified in accordance with existing Sa1.:oan us5.1ge and custor:1, The process

of election somGti:nes prov,:;s slow, and may. engender considera~le rivalry, but

it is by now well fstablished. The names submitted are still subject to

confimation by the Adrdnistrator.

16, The Faipule to-day, as a. result of this proce_ss of developn1Gnt, and

quite in accordP,nce with Silmoan custom, have both 0xccutive and advisory-

, ~legislative responsibilities. , In their Distri,cts they givo, lead;3rship as T/46/Add.l. Page 14 ·

part-ti:"!le paid officials in :matters relating to the hdnin:l.str::,tion. In

the central ~ they becor:.e the prirnaF.f me::ms of consulting .samoah opinion

throu!;h the Territory c.s c1 whole. The Fono proceedings follow S,1Joan ·custon,

with cl:;bor,1tc. fori~i'll :md informal discussion,. followed by crystallization

of the general opinions in pronounc8r.1ents by persons of higher r:mk. The - Honour!:!ble Fautua hr. vv f1 do facto right to bu pres .mt. .The Fono provides

a valun; 1le ;:ilech:'l.nis".11 for d0v0loping S:1L10:m opinion in co;71prehensi ve f:::.shion,

;\ Fnir_:ule is also likel:r to find it rlesirnble or expedient to consult the

councils -Tr.d loaders in his· 01.m constituency in matters nf i: ·portancc.

, . 17. r. questions of ~:ir.Y~t"\unt concern to the Samo:1n people, the AdrrJ.n­

istri',tion ;:13.y be asked to e::-...1Ymd th~J group to include all top-level Sar:103.n

officfo,ls, and :.lso to invite unoffici.~1 represent0!.ti vos from tho traditional

districts. such n, rrco,111cil of Represc,nt'.':tivcs of all s2.::10c. 11 WJ.G held previous

11 to the sr::ndin13 of thu petition. Councils of "Rcpresent·1t:Lves hc1vc 3.lso been

c:~.llc:d unof:icir.lly by sai:-,oan J eaders, ;is 2..t the time: of the !J,.--:u 2ovcr:1rnt,

and rc,cor:tly at Lcpetl village near Api:1 before a.nc. during th'J visit of the

}fission, to forr~.ulat~; s:::.r:.oa.n viGws.

F. • The Dcn1.rtnE:.nt of t{:-,ti vs .. ,ff-~irs.

1?. The det.dlod relc:.tions between the J;.dn'J.nistration nnd the S:imoan peo­

ple including rG~;ic:i-'.l and· local a.d-.:ini3trr.tion ar;3 ma.inly channeled through

the Dr.,partrricnt of Jl;.::i.ti vs Aff:drs. This Dep".rtrr,2.nt has its hea~qua:i·ters at

Euli:lu 1u I the f'nrr:.;;r c:i.pital of the 3::-,r.1can Kingdom, G.bout two miles from

the general &11.";';inistrati ve centre at Apia~ The Ss:-icrct,,.ry of Native Affairs, who is in charge of the Depc;,rtnent, is · expected to be the raain expert, oi' the

gov"'rnG,:mt on all 3-,_mo.1.n questions,

19. Th·: Department of Nri.tive Af:f~irs. is ·responsible for supervising the non1in2.tion by tho sn.noans of the highest sa:,oan o.t'ficials and repr,:;sontati­

ves, and the Sccr•']tc.ry is e,;xpected to work with these leaq.Grs· in their. offi-

ci:1.l 2.ctivi ties. 'T'.,e De:p:>crtrnent also handles th,:; adJ".'J.nist't"ati vo work of the umd and Titles Court (sec Judiciary), .n.nd publishes-the official

ncazetteH·in the s:c.::,o:m language§ ,\S .. c. matterof·policy it. pays the fullest · T /46/Add.~L •. Page 15

attention q.nd respect to' the ~erefnbriial .customs which are such c1 marked fE;-a­

ture of Samoan life~, .

20. Estim2.ted expenditure of. the Native Aff,lirs De:r,iart:ment for the year

194 7 to 1948 are b 17 ;315 1 or, about 3 .7 per cent. of the total budget. This

includes, the &1ropet.n ::md Samoan J"il.er:,bcrs of' the classified ste:.ff (I:; 5, G89)

and the 29:3 part-ti_i;.,e S.:l.moan 'offici1.ls at all l~vel_s- (3:i 7i400). It also in.;...

eludes expenses· for councils, 2.nd for travel and ceremonhis ,(I:; 2. 750).

G. • District and' Village Xdrd.nistr:.tio;2,.

21. Regional administr.c-i,tion in Upolu island is handled by_ i'ou:r- mropean

I membe1·s of the Native Affairs Department from the headquarters at the Native

Aff:1irs Department at. Hulinu tu. SaV?.i 1 i · is supervised·· by a Re3ident Corrl.f:'iis­

. sioncr, with headquarters 2.t Tuasivi in- tne area of the greatest settlement

on that isl'3.nd,

22. Un:ler these: officials,. there are fourteen district administrations 1

eight on Upolu ,;1.nci six on sav1.i 1i. Each. is stc.ffed by S3..Boan offi_cials who

are noDinated by' the people but fon1ally appointed by the. Adrnir.istntor..

These offici2.ls hold-office for thrco years 1 and consist 'af a Fil 1a.!:-1asino

or District Judge (see' ,Judiciary), a. Lt?oleo or Policenan-MessengE:T, and a - , . - . ,

Pulef!::. tatoaga or ?lantation Inspector. · These I t9gethe:i; wi.tt:i ·the Faipul1:;s

whose constituencies lie within each district,· rµake 1..ip the district .staffs

under the Dc~artment, · Contact is maintnined by .the European officiols with

these Sanoan o·fficiaJs through visits and reports, and the sar:1oan officials

also-keep in touch with the regional public health and·police ·staffs. (see

public Health and ::,11blic brder), But their activities tend to be limited,

as they are untrained part.,...time enployees on low salaries (see Personnel). Furthemore, . inspection by European staff members have not been frequent enough to maintain close relationships· with Sar:ioan dist:ict _-officia1_s,

or with the village officiQlS and the people of the~r· clistricts~

23~ At the village level, :the govc-rIBJlerit is represented ,by ari elected

saraoan officb.l of the same part-,tj.me stat\1s called, the ·Pulenu 1u (Mayor).~

• · As of 1947 t·here ·were- 200 pulenu tu in western Samoa!, ~everal of the •1arger Tfl+6/A°dd.~ Page 16 ,

1 Com:-:,unities• "having more than·one.'·, "'The~r"a're.J rc~.-r._onsibJ-•e~ - . for pr·ol"''',cu,.(.,::,'-c,oti'n g

::1nd enforcing the ln:ws of the govern;;.:ent in such matUms ns rogistrati6n ·

of births 2.nd de!'lths, village cleanliness· nnd order; ·control of livestock, ' buri".::.l of the deid, r•Jporting br~ach.es of the. ptiaco· to thu District Judge,

and-working with th8 vill.'.'..gc schocilte'lchcr. They r,1,:-iy act as repres,c:nt::rtive . . -of the gov~rrr.::.cr1t in init::.3.ting prelinim.ry discussions in· disputes over

.land n.nd ·titles. They maintr..in sporadic contact with the S:.)J;".oan district

offici2.ls, but r.care reGul.:i.r contact with the .central headqu<'.l.rters through

visits and reports~

24. To d::>,te tho el<'lbor".te tradition:11 Sa:,..:oan cystE:D of district ·and vil­

l~,g,3 councils and load,S?rs has not been ·int~grated directly with this ad.i,iin­

istrative org.'1.nisation, t'.1ough it cor.:as into play- indirectly in the noro.na­

tfon of_ thC:: nf.fici!llst forr:u1.~.tfon of S'.1noan opinion on offici,3.l activities,

n.nd th,3 rr:aint::nance of public order in tems · of traditionhl, S'lmoan •;sage.

In 1925 tho !.Jew Ze-"lla-nd Govern:-:cer,t issued a t-iativ:.., Regulations (Sc,r:c:,3.) Order

cst1.blishing District Co·Jncils of officials· nnd lenders with powOrs to riake

by-ln.ws, subject to n.pp~ov,:,,l by the .\dninistrator, and to ac1,.inister these

b~0-1,~,...._rs. It 2.lso provide:i for the, cron.tion .-,f Village Corr.r,~ittees 'with cer-

tafr. cxccutiv-8 povfors. But ·tr.is pl<1'.n collapsed with the emergen·ce of the Mau mov(m:ent in th·c", followir1g year, l::efor,:; it could be properly°t~sted, so that these regulations were finally r,::voh"id in 193'8. The feeling .is widcsprea.d e.::--',ong officL:1s 11nct''others thcl.t the gap which· st:i..1I'·ey.ists bet:- . . . : wesn governr,c:nt org,•misation and the S3.Il·oan district :J.n.d village organisation

is one of the weak'_:::;t aspects of the prescht administrative situation-. ' 25~ .The Village WomE:n ts Cormdttees · which a~e ·found througho-ut the Terri­

tory wvre first .st;cffted in 1924 'by a ~1oman d.o~tor to de:::i.l with villag~ health

and baby ca.re. They received an .i::1.petus from the 11au movement, as there was

a period when wor.,en 1s ~rganisations c·cJ.;ried on· public d~onstmtions after

those of the men wer~ banned~ . Th~ VorK:D is C;rdnittees re~Gi ve. to-day'' the

full support ~f the Ad,--:d .. nistr.'l.tion and ei;~. a vigorous organised outlet to

the w0:m.en, who hitherto have had by trad.5.tiori .'a. rather subordinate sociai T/46/Add.l Pege 17 · ·

position. Areong thei r activities are periodic inspection of houses nnd

f urnishings t attenti on to c l eanliness ,. s~nitat~on, infa~t care, and other

health conditions , and' care of visitors to the community.

I. H. "'hTr e ·01.m o f ,~pia.' .

26 ~ This urban are,'3. has no ·separ ate system of administrat·.. on. Its

· affairs are deo1t w-lth dir ect ly by the goverm1cmt dep:ir tmi,mts, in the

dr,ys of th~ pc1'."1c:m Kingd?.:n, a ~'.Unicip:i.l~ty of A~i ;'3. existed under trip::,.rtite ·

control by the Grent ?ewers, but this supervised not only the town ar-::ia as .

·such , but also the activities of the resident European· popul3.tion in Samoa I . . . not holding s::uwan citizenship.

27. The Aloisa Lc.nd scttlbrr'.cnt, sor.1e ·eight r.ri.les f rom Apia, was given·

on 20 Novor::ber 1 1946; t he power to elect a ·councii and mn.ke by- 1,~·ws: and

a i,;ayor and two· Councillor.s are pow hold.ing ·of'fice . (see Alei sa Land

settlcwcnt)

I, public order

28. l:'estern Sa.l".'loa is in g<:meral o!'derly hy - restern st:-~ndards .:1.nd major .

crimes are rare: The principal offences b ro11ght before the Courts a.re petty

theft, assault, disorder ly conduct, affrays , tresp::tss , and "( in north Upolu)

' • , traffi c violations , In 1946 a total of 1,885 cas~s were brought° before··the

Courts.

29. The Depnrt~e~t of Police and Pris~ns is r Gsponsible_for_E3.intain- ' ing law and order. It is headed by a European Inspector, who 'is in charge.

of both t he police .force and t he prisons . The total staff of the police

I n Apia , in addition t0 the Inspector, there . are l!.i.lropeans force is 68. 6 . , comprising five locally-born police officers and an acc~uritant, and on

savairi t he Resid0nt Co~'Jl'~ssioner act s as deputy t~ the Inspector, · I n addition t her e a rc 56_ Samoan pol ice ,· including' 9 non-coro:'aissi~ned officers, stationed e.t Api:>.. headquarters or at dist:rict outP,9sts , and an ,appropriate ·

Sa.moan . clcric:il a nd mcssGnger staff. The saaoan p~lice 'are trained ~nd1 _ll;li- · . . ' . . ' formed . The el ected Sa.".",oan poli c eman:-messenger.s , (Leole2_) attached to •:the

.Di strict courts under the Native Department , . are not a part of this f orce_, T/49/Ad.d·. l page 18. · ·

, . -~ ~ ! I " 30~ The wo rk of the Police Dep3.rt:ncnt includes ,' besiries r cgul.1r po~ice : I work, the r ,~gistr t,.tion of vehicl es , and the r egistration and control of

all :firco.r::is , an:!::uni tion cir,d cxplosiv es ir.,ported into the Territory. The

Dep.:::-.rt::-.er.t ~lso controls ir ,migration and ~r.ii gr ation , and t he issuing of

p:.1ssports and 'travel pen:it s . The . Inspector of Police i s al'so r esponsible

for t he opar ntion of the fire brigade. The constatles :it the (IUt-st at fons

work ~s •"'.gents for r.1cst of t t c gcwern;=1ent <.k:pe1.rtr.·,cnts , anc'i maintain contact

by r::l.dio with the C"

crir.:~ cor.'.rr.itt.,d in the ot.ter ar,?:3.s c~n be r r::ported :i.J1J!:1<.,diat ely in t his way ,

All investi£~ticns in conm.:ction with s,.::rinus c ri.r:,,Js '.?.re c~.rried out by zu-

.31. Ther & !l!''c: t.w0 prisons in th" Ts rritorr, (,r.:3 is run on t he lines of

a self- supporting f~rn schnol, which provides an oduc~tion~l ~swell as a

cnrrcct.ivc sorvi,:e . The pr i son far;:1 nt"lfi' cor.pris~.;s a :E,\l.rcpenn p.o}.or

and 7 s::.h:o:-m WG.rders, in chc.r go of an uv~r::..ge of 70 prisoners. 'Ih0 sGcond

prison , undc,r e• .Si-::oan r,cr.gea.nt :md 6 wa rclor s ,, is f o r the rao r 0 r cfr:~ctory

prisor.er ·s . It h.:!.~/ , n ::wcr.'.:l.ge of 30 irn;;"..t0s , who a re proviced with useful

work.

32. ::'">r "j_':)J.;! :o 1.943 the appropriat i on for the Pcl ice and Prisons Dep-=:rt­

rr:unt t ot.:•.ls i:: ·16 . ;::,40 , or about four shillings and f ourp,Jnct..! per C':l.pi tn:.

33 . Th~J basic law of ~,rest-e rn Samoa 1·ras l aid dcYirn in th0 s~mo".i J;ct , 1921,

whi.ch provides a cri.--:.in:;1.L code as well ~:s opening t he· way t o subordinate le­

gisl'.'.tion- ( s -. ,:: J::.:r.:L;l::1.t ive System) . . Tnc lc:w of·Englnnd· as existing en 14

June J.840, the do.t.e on which Now Zealand r 2cei ved· the ·-constitutfon, is

·brought ' into forc r-: with certc1in· i!",odific3.ti·:ms • . The st:i.tutu i aw of_ Ixew z ealaml i s declared- ina.pplico.bl e to the Territory-exc ept· :1s· -~pecifically provided, and oth1.::r -aspE::'-rts of New Zealand l:l.w· are ' de.fined a:s having ap­

plication or otherwise. , Special provisions· r ela.f,irift; t;o s~r;{oans £>.r e ::iade in

the .Sa.":'loa Act ·a s r egards' c~rtain _rr:atte;s I including di:ic'r0tion.fry enforcement 'L' /46/Aaa·.1 Page 19 ·

of contracts, rights' of ·success·ion to property, and land· tenure (s0e Land),

the last two t1entioncd rBqhiring th~.t Samoan custon be t::,ken fully into·

account.

· 34. The Samoa Act sets up the High.Court.of Western Samoa, to consist

of a Chief Judge and other· such J~dges' Conimi~sioncrs and F:1 rn.,:iasino

(Samoan Judge·s). ns the i:;inister of Island Territories ttay think necessary.

Appointments of the Chier' LTudg~ and Conmiissioners are made b~r the Minister

and they hold office during his plea·sure. · The Chief Judge exercises all

the powers of· the High Court in both cri'c'.in'.11 2-nd civil Eatters, whereas· the

Cor.1missioners have jurisdiction. over less serious cc.sr,s onl;y. In addi-

. tion_, the Ad.r:iinistr::1.tor :i:ay appoint such S3.GOan Judges as he thinks neces­

sary, holding only such jurfsdiction n.s ·he shall prescribe, extending only

to sanoans, and without authority to impose any terr;f of i.mprisorur.ent. As

of the pres -.:,nt time thGre are , in addition to the Chi of Judge, four Euro-

pean Co11rJ.ssione:::-s, three Sauoan Associate Judges ,,:f.' the High Court, and

fourteen s~r:-;oan Judges in chQrge of District Courts~

35. h. system of Assessors, sor;,.,,-..;hat equi vaLmt to a jury system, is

provided for nore serious crilT.inal c2s0s. The court appoints four Asses-

. sors from a ste.nding panel nor:-j_nnted by the AdI1.'..inistr.:1tor ·and consisting ·

of both Europeans and sc.;:1oans, n;3arly all of the 1::-Lttor being Judges or

ex-Judges. In ccrnes where the def::md•ant is a sar.oan it is the current prac-

tice to name one Smnoan Assessor a1,.ong the four. Where !1.ssessors are' used,

the verdict requires the concurr,mc,) of at l::c;ast three of the .\ssessors.

' ' . Two qualified solic~tors are in priva.te pr.::cticc in Apia, c:0 nd handle c2.s2s

before the High_ court.

36. The S.'llf,oan As$ociate Judges of the High Cotirt are appointed. by the

AdDin:istr,3.tor on the basis of nominations by the Fono ·of Fai?ule; and hold

office for three years. Originally they held courts in Apia to deal w-ith

minor S.1.rwo.n of fencers' but to'day the police prefer to have all th_o C.J.SCS at

Apia1 tried -by ono of the. Cof'.'JT>.issioners or by the Chi€:f Judge. These Sn.moan

Judges therefore sit on the bench'in an associat8 capacity. In c~ses'where .T /46 /Add .• l Page 20.

the dofendent is a S:i.::-:'.c'J.n: th12y' r::ay takk ·a very active part in the procct

as in questioning witnesses, arid helping to friw.ie a just verdict. Hhere

the defendent is a F)1rop82.n th0y ::1ay possibly be present, but they tr,ke .

no part in the decision.

37. A right of rehearing, equivalent is practfce to an appeal is allowed

' from decisions of the sa;_10an · Juctges to the Cot',r,ussioners; and on to the ChiEf

Judge. An appenl is 8.lso allowed. under certain conditions fron the. High Court

to the Suprer.:e Court of New ze.1.land. But only a very few such appe::tls to

the suprer:1e Court have ever been ra:'l.ds, 3.nd none since 19.34; nearly all were

connected Yd.th the political activities of the Hau movement.

38. The Justice Depart~cnt is headed by tho Chief Judge, and handles

the ad!dnist:h.. ti ve n.spccts of the j udicia.ry. · 1i Ls gal Officer fom.erly

called a Cro,m Solicitor ordinarily advises the ;,::iministr::tion on legal

nattE>rs and reprGsents it before the Court, but this office is ::.t pre.sent

v2.cm:t.. The Justice Dcpartr:ient h3.s incorporated into it ths work of a

forn0r Labour Departr,ent, and also that of the Public Trust,

39. :, speci;_il judicfal body h3s been cre;:i.ted called the Native Vind

and Titles Court to de.:>,l with disputes ov(,r the control of "Native Land" and

the right to hold tradition:l.l s::;:1oan titles. The:; pr::;sent Court is a successor

to a r'1ther similar body devel0ped under the Garman regi~i10 1 and its preswt

forr.i is based on the r0vised Na.ti ve L.'.'.nd and Titles Protection Ordinance, 1934-

This Court is irriportnnt not only as a me'.lns of settling increasingly frequent

disputes, but also as providing o.n outlet for the clt;>.ims of Sa,':loahs to their

customary rightt;J; it is hero thd s.:1moan usage has its fullest cx:)rossion

and sanction by law. The Chief Judge is Prz:sident of th.e Court I and .is as­

sisted by at l'east two European :\ssessors well versed in sam.oo.n custom, and ' at lea·st two so.:;.oan Judges. The decisions are usually roached only after

prolonged hearings and no nppe~l exists except by w~~y of 11pplic.J.tion to the

Pr,.;sident for a re-,.hearing. The Court is·highly respcct~d by the sar:1oan

people and its judgement~ rarely need ·to ·be enforced through the· High Court,

Large numbers of disputes ·are settled out·of Court through ·the rri~diation of . I T/46/Add.l Page 21

the Native Department. I · 40. The pre$ent Sarioan District Ccurt system was re-established in' 1938

after a lapse during the Nau period.-: The fourteen Sc.noan District Judges

like the J,ssociate Judges; a:re no:r.iina.ted by the ~, o! Faipule, and appoin...C:

ted by the Adr.unistrator every three ·years~ Their jurisdiction extends to

civil actions up to .the value of E, 5 where both p:,rties a.re Samoans, and

to criminal offences by Samoans only in the casG of theft of under I; 2 'value,·

adultery, breac:1 of the p,.3acc, and some .twenty-five other offences prescribed

by ~he legai code •. It. cannot be said, however, that these courts adequately

· fill the needs of the outlying districts• The number of cA-scs they deal .with

is sL;all in comparison with the nu.'nber of cases deg,lt with judi~ially by

the Samoan-style •vill3.ge councils on the· basis ·of l.oc:.l custom. Th·e village

titleholders (r;iatai) continue to exercise the real authority, and prefer to

deal with offenders themselves, rather than' sending them for. trial before

the District Judges. Cases on which the village counc:il cannot agree'a-re

likely to be referred directly to the 1\pio, Court, or to savai ti ·to the Resi­

dent Conimissioners' Court. The governnent is now con:idering the possibility

of giving st3.tutory recognition to the right of village councils to exercise

jurisdiction in terms of tractitional custom.

K. The statute 1<1.w &n!"' S::tmoa.n custom.

41. sanoan 11c1,J.storr,ary lawn· is in general allowed to ·continue without

official interfcnmce ,J_xcept for certain old custo:2ary acts now held to. be

criminal. Th;:re ~re some actions which, wh0n cor::nitted by Samoans, rrre

offences against their own custo:r:J. without bein_g offence_s · against the written

lc1.w, as, for .,s:n.::-:.1.,Jle, supplying the wrong type of food on ceremonial occa­

sioqs, or failing to· provid'e. services to the title-hold0r. These are handled

by-th0 sa::1oe.ns, if t_hey so wish, through ~heir' customary family and c clmmunity

, procedures, and by applying :their own sanctions, in the 'form of rebuke, fines,

ostmcisrn, or even banisfu:1enta 1\ notable instance of divergence of custom

fror,1 the written law is in the. attempted settling of crimirv1l "ffences

by "roconc.ilfa.tion" through fines of pigs or other wealth by the village T/46/Add.'l , Page 22 - councils who then share, in the proceeds.

42. Fron t:L'Tlc to tine Snr:1oans fawe expressed their willingness .to bring their custom r.nd the' written laH into closer ha:cr.1ony, either by• - modifying .tho custor.:. or by a..'7',ending the law. :,t the request of the Fono of Fc:.i.:iule t 1,ro special custor.1aI'iJ offences in the form of extrcrr,e 33.1:,oan

. style insults have been 1ncorpor~ted GS st~tutory· offGnce~ iri the ~ritten law. It woulc1. be difficult however to codify S:>.roan law in any coriprehen­ si v0 f:-tshion, partly bec'lus·e_of regional and local variation.· However, most of the 'statutory offences already prohibited by the written law as. being anti-social or anti-Christian are -:.lso no·,· reg'.lrd~d as acts contrary to r10dern .sa:-1can custom ns moci:f'ied by the influence of western di viliz::i.­ tion and the missions.

L,3 • •~ serious prob2.E.c in using sn.;-oan custon as a -basis for law arises fro"":l the fact that it is undergoing consider~ble ch~nse in the modern period, and tends to bc·;one less precise as the elders who hav0 expert kn01vledge of it die off. Increasing -numbers of Sanonns· are tending to break away, as for ex'll:.ple in cases where younger people resist the matai authority. This nay invol vc a growing disorganization beneath the apparently orderly sur­ f::-_ce of life. s2-eoan-style sanctions are likely to be increasingly resis­ ted, ~nd dissatisfied ~arties ~re ~lready appenling frequently to_the Native

Office and to the courts, including the L::.nd and Titles Court.

L. T."'ersonr:el

~4-. The sar:oa ..4.ct, .1921, created a· sanoan public Service under t'he control of the New Zealand Minister o·f sxterncl ..ff2.i.rs, who delegated to the

Admnistrator the power of naking' appointments. The Administrator wa:s also empowered to fix the salaries of officGrs appointed by him. In 19Jl, howev~r, the Samoan Pu1J1ic service was placed diroctly under the control cf the New Zealand Public Cor;.missioner, now the public Service Commission.

Tl~is Cor:unission currently has jurisdiction oV-er all et1ployees except the

;,dr:inistr~.lor, the Chief Judge, and the part-tiir.e Native Offici:ils, and· theoretically it makes all appoint~cnts and fixes all salaries. In practice T/46/1).d.d.,.:"f- _· Page 23··

authority to appoint members.: of the 'non-e.stablished st11ff· and casual

work!:ten has b_ien delcg?.tEid.'.i'i¢ ,the Administt~.tiou;: which also has th~

authority to .fix salaries:i'or ind:tvi.dual o!ficirs within a scale approved

by the Corrn.issicn.

45. The present s:0 stem of tenure· for e:r::iployees of the. Administration

is complex. sonG of the highest positic•ns, tlostly occu.pied by officers fron

overseas, c~rry special salaries. i,;:ost officers, however, are on . st'J.ndard

New Zealand Public Service s'..l.lary scal0s, plus a tropical allowance. several

local European officers are also on this standard Public Ser-rice Scale, but

without the tropical allow::..nce. The rest of the local employees, European

andsamoan, are on a sepo.rate local salary seal:;, some being on the establish­

ed (classified) staff, but others not; the different types-.o-f employment

: such as clerical works, police, teachers, and nurses have their own 'ro.nge

of salary scales, the· variation being from a maxir;n.un of h 415 annually. to

a ;:,iniE',u.,,1 of n 50 in established positicns.- All mer:tbers of the established

staff contribute to the New Zealand-Public Service superannuation Fund.,

46. The New Zealand public Service Cor:-Jnission .usually recruits officers •

for the higher positions by advertising within the New Zealand public Service.

In other instances,. p: ::·ticularly for "the professional men such as doctors

and dcmt_ists 7 advertisements are ihserted in the Press,· The term of._recruit-

ment is usun.lly for three years. The· endeavour is made to obtain officers

ter..perameritally suited for the work, though speci1.l training has riot been

insisted upon 7 mainly because officers with special qualifications in these

professions are rarely obtainable. The service is a small one and the scope

for promotion is so lirnited that few officers on the permanent staff· of

the New Zealand public service cc..n be induced to choose it as a career. Re­

cently the. New zeab.nd public service Commission advised as follows: 11 The

Public service Cor..missiof1: would welco1ne the day when western Samoa could

st5.nd on its own feet as far as'staffing is concerriedo Great difficulty

is experienced in g ct ting· offfoers t6 go to i:restcrn sm:,oa, and this is

1 · becoming ·more so, _as officers consider that thrc..e years 1 absence from• :_:;, , T/46/A1d.1' Page 24:. ,

New ZeD.land considerobly· affects .their,. ,.1.:::-:,erience arid prospects ·_pf pronotion,i

47. ht th<:; r,iresont ~ime there are . ?i positions (includi!lg- 8 vacant.) held by full SUropaan officers, of w~~m 7 :recrui~ed fron thc.rcsi4Bnts of the Territory. Th5..s nut1bcr is .r:ado ·up as follows : -

Goverre::ent ~?use i-..cl"'.'ci.r.istra.tor; Aide-de-Camp .4nd Fann Manager 2 -, . : Educr!tion Dept •. superintendent of schools.and 14 t eachers 15

. ·- · Health, Dept •. Chi,jf }:edical Of.fic(,.r and 3 iredi c-11 Offi- cers (2 vacant)

.Dental Officer ( vac~mt) ; Dispenser

Hospita.l Secret:ry; w1tron 1 :.Assist­

Hnt ]5atron 1 :md 10 Nurt>ing Si,sters (2 V~CP..nt) 19

Justic,:; Dept. (incluc.-­ ing Public Trust and I.Jlbour) Chi ,:,f ~rudge; Legal OfficfJr (vacant) 2

Lar.ds 'lnd survey Dopt. Chief surveyor; · surveyor, and 2 Draughtsmen (both v~c~nt) 4

Native ldfoirs D.:pt . Scc!".::tary; Resid€!1t Cor.:::1issioner, S3vai 1i; and clerk 3

Police and Prisons D€pt . Inspector; Sub-J:~spect.or; Gaoler; ' Clerk,; Consta:.:2. 0 · 5

Post;il an-:! Rad.io D.Jpt. fostnaster; Line For3rnan ; Radio Supcrintsndent Mech~nic; Radio Op~rator 5

Public \forks Dept. Officer-in-Charge; Engineer; Chief­ Clerk; S~or ekeeper; Electrician 5

Secretary; Assistant secretary; staff Clerk 3

TrcQsury & Custo~s Dept. Treasurer; ' Assist~nt Treasurer; . Ir.iport Gontrol Officer; _Customs .. exa..i:rl.ning Cff~cer; 2 Clerks; Inspector of Proc.uce; -Ho. rbour . Master 8

It will b2 seen th:;i.t for tho gren.t rra;jority of the above positions, pro­ fessio:1al or technical training is .a necessary qualific-'.ltion; and until loc• 1 residents o.cquiru such training the j~cl.'7'.i.nistration _must look to

' , ovGrsee.s for its profs;Jssional and technic;:i.l ofj.'ic8rs. -~he combin"1d sala- ries o.f the officers of this ,class,. exclusive of, tray€l and other.. special costs , is Ii 42 ,.593 or _an average of n.bout b 600 G.nnual~y par ca.pita •. T/46/Add;,l ·page 25. . i Local-born·Europeans of pe.rt... Samoan ancestry €mployed in the Admi- - ' nistratioh number 102, al)- of. wh

Their average salary is about £200 annually per capita, and they are employed

in the following' departments:

Education 27 Health 10 Justice 8 Lands and Survey 3 Native Affairs 4 Police 0.nd Prisons 9 Postal and Radio -14 Public Works 9 Secretariat 5 Treasury and _Customs -- - 13

_For the fiost part ·they are junior officers who enter the service after re­

ceiving the primary sch:iol le2i-ving certific•ate. This is at least· three, if

not four years below the rrd.ni.'l11.l1n e·ducatione,l requ:;.re~ents for cadets· and

f er2le employees· entering the New Zealand Public Service. -In thr~e or· four

cases where officers h2ve been sent to New Zealand for periods of training

they have develo_1:; e,i into comretent officers, and are now holding res pons-

ible positions,__ ne.r,iely the Registrr.r of the High Court; the Hospital

Bacteriologist; the ~ccountant in the Treasury; ~nd the field Assistant,

Lands and Survey Dep,\rtment. , -

49. Couparatively few of the local Europeans, whether male· or femaJ:e,

re;r,,ain in the service for· ariy length 0f time. -1.11:lost' invariably after three

or four :rears I training they either seek transfers to New Zealand Dep2,rt-

- ments as temporary employees, or resign and_ emigrate to New Zealand where

• I salaries and wages are generally higher and where they are free from the

calls of their, relati:ves upon their earnings.• Where tefaporary transfers·

have bee!f arranged, it has been foun~ that officers are usually reluctant

to return to Samoa. The attraction and the grsater scope which .New Zealand

is able to offer and the facilities availsble there for higher education

are also responsible for ·the steady =loss to this s8rvice -_ of the more enter-

prising and ambitious junior officers.

50" · There are 524 Samoans· employed in the following Departments on

a full time bc,_sis: T/46/Add.l · ::V· Page 26

Govern,-nent H6use··.· ·. · , ,_· .·-i Educ a. tion. ( including trairiees). · . . 244 Heal th ( including cn.dets. c.(nt..i J.,rcb~.tiorwrs) 1th Justice . 1 Lcmds and Survey 2 lfati ve !.ff2.irs 16 , Police and PriGons 61· Postal ?,nd -Rad:io 21 Pu'o1ic 'arks '5 Secretariat i Treusury ·5

Their salarios average abcut t68 ·annually per c:;_r,ita·, but mo~~ of those in the

Health Dep~:-t ment r ec0ive food ~md living qul!.rtc1·s , and many of .the oth0rs

have hvuses and l:md for c{'.rdens pr ovided free , h.bout 70 of tne above are on.

the established ( clns sifi<,d) stn ff. Samoans ::1 r e ~ls~ _er.ipl oyed op miscellan-:­

eous . clericid dutL::s, such -$.S those of t;yi:-ist, re.die oper.:1tors, messengers,

etc . 'I'he st()nd£>.rd of ~duca.tioq is gener r.ll;r not hi[h, .:>nd th-.:re is a . heavy

·.r.nnu::.l r eduction :in st,.lff (about 5Q :'.=Sr' cent, of the local-born Eur~pc:i.ns and

Sa1Tto:1ns.) thr ough res i gnP.tions, c!is1n3sals, l!l-3rriages, and other causes. Gtne­

raU y the S.?J:ioc>.n finishes scho·::>1 ln.te and ::1?-rries e~rly, ~nd the salaries p2.id

for jur1ior positions ~re usually insu.:(ficient to su~:i:. ort him ,md hi s household

un.lE,ss. there is, f .~r:J.ly l ::m,~ in tr.e vicinity of. his el)lploy:nent whBre he can

produce foodstuffs . h0reover the Sc>..i.lcan 1s way of l ife docs not fit him for

. r €gul!-;r ~nd conste?.nt onployment six ct.~;y;d ::. we~k, and P..fter n. short r,eriod in

the aorvice the gr ent · majority t'etu:i;-n to their vill.J.g<;s .

51 . Under the ·Native iiff;,,i.rs .Dep1rt.ment thcI'C (.!re 29.3 par:t:-time Samoan

offi cie.ls wr.:ise corr.bined salar ies. aJJ1ount to J?,7 , 400 or e.n .aver age of !:25 per annum each. 'These officic:.ls, .. whose duties. cJ.re light and interfere yery little with their nornal .activiti Bs ,. co1::pris 0 the Iollo,dng : .

3 Fautua a t -I:.300 each 4 Sn.moan members of the Legislative Council: at .1;60 II 41 Fa.ipule at s52 II 3 hssociate Judges at 11)6 I! 14 f~ lamasino (District Judges) . at !:24 II 1.4 Leoleo (Policemen to District Judges) ut ;=,9 rJ 27 Pulefa 1atoaga (Pln.ntation Inspt::ctors) . at Is.27 II 200 Bulenu 1u (Ville.ge Nayor s) at. kl5 II . . 52. ·In addition to the above classes of employees the Administration regularly employs about 400 casual labourers· r ecruited from l ocal~born Europeans T/46/Add.l Page 27

and Sa'lloans. The~e workm~n are Jri.ainly · .e:mpl◊yed by the. flublic Forks Departm_ent, ',; . \ . ' ' -· . " but there are a few in .the Bealth/Lands·and S-q,rveyahd I;:ostal .and Radio Depart- , ; • I ' • ments.- Their wages range from 5/-:- pet d2,y for.unskilled labourers iip to. 22/6,

per day for forer1en ·carpenters 'ih _charge of a number of men. Laboure.rs work

a 44 hour week and are paid. for overtime at the rate-of. t~ne and a half with a

minimum of.1/-~per hour.

M, Public finMce. ·

·_53. In.general the Territory has been fincricially self~supforting, though / in the ten years .from 1921 to 1931 th~.- New Zealand Goverrunent contributed a~ual

subsidies-· averagi~g -about -1324,4Q0 or 17 per 'cent ci.f the ·total public income for

the period. As· of 31 J\'Iarch l947 there was no outstanding indebtedness,.''and'_ the·

accumulated surplus _totalled :€4l7,75S.

· 54. By. the .Samoa ii.ct, 192l~ the y;ublic revenus of 11Testerf1 Samoa constitute

" . ' a single fund· known the Samoan Treasury. The collection,· expenditure, and as_ . .

·control of these rs:.:venues, and the auditing of accm1nts, are carried out in

' . accordance with regulations made by the Governor-General in Council. At present

they are defined by the SPJiiOan 'Tre.-i'sury Regulations, 19JO.- Subject to such:

ngulations, and to the control.of the Minister of ~slc.nd Territories, all

moneys in the Treasury m,3.y be e:xpended by thEl i,.dmini~trator for. such public·• . . ' purpcses as he. sees fit .. · The Administrs.tor is required to forward to the Minister

not later than 31 · llit.i.y each yec:,r a detailed statement of the· estimated revenue

. . . and expenditure for that financi2.l year (l i;,pril to 31 Mn.rch); and not later

than 30 September a supple~entary st~tement of any further exp~nditure sub­

sequently found DE;Cessary •. :- ,These 'est.imates are fL~st discussed by the Finance

, Com.7~ttee and then by the Legislative Council, before they go to the ¥.dnister

for his approyal.

' 55·. In the peacetb1e years, before 1939, 't,he ·annual public revenue of the

Ten·itory., exclusive of sub~idie~., rr;.nged. betvreen abcnit £105.,000 to J:il40;000/

; - , ' ~ In the extreme

J:i334,SJ8, The Lnl estimate ·of-public'incom~ 'for 1947 .to 1948 a.part· from·.

s'clbsidies is placed at li321>260. It rrfus·t 'be·:rec0gnised; however, that a . re- ·

sumption o:f econor;ic llnormalcy·11 in the Territory ~fter the present boom is•

like·ly to entail a serious drop in inc one. once more •

. · 56. Public r8ver:.ues at the present time ·are re:dved almost wholly from,

indir8ct s01.irces, such a.::; :import and export duties and port oper.stions. ·Estim-.

ates for 1947 to 1948 antici;flte collectj_ons of :aoo,oco from import duties, and

'1374,000 frof.1 export duties 0n the islo.!1d products. Though the r2-tes have sub­

sec1uently beE;n revised, it maJ be noted for comparison that in the depres;sion _ year of 1931,. to 1935 income from L'!lpc-rt duties totalled only li21,882 and that

from e4 ort duties "§59,436, illustrating the gre1.t. changes in isl2nd n,venues · in terms of world m~rket conditions. Port services are expected to produce. a?out !:27, 500 in 1947 to 1948 ~ Other ;,w.jor sources of net income, applying

~lmost wholly to the Europe2n COJ:'J,:unit7, consist of a store tax estimated at

E40,000, a huilding tax (EJ,100) 1 a scilar::,r t3.X (131,100) c1.nd -water rates (I.:;l,lGO).

57. C1.J.stor;1s and export duties are ·:D-~.posed by regul.'ltions made by the

Governor-uenercd in Council. All otht::r t~es, rrt...,s, fees, ~nd dues are :imposed by ordinances of the _loc~l Legislative Council. Since 1931 the import duty has . J re1;1~~ined nt 17¾ per cent ,1.d v1lorun on British goods 1.md 25 per cent on foreign goods; but in 1940 2. surt."1.X w2.s added to the nmount of duty :r,ayable, consisting of 15 per cent_ on British i.;_;;:,orte_d gocd~ and 25 per cGnt on foreign. The principal e)p ort duties n:r:e on copra, cocoa o.nd _bananas. In 19.29 the r1te of copra .export duty ¼'~.s i_ncrE:a.sed frxrr El :to hl.10.0 per ton to meet the loss of revenue c?..use by the non-collection of Samoan ta.xes. This eJ1..'tra. 10/- was refunded to Europe:m growers until 1942, whert the duty was changed to 10 · p~r _cent of the fob value, without ~eb2.te to European grol':ers.. 'Ihe e.xport duty on cocoa- was E2 per ton unti~ 1942, when it _became_ 3~ per cent of the fob value. From,., .

1933 to 1940 refunds 9f cocoa duty :were m;:,_de _on the sliding scale depending on . • ' f • ' : ' the fob p·ice; under thi_~- scale the _entire cocoa duty was ~efunded during the ' worst years of the depression. The duty on bananas has _remained ,.at 6~·- d per case. T/46/Add.l. Page ~9

58. No'iridividual income-taxes or hend taxes ure collected at the present;

time; except a salary tax on incomes oyer !3200. In German and early' New Zealand ! tir,:es hec:::vy direct taxation was :i.mpose1 oh ~Ji .3.dult male·Sam~ans. But as part

of the non-co-oper&tion of the Mau movement the people refused to pay taxes,

and iu 1936 the Ney; Zealand Government ackno¼tledged the· situation by revoking

the tax le.w and cc:.n,celling the uncollected amounts. The.; tax consisted of !;2 ·

for a title-holder (rnatai) c:nd :l=il.16.0 for .a c0Wi1oner, and consisted partly

of·a personal tax and partly of a medical levy .. In add.ition, doE_ taxes and

gun taxes were imposed; - these also were c2noelled subsequently. In 1935 to .

1936, the last y1;;ar of effective collect:i,0n:, the incom.e from all these taxes

totalled §19,424~ itn earlier gener~l tax on adult male Europeans of hl.5~0 - has ~lso been cancelled.

,, ' 59. i~nrmal expenditures in the Territory have fluctuated sharply, and ·

follow closely the :wailable public income. For l9i-, 7 to 1948 an expenditure

of "§76, 196 is conte;nplated, including ~5 ;_000 from the acc,:mulated reserves, -

andJ;70,400 as subsidies frorr: the New Zeab.nd Gov0rnmerit. Budgets to date show

the heaviest non-recoverabl0 expenditure in the- fields of public health,

gener'll administration, public ·,vorks, and education. For 1947 to 1948, mcjor non-recover2"ble ex:t=,;:.nditures c1re conte:nple"ted on public, works (E255 ,ll4), health (I56J .,368)., education (t.36 ,400). These all represent very great in­ creaees over pre-war expenditures.' For general administration, estimated costs are as follows: AdLlinistre..tion and· Governn:ent House h5 ,31+0; Seer€..: tariat £12,180; Native Affairs £17,315~

60. Subsidies given by. the New Zeal:::.nd Government in the earlier years anounted- to §244,362. From 1931, with the advent of the depression., such ·grants·· were discontinued. As of _1945 to 1946 a subsidy of-B3,107 waa given to finance educational scholarships to New Zealand, and in 19'4.6 to 1947 §10,451 wa's given---- for schola.rships and road development. J.n the prescr.t fiscal· yea:r a total of

170,400 is · being allot_ed from the income of 'the New Zeale.nd Reparation Estates· in T,_estern Samoa for scholarships, . road development and a loca~ broadcasting

»,1vv~t em~ Th '-,,0 New z· eala.hd Government has informed the Idssi.on that all cumulative / T/46/Add.'1 Page 30

pr'orits from these 'Reparations Est.s.tss to date will be contributed to. the

Territory for developnent and welfo.re purpose~,.

61. Vn.rious overseas loan..1 vfcll'e .t'aised b:,r the Lc:ministrc1.tion in the I years 1920 to 1932 for develop:nent 1=urpost::s, totalling in all !il204,200,; ·-

These were being paid off steadily in the pre-war ;.-1eriod; J.nd the New

Zealand Government gave a grant of E25,000 to help in such loan 'l'.'Bduction.

The high revenues of recent years have now enabl0d the Territory to

complete the re::aymcnt of outstG.nding amounts, so that it is·. now co:-:1pletely

free of debt. The raising of loans by the ,'.:.dministration requires an

?.. uthorising order-in-council by the Govzrnor... General. They are made out.

1 of moneys appropriated by the New Zealand ·Pe.rlia.ment, and are issued by

the Minister of Finance who pays the sum concerned into the Samoan

Tre2.sury. Tne terms· of the 102.n hcwc to i:,:rovii:ie for the establishment

and m.3.intenance by the S:vnoan Tre-2.sury of a. sinking fund under the control

of the New Zeab.nd Treasury sufficio:it to rer,ay the lc3.n within thirty

years. In er,~ergency cases, the New Zealc.nd hinister of Fi..11.ance, on the

recorr21.end2.tion of the Coatroller and ii.uditor-G.c, _ral, rn.ay make temporary

adv2.nces to the Sar::oan Treasury out of moneys available in the Public

.AccOQ"lt, such advn.nces being rep9.y2.hl,.:i within six ,'lonths.

62. As a result of the high public income of recent years and the

curtail~ent of ~ublic works because of· scar~ities of m-~terials, the

Adrrd.n.istration res been able to build up subsk.nti:J.l resEiJrve funds. The

three financie.l ye.2.. rs from 1943 to 19L,6 each produced a surplus of•

rBvenues over expenditures of r.,or2 than E50,000, and for 1946 to 1947-the

surplus ~1as tl0J,602. As of 31 March 1947 the acwmulated- re.serves of

the Territory consisted of }417,758, of which £358,550 has been invested

in _New Zealand, e.nd the rest cor.·crris0d cash or credits in Samoa.

63. The pror,osed budget of the Tor.ritory is considered yearly by a

special advisory Fin8.nce Cormnittee befvre it is presented to tho Legis-

1-:-~tive Council. This Fin.s.nM Corrunittec w2.s .formed in 1936 -in order ta meet

European and Se.moan .requests that they be allowc;c.. to exercise a greater• .. '. ' ·.. . - . ..

' .. -· , ; ' .. ··.. - :'

. with fo1.i.r Sari:oans, and ·one: Europeari~-··· Tn.e Sam~an me.'irb.er~- -~re.. ,qppointed _· ·

by the 11:i.n~st~r. o! Island Territories ,-on the- ncrnin:1.tion. of· thi;i F_o:00 of ' f "'i.~~, a.nd the, Europen.n me.11bfr is_ si.'11ilarl-y -:i.ppointed on th.e nomination of the rtdriiini-strator .• • The Gommittee, together with the Legislat ive

Council, m.e.y.'m:1ke, recorrir.:end3:~ions regarding the esti.m3.tes, -but authority • •• • I f or their approval or ,otr.er wiso rests with _the Minist er. The vo.lue of t he . . . . . ' .... . ' - Finance Committee_has been .an open qtlestion. It appear.s to· h~ve . little influence oq•fi npicial policy• . r 64~ •_A statement prepc.red _for the 11ission by -the Treasurer 1:eviews­ comprehensi ve_ly th_e finaricic.l si tu~ti<:n of. the Tert_ito_ry :as fbllows:

11 The ·country ho.s been fin:i.ncia.lly .self-.s,1pporting s::j.nce the .

early 19301 ~ . The non_- co:.._?per?.tion (:Ma.£) movement of the Samoans·-·_

. then in existence .had a go_od de'l.l. to do with th:Ls • • • • • The scope

of the services having been restric~ed because of. !Jolitical r eas~ns, ' . , ' ' - it was t hen possible to tide over-the worst of .the depression years

by further reducing the nmount spent en q. largely unrf;~pcnsive

people for education, ni:1ti".7'e and henlth services •• • •• t he trend _

in expenditm:e w:i.s towards publ ic works end debt repc>~ymcnt ..... "Now the Eau movement , _the " depression, and the war 0,,re dcne

with, ther ~ _if a gen eral t endency to. revert to the policy of freer

spending which characterised the early dnys of the regime ••·••

so long as the pn;sent boom la·sts expansion in expenditure at any . _ / , pace will be taken care -of, but a return to norrr~lcy 1r.ust be

e:xp~cted. v.hen this happens cur present .revenuecan_dro:p,_ even

with the now wic.ened scope of import duties...~nd store tax, ·to at

least as low as :¥;150 , 000. If in the meantime. an ore<'.l.nization ha s . ' . ' b~en built up wit.h fixed charges in s'ilar i~s alone almost _ equal

to this sum, our fir.ancial .p9sition-~ill pe , ~ifficult\ • . M,fl! &;.' ~- .!11 ., 1 ,i:;...,,t, j;_

• 1!The present need isj there.fore., for a clear str.tement of

.financinl policy which will say. whether it is intenc.8d thr.t the

Territory should remain self-sup;]orting, or whether future pos­

sible excesses of working expenditure over local rE;venue 2re to

be met by general subsidies from New Ze~land, as distinct from

subsiGies from the profits of the New Zealand Reparation

Estates for specic1.l development purposes. It is only in the

event of a definite understanding that the i~ew Zeab.nd Tree.sury

will meet any deficits that the incrBasing overhead charges of

educ."..tional 2.nd Gther services can continue -without ·M,reful

scrutiny~ If it is decided that the Territory should be expected to continue to present a h'.:J.lanced budget then the ;,mount which

can be e.ff0rded for these se;rvic es v.d. ll hnve ·to be deter;.:ined in rel?..ticn to pvssible future trends in revenue.tt ' T/46/Add.1 · •. ·Page 33

III - -ECONO:t,,',IC ,ADVANCEMEirr,._... _.. _......

A. Ge_neral 'ecQn_£mi C si tuutiori

1. The economic li::'e of Weotern Samoa follows the general :ps:ctern

imnil~_lir in tbs trc;pical Pc,cific Islunds. 1~ local suhzi.stencs econ\ my,

.based on the growing of foodstuffs such us tare, coco-nuts and b1.,,nar:as,

the gathering of a.1,1 kinns ·of ceo.:::'ocd ;nd · the ro.isin{5 c•.f pork ana poul­

try, is still of the utmoct impcrt,:mcis in the life of the community.

~uperimpo2ed on this ic c. money eccncmy oepondin3 en the. e::port of u. few

marke_tablc· product;:;. · S'Jch · e.xport8 com·ist al.me.st ent irelJ ct cocc-nut

products ( copra and desiccated c·oco-nut) ~ ?OCOu.ben.ns, :fresh o.nd d.ried

bano.nac, and. a little rubber.

2. Tho participant[1 in this economy ba£.;ed on external trad.e are:

the So.mcnns, who req_uire a certo.in money inccme for purcho.se, of conoumor

goods, and. fer church of:::,eringo and a few othor necd.s; o. few irmnigro.nt

end local-born European :plunto:rs; the New 3e::i.land Reparation Estates . I which are cwned directly by the N6w Zco.lund Goverr..mont; and the overseas

nnd local trading firrm which attend to· the murketing of p::.0 oduce o..nd. the

distribution of consumer goods throughout tho Territory. Subsid.iG.ry to

the planting C:nd trading groups are a fairly largs number/of wngc.-eo.rncrs,

concisting mnir.J.y cf iirimigr:::nt 0.nd loco.1-born Europwns in Apic., but with

an increasing number of Sc.monns nlco in the town are::. and in the trading

stutiono of the outer diotri.cts. The wo.ge-sarning community o:f public

eervants and micsionuries, both Europ5cn o.nd. Sumocn, is also a consider-

able force in the Territory. 3. . The Su.moans ::.n gencru.l ctill lec.n to the sid.e of ths trudit::!.oool

cubsistcnce cconcrny to so.:;isfy their bu::::ic ne6ds. But they new c..dd u.

conoider&blo r::mge of purchws6d consumer good.s u.cccrding to thdr firn:m­

cio.l means. Particip~tion of s~moc:ns in the mcncy economy ho.D been

greu.tly increused during the boom times of the w0..1.r and. prn:;t-wo.r period.•.

M1:;.ny Samoc.n families, ,ospecially u.round. Apio., hu.ve come to depend hec.vily

on the trade store even for basic food.s. This condi tie,n1lllD,y, .lo.pee o.go.in, Sonoi::mc wcr6 forced b:.,;,ck to a grc2.t ext0rit _upon their old cconc!il;\'. J.lrl:::ct no Somoo.ns hUVE, cntor6d businesc :pursuits, bcccrnso tbo co-opcru.ti vc f:u:Lily nnd comr,1unit:7 s;ystcra under whi~h nearly ull Sc:mo:--1,n[, continue to livc c::c": not fc.:rnur individur:.l E::ntcr:pric~ of this kind. 'I'hio_ pa,ttcr:c, hc1rnver, ic: slowly ct11tting to ch::i.ngc, o.nd. a fc,w Sol!lOE'ill lo::1dcrc hu.vo roc0ntl;)'. boccmf. interc.Jted in triJ.dir.g ontsrpri:x.s.

4. The smfl,ll nun1:ic:::- of Europc,~ns fr._,m ovcrrcoo ere noo.rly o,ll co- ployed by the Adrdnistr:::.tion, tllt, Hcn-:..ro.tion Ect'.:.tco or the :n'ic:::,iono. Ths ·- - rem.~inder consist of o, few 3?lo.ntcro, :pr.:foasiom.l z.:.nd bucincso non, ,~nd crr::ployocc of two blg O'.'crociL, trucling firmD. The trond hc.s bocn for their nunbcrG to be reduced, nnd :fer thsir ;;;.ctivitie::; to be incrci.tcingly tukcn over b;r loco.l pcrconp, ::1omctin1c.s tllGir own lcc::1-bc-rn childrE:-n.

5, The loc:J.1-burn Eurcipec,nn, ulmc\2t all of :i;::::.irt-S,,mo':tn :1:nccctry, und new• incro~c:ing rc.pic11? in nmnbcrs, ore in a lccc f2xour(.'blc cccncoic citu.::- ticn. OfficiGl f'i3vrcc ohcw th,:t 72 nrc proprictoro of bu.sinf;cceo, l21 c.rG

3cvcrnrn_cnt cr.1plo;yccc, clsrko C1nd ether 0n::ployGco with ::alc;rico cf over

var;; prcc:.:.ricucly :;:'rcn p::icrly puid. tirb:::..n cccupu.tior,c, c·uch i.:,C less 2kilJ.Gd

wi'icrc tl10;1 bu.vc ir.hcri tea Eu:~cp,:;c:n frcd;cld lrmdc. Bcc:J.t.1Gc cf tbc lir;;i tea nunbcr of jcb cpncrtuni tico Jn gc·.-crr.mc:ct .'.1Ld bu::.dnccc for thcc:c loc(.;l-

frcr;i the, L:r.d. A luna cettlo:c.cnt ccL0BD dcvelupcd b;y tbc Adr:dnictrc.t:i.c,n fer ouch fanilii: •, ic Mccucc:sd lo.ter ( See J.loicc. L,::nd Sctj;lsI:Jsnt). M~r,y

Dt::.ff.s represent .,~ rac.::t influcnt:L:11 ec,:;nccic :.enc pclitc::.1 fcrce in tho coori1.mity.

6. J,n index tc lcc::.i.l oc::.rning cppcrtt:ni tiec in tl:o r_rc:rri tcry ic :_;l'fcr- a.ea by tlle fellowing lict, cor::;;piL::d frcm cDL-ry-tc,x returns of 1946, d.tc~..iinB ",,· : T/46/Add.l;. Page ~35 ·

. . • I . .' . .. , ' . . . the numbc'J:•, occupc.-qon,· a;:{ld. . cto.tps ·pf p0rcon;, ec.rning i:.1c.re th:m L~OC 1;r-r

: .::mnun at thut .tine :

·. Occuputicn· Euro:eeei.rio · Local-born -- - European~

Ci Yil S0rv8.ntc 79 30 5 12 4

3 13

4 1 Minioter8 and nisciona:ctee 8 1 .. , ! Ccr.1pa.ny o::m:::.gcrs 5 2 ' Met er mcch:inico ? wrponter z 6 1 4

Othe:rs 11 7 2

123 121 25 ======7. Api~ hue s0rv0d hiotoricnlly nn the bucineco centr e of tho Terri­

tory . Thero are four principa.l _cornoE,rcic.l. f_irns yl'~icb hove th81r hoo.d-d_uur­

tero in· Apil::.,' und opera.to· 1 _68 ct!lD.11 trc.d.iq; · ot<.:tiono ttrouc.Jlout t ho Torri-:­

tory. Twc uro overoeus f orDD which cloc op~rc.tc brnr.ctE;;o in otf1cr ci;:mtro.l

Rtcific i0l~-id o, c.nd t.~: :•.ether they c0r.trol ulnoot half t?:1e buoi noo of the

Torrit ory . Th: other two ill'€. local ccopunieo. In adci tion tbere a.r e nun0-

rous conll tr~ding' firoo, and cloo vm-iouo businoncee,in hpin su~h uo trune-

pcrto.tion ccop(.U)i$o, u notion picture c.c:mpG.n,y and. bourd.ir:.g-houcos a.nd reo­

to.urantc, run by local. Europoo.ns .of pcrt-Sonoun ancostry and. by a few ChinoEle o.nd So.oof'-no . Th€: roturno for tux-~tion purpocos D. o ·of 31 M~::r\cb l.9~-6 chowed ·

tho following no the diotribution of bueincco ,clilong firr:m J.nrgo cn0ueh· -to be t O.JCOC:

Brc.nche o of ovcrsc:10 coopanios £432,974 Locally rogiotcrod ccnpanics r;313,618 Onc-p.-:in buoinosooo 1;174?187

A .·: . m.J. 11,:< f,.r~d· ,; , t· >'··1 ~·"' a.L; Fage 36 ' 8. Tho c:xtornal trad0 of the Torri tory ho.s boon oub j0ct to vory r;-J.;.rk~

• J .; ca fluctuu.tiono bccc,u0c of cb.ungco lh world J::1D,,rkcti:ng and :price conditicna.

At tbe one e::trcrrio have boon the artir'icio.l bCJon :pcriodG. of tbc two world

wore nnd tbe irr'nodintc, poot--wo.r yof',rs, when tho dcr:,cmd for tropical products

w11s intonci vo, .:md price □ very high. Wes torn Scnoa is currently in its

fifth year of such o, boon period., and 1:tppe11rs tcdo.y to be et o,bout the

higl.:.ost point of the cycle, with ung_ucstionn,bly tho bi ghost trc.do and. incor:e

on record. A tcn:port1ry bu".;. influent:tL,l fuctor wa~ tho :prcocncc fron 1942 to

1945 of Unitocl Sta.too trco:pc, -who brought oY.trn nor.oy into tho Territory and.

provided wc.30-ourning jobo. At ~ho ot:!lor cxtrcnc hnvo been a soriec of do­

proi:rnion pcr:t odo, notably a rocoooion otcx~ing in 19~0 uftor tho firot war,

o.nd. tho great do:prsooion of tho o8J::ly, 1930's, wbon tho ccnnorcioJ. oconc:oy

cnne largely to 11 oto.ncstill with the· clooing of noGt trado otoroo o.nd. tho

.lo.poing of nuch of. tho :plonto.ticn activity. Judged by tho ccmnorci::i.l hi8tory

of tho lust thrco doc::i.doo, the lovol cf "r:.orr:nlcy1' in tcrrlD of, world mrket

dono.nd. c.nd. prico for t:to locol :producto lo holcw tho pro8ont lovcl. A ccnsi­

aero.blo rccoosicn nny, tl10r0foro, bo cxpccrtod, and. it wcultl. poccibJ.sr. a.f:fect

not only the tro.de pooition but nlso the public rovcnuoo nnd political tonper

of tho Territory.

9. The trend.a hero referred to cnn bo oec'.'1 by sc.n~J.ing t!Jc ste.tistics

of external trc..i.e c.nd. ccr:,ncrce a.-'c f1 vs yeo.r :poriodc, o.nd in the latoct ye:::ir: _,______Yeflr V.'.J.lUe of Value of Total Tro.do - E'oA7 --.:.----Lr;iport.s .r,'L ,::. :;!_, J; 1919 532,500 291,368 823,868 1924 361,418 274,803 '636,221 1929 29),938 288.,849 582,787 1934 128,117 92,784 220;901 1939 220,409 194,736 415,145 1944 391,317 460,764 852,081 1946 719,050 478,695 1,197,745

Fer 1946 tho ox:porta wero a.a follow □: ;.. ·T/46/Add.1· Page 37 c ~ . -: Product , · Qucintl'.ty ~d · · Va.luo s -- # Copra . 13, 79J: t ;ns Dociccntcd Coco- nut 56g. tons 340,669 Cocoabeuns 50,462 ' ]ona.nan 1,885 toils 297,109 172,823 ca.oes Drfoa bfl.n:lI1lls 1 86,421 .Rubber t6 tons io,118 80 tons , Others 17,827 . 6,444" . :The principul i n.ports a.ro fcodetu~~ · t ~~ 8 such us flour biscuits· and ~::~o~gether ~i ~h drnpery an~ a:r?ar~l , ,p etrol~u~ _produ_cts and:

10 ~ _Tho tro.do rolr.1tionn of the Torri tor.,~ a.ro di V

the oost pa.rt, ~o N~w. Zealand, is not in 0. pooi~1o~ to o.bsorb then in l::u-go q_uo.n.ti ties. Smilarly, n.'.l.Ilufact d ~ · t . · . · · _- · . . . ure ,.:opor s como fron.- tbo 1nd.u::itr1o.iizod . . . uroo.o of Europe o.nd North A.':1.cricc:. It in priir...'u:'il;t iri thc,30 ro6".:pocto -thut

tho trade position of the Torritcr, i o vulnorablo to changing nnrkot condi-

. tionn . At t he so.no tine tho Territory ·huo rolativoly etnblo c.nd increasi~g

tro.do rol.o.tions· diroctly with Now ZooJ.o.na. through t_he oxrcrt of frcoh

bonana.s , rubb0r, and :in-:>ro r e ci.n:tly, dec1c~o..tod coco-nut· o.:r.a. d.riod bnnc.na.'s ,

·ao woli' 0.S the inpcrt of va.rioue food.otuifc. Ao of 1946, tho trndiJ?B

r ela.t1cns of thEl T6rritc:ry. were o.s follcwo :

Countr;-v . Exports· :i:.por!!l (in percen~ne;ce) (in pcrc0r.t a,c:0G )

N6v1 . Zealand. 37 · 36 ·. United Kingdon 30 22 Unitod Stutes of .America. 20 14 Au s tro.J.io. 7 15· .Other 6 13 .'

ll. Copra huo lor.g boc,n t he eto.ndnrd cx:port-, and wo.o u_ntil recently o.J..ooot tho "mcr:.oy crop" of the Somouno . Official estioo.tos nude in 1~8- . ' . ' / plnced the t oto.l Sm:ioo.n coco-nut plantings at 40,914 ocr oD·, nno. Europonn ho.ldings ti.t 12, 035 acres . No ~yst0~tic ropluntins cf _o;ny 1:c1porto.r.c0_.. bo.s boon dono 21nco 1938, o.nd moot of tho .·crop comos frco troos wh_ich ore esti­ l!llltod. to be · frcn 45 to 75 yonro old, und so aro np-proacb:!.ng tbo 11mi t of. their b earing period. Tho SOJ.1can output-of copra comprtoos nppro~iI:!£1.toly

85 percont of the 'j;oto.l ffZpor~o .-· Almost tho -wholo of the Euro:poon copra. '.P/'46/Add~l Page 38

output comos from the lw.l'ge plnntat:I:-6:ns .yhi.ch wore formerly Ceman om:~d. nr.a

now a.re workE)d_ by the New Zco.lo.nd·.·Repti,:tut:ion Eoto.tes. ' It is :m.ocho.nico.J.ly

driod., una ~her0for0 of better g_1,o.J..~ty thnn the So.moon C0J)r..l. which io sun

dried. Total copra production hus failed to rioc significantly during tho

lo.st twenty yours.

· 12. Since 1942 nll copra bets boon sold undor contract to the British

Ministry of Food. 'rl10 cvrrent price is ~46.15.ll u ten, fob, vbich io

sovernl tines greeter than t1l6 normccl. :9ro-wetr price. Of this ru:cunt, grcwer;;

. get I;28.16.l1 to Jh~B.5.7- uccord.ing to thoir diotonco frcm the pert; the

merchant~ 3ot o. profit of l52. 2. 7, the ox:port duty of 10 IJcrcont io J;4 .i3. 7,

c:na. tho r0st covorc handling cLungoo, inourance, · otc. At tho low point of

tho dc:prc~rn'ion copro. foll in vcluo below :S7 ci, ten fob.

13. '.L'bo cocoo. lnd.uotry is b:.1sod en tho fortunate feet thc~t n hybrid

(Criollo-Forc.Dtoro) typ0 whicb co:volo:pod in Sc.moa 1 is ::.ino;.-.g tbo worid 1 o finest

q_uc:.li ty cocoas,. nnd iG in s:pocfo.1 dcnc.nd fer .bl<.nding pu)?flqG.os. At first

1 t wo.o wholly o...-ri E::ntcrpriso of tho Europo.:m plo.ntorc and of the Rcpo.ro..tion

Estatss. But Soncnn grcwer::i hc,vo gr.:1duo.lly, to.kon to tho crop, a,na._x.-ocor.tly

their she.re in tho 0:xport total lms rison oherpl;- . Ao of 1945, 41 por ccr.t

of the cocoo.bee:,no wore frcn Srun.oon holdinso. No official ostirito io nvnil­

o.ble on the oxtont of S,,:rao~ cocoa. plar.tings, but about 2,500 acres of

coco:i. ore wcrkod by :pri vo.te European plc.ntcro o.r,d by r::lissibn bodios, OJld

about 2,000 ucroo t;., the :Rc:p,1rntion Estnteo. Sniiorm grow.:rs ho:ve learned.

to fernont "o.nd elem:. the coco.::.bcano, but thon thoy dry tbcn in ·tho oun

· instoa.d of ~Uln-d.rying tt... o:ci o.o on the Europe::m plo.ntutionn. The governnent

supervioeo·tbo grucing ur.d loccl':price systen, but the co3oo. is oola en by gonercJ. world nnrketc in o.ccordo.nce with oJJ..oco.tiono ·a.gr0e>d to/the Inter-

r.o.tiono.l Errsrgoncy Food. Council. Bcforo tbe wo.r pr:!'.cos fi::r cocoo. fluctuated

· urcnd. :§60 a. ton} thoug,.'1 in 1934 they foll belcw r.29; c-urrently, because

of world short2gec, it haa coo.red to nenrly 1;200 o. ten.

14. The export of fronb buno.nus to New Zecli.md, ao well as other

adjacent isl2nds wus ooveloped under u Ne; Zenlnnd Gcverr,pent scheme which T/46tAdd.l, ~ Page 39:

/ . begnn in, :1.928. ~o;y: ure -handled .P,ir~ctly. by the .Adriir.iotrnticm and the !. Repnraticn Eotqtes, instead o~ through the trading firms ns in the c~seo • I • • ' ' •,\ • V

of coJll,•o,. mid cocoa. Ship:c.ento ore_ oold to, the Internal Mc.rketing D?po.rt-

\ nent in·New Zenlnnd. c.t 0. fi:~rnd 1'cb price, curre:ntly-1,3/7d. u·cc.se,- of

wh~ch the grower gets 6/6d., the cc.se cooto 4/6a .. , a tax totoJ.o 6 d.,

and t~e boJ.nnce · ovcr,.,s ho.ndling coots •. :The banana tri::ide fell. off during

the war, but is new recovering, ru:d n fnst·v0 □ £1el :with r0frigoration ,"' , . ' - ~ facilities is now carrying the fruit to New Zenlnnd.. Before the ~o.r ...... European plo.ntero contributed c1 conoid.erqbie shore of buno.nao for o~port . ' . ' - ' - . .

•, • > ' ' ; • •

nonopolized tho trnde1 _but E~ropeo.n pqrtic1pntbn is :!.ncrensing ?nee oore (it 'was 12 per cont i:n.19½6). Bnno.nno -ere· an idCw.l 1uick crop for the ~ L • sI:JDll plnnter, cmd future grow~h of tho trO:a:o ic. linited. or.ly_ by the uv2il­

ablli ty. o~ n~keto tn New Zenlo.nd, nnd by probleI:10 of. trunopori;;.

15. The rubber plru:..tntions dnte fron Geroo.n do.yo, and nre·cntirely

under the mnngooenh of. tho Beparc,,tion Estc.too. Production. pas .been

oporo.dic, o.nd in scno yoo.ro non-cxiotor..t .._ But world .shcrto.ges have

stinulnted proa.u_cti_on frcra the beginning of the war period, o.nd. the present

output ·of o.bout 70 to 80 tono o.ll gceo tc Now Zoolund,_ The docicca.tod

coco-nut and dried bo.nano. industries have beeµ d.eveloped whdly by -J;;ho _,

R~puratlon Eotntes, tho first· in 1942 nnd the,oocond in 1946, n~d the factories gi vc employnent to about 350 Sanonno. Their output is. t:::oJ.,d in

New Zealar1d. j 16. Tb.e livestock indu£1trieo ore, of lcco]. l3ignificru:..ce. P:tgo_ ntd po~ltry are inp~rtc:nt .in tbe· trnditionc..l ~nnoun econccy, und. hor£Jeo. o.ncl I •-. • ' • • -

cattle are now nunerouo. Cattle ore used by plo.ntctipn ow.ne:r;EJ to k~e-p

aown growth. They uloo :provide fresh beef for loco.1 consur:iption o.n.d. hides for export. The Repuratior~ Est:i.tes nlone bo.ve ocue 9,000 hea,d of cattle,

. . . - - - of which about 1,200. ore killed e.nnuo.lly for .neo:~;; · A a.airy' 1o ru:p. nefU'

Apia by n Europenn. lo.nd.-holder, nnd ou;pplieo fresp milk to _the hoopital nnd to :private consumers, T/46/Add.l. .. Page 4o· ': ; :_·-:: · ·.•

.17. ; Mt:i.ri~e· .praduct0; o:ro go.th~~~d ;by.:·tb~ Sati~atio,· but .. ·.;c~ef~iol f1ch-

1ng ,1e so fo.r. ~osJ..igible, und _ind00d 1( qf ·autbuii :pct~nt~ni. ._ 1L1J.)orlonco '

except f.Qr local I:!L!rketo • . Forcoti:y _roso~rc~s ·are lioi ted, :· but . there ore

some gpod h~dwoodi:r, . Two ·oo..wn.ille a.re ·nc-w' bei!lg 'cpero.ted.loc~·, one by the_Re~urnti~n Eetuteo on 'Sovu1 1 i, ond the otber.oy a Europea.n ·holdor at .. . Ap1c. . No z:itne:rols. of comercial. vi:i.lue e:xrs't . Sanoaris a.round Apia. sell ocne

hnndicrhft work,· .but no · overooo.o outlets ba.vo beon crgruuz.ed,

B. Gover.ome~t crgo.nizotiou

18. In the eorly days of the, New . ZeoJ.a.nd Admniatrn.t1on a. Deportraent ''. .. .. ' . . of hgriculture existed, but this ceaoad to junction in tho retrenchnent ~ y .. p~riod of the d0preoaion. ·.Innteod th0re io cur:rent_ly a Produce Iospector

under tho D0pa.rtocnt of Treasury, Custcmc,· ~tc . The Produce Inspector he.Lee .. lea tb0 be.nano. trade in co-opera.ti on with the Now Zoal.o.nd Ropo.ra.tion Estates,

Re a1oo -providoo for tho inspecti on of all other products for expert in ; . . ,, order to r:o.intn.1n sood standc.rde, and inopecto ugricul turol ~o.ndo o.rond Apia.,

pr1ncipaJ.ly to check the broedir.g of' the deotructi ve rhinccoros beetl~.

Revival.cf the Departcent of Agriculture with wholly_Sru:iocn personnel boo

been extensively diccuscod by the Sc.n~uns since 1945 , 'but the ·rotter hao

not yet boen agreed on. The Administr~tion hc:.s in the oeant1oe give this

plu.n itG officio.l 8upport.

19. Under the Nutive Deportment there are 14 elected pc..rt~ti~e s~on.n _· • • J • of.ficic!lO called. "pl::into~iono i1:rnpoctors" {:Pulofo.' r.:.toc.0'..i) . · Such :positions

hn.ve existed for mc:.ny yeors. Thousn the incumbents have no· t echnic:::.l

t r o.i ping they ur e supposed to remind o.nd to some o.:ictent. otinuluto .tbe coo- .

muni ties in th.eir d.iotricte to cu.t·ch tbe rhin0ceros beetle, cJ,ecin up their

gardens periodicnlly, replant useful. trees; and. otherwise nu:d~tt1in good

ata.ndn.rc18 cf _agriculture. In· pru~tice t~ei~ position's are: now lart3ely o.

sinecure. Before tbo Mcu period each villuge was expoct~d to collect o. cer- , . . { ' ' . .

"' ~ ,. ,, . . , ta.in weekly quota: of beetles , and. tl?,e pl:mtution inspector ,-o.o ol.:pposed to ' • • • • ' .' !' ~ .. .. gGt these "~~etl~ Returns" from every '1$lyor (Puie~~ 'u) -in his · dl,strict, ::.nd

i • • '.. • ' • ' , ' T/46/Add.l Pege 41 :

report these to the AgricUlturo.l Depd.l'tfu;nt or ~0sident Ccmo.iooioner. Further-

nore, in tbe Geroo.n times, · the lo.w rec;_u:l.fed that .corto.in new crops :ma.

trees be plo.ntE;'d regularly. No clooe strp~l:'vioion of this kind is riow :c:1uin-

to.incd.

20. J... number of other government officers and depctrtmonts have respon­

sibilities in special economic fields e.g., Public Trust, Lo.nd.s and Survey,

Public Works. The Public Trust is new nssocfoted with th& Justice Depnrtine ..

ment, and there is o.lso a PLJbli c Trust Invostpe.nt :Boo.rd.,. with the Chief Judge 1

ns Presid.ent. · A Pootc.l _Sn.vings Bc.nk is available to Sni::ioo:n o.nd other deposit­

ors, though only o. limited. number of Sonoo.ns yet lla:ve the hc.!.bi t of banking

money. Bunk depocits have rioen ·shorply since 194·3.

21. In the. wo..r veriod, ioport, !ino.Ilce cm~ pric6 contrc)..s were insti­

tuted, and still continue, Jnport licenses 9,re currently required for certain·

goods imported. from New Zeo.lund, and for o.11 good.s irrpcrted. frco other coun­

tries. Finance control provides for the c.ontrol o:f remittances c.md of exports

overs ens, other than to New Zc&J.:i.nd, a.nd prevents 81.Elou being used, ns a

11 b;::1.ck door" through whicb capito.l could otberwise uova froo New Zecdana..

LocoJ. prices for foodstuffs ond ot:her 0ssenti l, ccz:-nodities are set by o.

Price Tribun&J. •.

C. Land·

22 •. h.pprcxi:c:ic..tely four-fifths of tbe lo.nd a.re1.~ of the Territory is etill

held by the So:r::ioans in c.,ccordo.nce with their own custcmo.ry systeo of .lo,nd

tenure, c.nd is clc.ssed o.s "Nuti ve· Lund" •. The le.goons, reefs nnd. adjc.c0:nt I , r •

seus, s~ i:oporto.nt to the Sc,,p:ioan ecohor:zy, · o.re also aubject to such cuctcnory

titles. Of tbe remc.ining fifth, which bo.s passed froo S::u::100.n ho.~ds; raost is

"Crown LO:nd" o.nd includes the Repnrution Estates, 6.n

Lund." owned under fr0ehold. titles by pri vo.te pc,rties, includ.ing' the missions•

· The following statistics give o.n ind.ic:i.tion of land ownerchip •

. Native Lnnd 581,370 acres 80.5 per cent Crown Lc.nd 103,630 acres 14.o per cent· Euro:peo.n Luna.· 40,000 acres 5,5 per cent

725,000 acres 100.0 per cent f " •' .

. T /4:6.lli._iJ.4,..f-.' Pag,f:.42< ,,: ,

2,5. Sales of l_a.nd by 30.Donns to outsiders :.c ccurrea .in• ·so.rly

esp13cio.lly r ~und 1'pic,, ,?ut :w?ro_. bolt:M -by.- -tlie Berlin Tro,ity of 1899. ·Tliid

Tre::.~y. c.llowed ;further s,l~€s oply.jd.thin_.t~e Ap.1-t, bunicipo.l.i.ty,: tboueh rt ...... •, , . ~ , . peroi ttod leases elcewr.e±'e ~ 1... Lund. CcIJOission wo.o set up to deter:::tine t1ie

vu.lidi ty of n.11 outsto.odi_ng l11nd clctiLla by, nnn-Sno.oc.ns . The· legitirete

·. clo.:i.tlB o.s r ecognized by th..:..t Co!Dis.oion :provide the basis for tbe_ pres~~{.

' ,, .European freer.old k.nds • . The Germ:~,n o.uthorities extended ·the rig.ht to bvy' .. . ~ . -plunt~ti~n _],c,nd.-s, eopecin.JJ.Y, in the Apio. n.rec., but only und.cr · cff1c1c.l · · . , , control. In turn the Senoc.. Act, 1921, mnde it unlD:w.ful for S:nc2ns to \

:llienc.tc "n::ti v,e la.nd" oth~r th~sn t o the Crown, though the .Administra.t'or. ~:,

wa.s given pover tc• ..;,pprpve ·of _leeses up to forty yeinro . A c"o:rr6spondfrig .. :·:

protective prc:vis,ion is wri t'tEin int0 the Trusteeship J..greenent . The present

. thre~-fcld clc.s~ifice,tion of land. o.s aeen .::::.bove i s b:..:eea. on ·the S.moa J..ct'.

The Act olno pr~vides thc.t :;;,11 "zv;.ti ve l and" is "vosted in the Crown o.e

the t ruotee of :the boncficiu.l cwners thereof, und. oh':?.11 be held. by the . . :, ' Crown sub,ject to the N'..:,ti ve Title ond under the custcne und. uso.13e~ of the

Scn' 0.J.n ruce" .

24 . The L<'.!ndG and S1.:rvcy De:pf'..rtr:1ent b.a.o the to.ok of k'oeping reccrd.B

of ownership, n~.:.kinG survqs, .::nd bc, ndlinG other no.t tr;rs rel.nting to l::i.nd.

Disputeo over S.:::.occm titleo _are cdjudic:::.tod by the Land and Titlec Coul;"t.

S2.not:n property custcir,.o are coople.x, inV•)lvin13 distinctions between "autbo-

. ~f{y" (pule)' ri.ghts, which are ~ss0ciuted witl1 the liier.:.rcby ?f ~ tiHe_~? . . . ,. . ' end "use" rigbts which psrtu.in t~ cc~aunity t,nd household sroups. Little • r• O

n.ttenpt bc..s bo~:n ~de;··n.s yet tc convert custc.c.ury S:.oc.:m titles 'into wri.tt_en

titles: thrc~gh lego.l r egistration of l;nd-c.~nerchi:p. Such o i:::ove, a.1reo.ay .

. ' . carried. through ccnprehensi vely in sone of the ctho~ Pccific iolnnde are~s~

. ; ' ' ' i(-:' still repugnar~t to the .Snnoans, who continue to be secretive a.bout their . . ... f.:xii:ly property, rifil'its.

.' .. ~ "', ' 5.3 per cent cf th_s ·totcU; ~ea. of the -Terr~tory, is wo.steil:nd,- : cc□priei_ni.i

steep oountc:inti ; , l:a.v:o: oec:a:, . q.nd. otfrii"ppcI.f:•'·£°yp~s of country • . An eo.rlier .. T/46/Addol · Page 43 ·

officia.l survey of J.o.nd util:tuitfcn· to.de in 1928 estimted. that, of tlie

581, ;370 c,cI·es classed. as "nc·plve ltmd1\ hbout 2)2j 770 [!,c:;,~ec are unculti­

vo.ble o.s being waste or :1.n:rerlotl l:11ld i' Of the cultjvable portion,_ only j about 55,500 acres were being cultivated n.t tho.t tine. Thoueh Somonn

gardens have und.oubtedly increased in number subse;_uently, coincident with

the rapid population grc,wth, it is clear that present lci.11d utilization still

fn.lls far short of its full posaibilities. The only 1J.reu where the village~

d.o not hc,ve more er l.eso extensive hinterlnnds sui tea. for o.dditiono.l culti.:.

v-o.tion (if :proba,bly l(:lss fertile becc.uoe tbey t!.re inland) to meet-future

needs, is on the ncrth coo,st of Upolu. The problem for thesi latter vil­

lages is u serious one, as this is· the c,reo. of densest Sciicnn po:pulhtil:m

~d of the nost rapid nu.nerica.l increase. It :l,i:3 ccn:plica.ted by the f.::::ct

_ that this nortb. Upolu region has also been tl:ie n:.in creo. of settlenent by

Europecms and hence cf_ extensive sales o.nd leusas cf lc:_tnd in ec1rli~r do.ys.

26. Of the "Crown." c,;,nd 1'.Zurope2n" l'.,l.llds, t;talling in o.11 143,630· ·

acres, rougbly half lies in this north UpcJ.u Gree. Of tb6 Cro-wn lands

75, 36/J ncres 1 er 73 ])er cent of the totul urea.,, are held. by the New· Zealand

Re:puro.tion Estc,tes. The Est:.tes li:.md is nostly too :pocr for corJJerciul

developoent, bu_t 9,836 ~cres ere und.er cultivc.tion directly by the Estates

n:mugerwnt, while 4,681 acres ore loused to pri vc.te Euro:penn pl:::mters.

Of tte European freehold land [1bout 35 ,ooo acres__ are owned by :privc.te

persons and ~,coo acres by,the nisoions. The official survey of 1928 showed

2,928 acres of this lnnd as bein£ und.er cultivo.tion, nearly all in north

U:polu. In addition, severcl hundred acres of 1!n::ti ve 1Q.nd11 11::i,ve lieen , lensed by :planters und tracers, pu.rtly for t.:.&iculturG.l purposes •. Estim-

citing :frcp these figures und fron other uvailo.ble evidence, it may be s::::.id

tho.t sonewhnt under 20,000 o.cres cf Crown o.nd Europc:m lend nre currently

under culti vG.tion, or ubout 14 per cent of the toto.1 o.r6a.

-27. The ,f-a.ct thnt o. lcrge pccrt of the ulieno.ted lo.nd is not now used. htis inportunce in r 9 lo.tion t_o the prcbleo of the increasing population :pres-:

sure in north, U:polu. This pressure concerns the Sn.noun villo.ges of the T/46/Add.l Page 44 '

region, but it is ulco signific&nt ~s regards'the welfnre of the rapidly

grcwing er0up of landleso pcrt-Scnonns · of Europe:.!n status:- Alrec:dy sever::u

s:pecir,1 cases of. lt;.Dd uo. juctment hnvc, occiirred., notc,bly the .rer:1ovcl during

the wur of two Scr:icnn vill:J.gec to mke wriy for· o.~ :1:trst:dp; :here non­

S:mo-ip l.:.nds were. ·cotc.ined by the Adrlinistro.tion to resettle these ccmnuni­

ties in 8.d J,cent r.:.rer,s. Ag~dn, in ths ce:.se of the ileisn lnnd settlement fer

rurt-~o.r;iJc.ns of Eurcpec.n unce.stry, an ·urea cf 1,319. ::i.cres wao set aside

frc,n unused Crown lane r.nd ::,..llcttea to the settlers cm· 11 leasehold be.sis

( see ·Iu.eiscl Lc.nd SE-ttlenent) • Since 1923 the .Administrector has. had outho­

rity to u.11.ct portiono of a.ny Crown land for the· use cf SGI:i.onns a.s new

vill:i.gu or gc.rdim cites, ~nd ttin hc..c qeen done with.. c.t1all lots in a_ni;r:ber

of insts.nces. f.. c:r-£:11 oun. hns uouc,lly bee? cho.rged per o.cre for- such lnndn,

In 1930, too:, c. gre,:.t QI'eD. of 18,000 :.::.crE-s of unused Crown land in the

Fale[!.lili dictr:!.ct on couth Upolu w~.10 .returned wlthout charge to the foraer

Sc.::ioa.n cwnera. · Such c.ction setu a :precedent whicb pc:y be foibwed in future

tines ~s· populQtion prescure beccnco seriouo inn.recs other tbun north

I . Upolu. In :-ieneral. the e:fecti ve openin{3 up of now l:::.nd c.::.lls for the

cutting of rcudc.

D, Lc.bour

28. Sumer.:. hc.s lone hod. lc.bcur problen.s of o. scnewbnt special nc.ture.

They u.rise frcn the unwillinsnesn of nest S2.no;J.ns to encpge in regular . . wo.ge-eo.rning work, and t!10 conse1uent introduction of_ contrnct l::1bour f:ro:ci

outside: Melo.nesia.ns from tbe Solem.om:: and ~spocici,lly Chineoe. It is fo.lse

to say, a.c scne cluir:i, tha.t the S::ncrins do not work. Their la.bour, however,

is traditionally performed. in co~opero,tive fcaniJ.,/ ,.na community sroups,

under the direction of the ~ ( ti tlE. .. ,nolders) und. follows the irregulur

rythrnE of economic l.Uld other needs. With few exceptions as yet, SDLJ.oans .. will work for wogeo in c~sunl ferns of eoployment o~J.y. This has not ans-

wered. the J)eeds of cc,]J)!;lercio.l o.nd :plantation em:ployers .:for a regular work

force whicb can be trained in more skilled tusks. . T/46/Afld.l Inge 45

29. · The intr;:iaucHon of. outs:idk 1.1·ocu1" sto.rted. 1n the dnyb cf the.

&lraocm Kincdcri when Gernon. COI:JDercfol intei:4esta brou,ght in Melnnesic.m

workers; nna .later Chinese. Ii 1903 the Ge'rr:1C.n Governnent oystemntized

• I the recruitreent.of -indentured labour, mainly fron. Chine in collnborntion

with the . Chinese Governnent. i,.o of 1914, when Hew Zeui~md.. tc,~k over, there

were 2,1B4 Chine~e Lmd. 877 Melunesio.no ·in tbe Territory.'

30. The New ZeoJ.o.nd · G·overrment .wns in principle c:p:posed. fron the

first to the use of indenturod Chinese labour,· for both economic una·oocio.l,

. reasons, nnd Scnoc..n opinion llo.,s Gl.so been· ugninet Chine.oe imisr;J,tion.

Under pressure cf loc1.1l c:trcumstt.nces', however·,· the system wns temporarily·

continued, end new xecruitinent of Chinese under official auspices ensued.

The. nunber cf lnbcurers was kept to a. m:lnimun, and they were allowed only

temporarily residence, fur three yea.rs. In 1925 u. modified 11 free labour"

systen was instituted, without~ pennl clnuse o..nd-uiving the labourer the

· rig~1t to elect hie en'pl'oyer ;but the 1-'.J.bourerc' were still -und.er· u. three..,.

yec.:r terr:i.• of resid.ence only, and were linited to specific t;;:pes of w:ork.

This systeo continueo, ~long with very stringent officinl conditions cs

to. employnent,. wo.ges, o..nd. welfo.re. In sci far a.s the Chineoe Go,rernment

is concerned, the interests of the Chinese populo.tion ho.ve been protected.

by d.Chinese Consul nt ~pin.

31. Since 1935 the Lcbour Governnent in Now Zeo.lund bas followed. o.

de'liber~ite ·policy of r0ducing the Chinese Labour force, with o. view to

their eventuo.l ccraplete -re:placer.ient by 1slo.nd workers. This ho.o aroused

bospi tali ty o.ncng sor.ie cf the plrmters o.nd other enployers. Du'rines the

wo.r emergency-the reoc.ining Cpinese l:;ibourers were re

Of cocoa a.nd rubber :production. their :pre0ent total of 290;. a.bout, 126 ho.ve expressed. a. desire to :i;-eturn to Chino..,· and will be repntri::.i.ted when

. trcmsporto.ti0n io uvo,ilo.ble. The reminder wiJ,l be allowed to otc.y _on.,

but .will continue to b_e restricted to· o..griculturc.l labour. ilreci.dy an

·increo:sing proportion are too ol~ to work. Some 25 o.re pensioners who

qre pa.ia.15/-a month··out of benefit funds built up1 by O:t:4.'l.11 deductions

/. ------~------. -- T/~6/ldd.l Page 46.

from the lnbour :pa.y~roli.s i · Now :paynentw.to thio fund,- howev6r, bo.ve recent.

ly been ended. Chinese labourerp Dre currently po.ia 11 CT!.ninur:i. daily wo.se

of 4/ 5d., suppletiented. by certcdp -peiq_uloi tee, but :m.o.::t (f then receive

more, "because en;iloyero ha.ve .to cc:ipetq for thei:l;' service8 ~ .Tbe few sur­

. vi vtng Melanesians "1-re nluoot exclusi v6ly .working on the Neiv 2ec:J.a.nd

Repcr~ticn Eotc.tes, ~o are cone cf the Chinese.

32 •.. The prospecti;-e declin0 in nunbero of t:his SD.J,ll ren~ining con-

. tro.ct lu.bour force bns brought to the forefr0nt the problems uosocfoted with

tbe use of locc.l labour. Their solution requires a.n understc..nd.ing of

Sa.noun wc-rk orio.nizu.ticn end inc_enti ves, anc'l o.dapta.tion of these to the

necessory to.sks,to be.perfcrned. The b~sis cf Sno.can work is wb.'.J.t ccula

be culled vill:;.ge lr.bour,· tbo orou:p of younc nen without ro.nk (to.vle 1c.la'o.)

who work as ndberentn of the ~i (~i~l0-holdero). J3esideo cuctonury . ta.oks 3uch c.s rl:i.r..tir.G o.nd ficl1inJJ ouch vill£1Ge lc:~bour r10.y work on ::rpecinl

projects ouch r~D bu.1ldi.ng L1. church, with or wi ttcut poy:;ient 1 The ~

mny nl3o send out lubour CPTIGO i'rcr:l the vil+n,e5e to '."ork on roa.d. construc­

tion, cuttini3 c:;pr:~ en Europe:::n pl~:nt.'.J.tions, and. other wc.13e~earnin5 to.sks.

Custcri..:~rtly _tre pt_;,y goes wholly or P'.1.rtly to the nci.tcd os contributions

to,tbe noney needo cf the croup for which he iorcGr;)onsible. Relci.tively

unokilled. do.;,• lubcur of this kind is new used extensively by the Public

Works Dep:.:rt::ient, by the Bspa.r:i.tion Estntes, nnd by :planters nµd_mercbants,

It i0 .sub,ject to o. trenendouD turnover, and the level of efficiency· is very

low, so tho.t it is also ci costly_ form of lc.bour.

33. ii.t the s2ne time .the nunber of Sanoans, toGetber with other reoi~

. dent Pacific islo.nd.ers, who ho.ve broken o:wuy frcn this trad.itiona.l work

systet1 cf work is slowly increo.sing. With. loci..!l Europeans ~-'f part-Sumcnn

o.ncestry, they &re gradually supplyinG c, \fork force of n9re individual o.nd

re5Ulu.r charo.cter. These workers tend ,to lean t.owi:i.rd certnin types of

occupation in the .A:pi;J nrect, where they nlreaay fill an impreo£Ji ve liot of

occupations,-. Such :rereons could not support themo6lves and.. their fnnilies

on the current. WO..Bf'.'O for ,unskilled work, ubovt 5/- o, any. :But they ITJflY be T /!r6 /Add. l ·Page 47

attracted increasingly intc tbe more skilled occi.rpntions which Gffer

hjgher ;ay o.nd nore ~restige. This seem□ to offer the moot prow.ioin0

line of develop:::1.ent t:) colve the latour need8 oi' t:t.e Terri t0ry in terns

of wr.irkers above the unskilled level. The apecffic enploynent si tu::1tion

in ·t=;overnnent iG a.iocusoed in ::mother oection (see Personnel).

34.. '.I.'he w-::irk of the f:Jrner Labour ])epartI1Emt is now bundled uo pc,rt

cf the dutieo of the Jlmtice Department. Recently the New Zeo.lana. Govern­

nent has extended the up:plicction of u nu:r::tber of International L:i.bour

Orgcnizution conventiono to We2.t'ern Sonoa·.

E. The .Aleisc L~nd Settlement.--- I To provide enploynent and hcnes for lo.ndJ,e:::;s local-bc,;rn Euro:peuns

- of port-Sunoo.n cmceotry,. the Aar.inistru.tion · lc.unched_ Ct: l:.md settlerae1.1t

scheoe in 1936 nt bleisa., scne eiGht mile □ frcn l-c:pio.. It first sub-

di vised. n. block of CF0wn ln.nd cor:iJ)rioing 630 acres of virgin nbuch" into

ten sect:tons, ec.ch of o.pproximtely 50 a.creG, cmd two of 40 ncrea. Ln

are~ of 43 o.crec wns o.lso set ~sid6 ao Q reserve, rart of which hc..c been

sold. or lensed to mission bod.ies for church c1nd school purposes. Two yeo.ro

lo.ter a second. adjoining L~ree:. of 689 c::cres w::io purcbuoed by. the ./-1.duini.3-

tro.tion ::'roo the Now Zeul:.:md Repc..:0~-t:.'..t!l'. Ecto.teo. This was subdi viosd into

,24 sect'ions ec.ch of sone, 23 to 30 c.cres, with 46 acres held o.s o. reserve

for church, school c:nd other purposes. Twenty-two settlers were pla,ceG on

this second subdivision.

_56. A board. called. the ileisa Lc"nd Settlenent :Bourd ws.s oet up con­

prising the two European oenbers of the Legisl~tive Council, the S8cretury

of the ..A.dninistration, the Genero.l Mcn:::;_ger of the N~w Zeo.ln.nd. Re:puro.tion

Estates, the Chj_ei' Surveyor, f.our pri vC1te plo.nters, ecrn1 a busineos nan•

The firot sections were nllottea by b1.:;.1lot o.nong approved o.ppliccmtG on n

leasehold. bo.sis for a tern of 33 ye,_rs with right of renewal. Certain nonoy

udvunces were nade, to be repaid with interest o.t 5 per cent per lmnu:ci over

twenty yeo.rs, and. deductible_ in (;mull o.raounts frcp be.nan.as sole~ under

Gover11t:1.ent achene. No ronto,1 wao charged. tbe fir qt yeo.r, Qut1 subseg_uently , T /l1r6 /Add.. i P.,e.g~. -~~8 · it wo.o to be at the rate of 5 per cent of the cn:pito.l ~10.lue (which wc.c

placed at J:;3 per acre) of the nreo. under cul ti vo.tion, i.e •. 3/- per c.cre,

It VcJ.s ho:peo.. thnt 10 acres would. be cleared and pl~tec each yenr, so

thctt oJ.l the land would. be under cultivo.ticn l;l/ 1944. To ante, howeverj the

uv0ro.ge is only 15 acres of cultivated. land, o.nd the m.:1::,::1:r::mr:i. is 25 1J.cren.

The later settlers were given three year~ rent fre0 and were supposed. to

cleo.r o.nd plo.nt 5 acres n:rmuo.llJ.

37. Tbe cetsic agricultural pl,m of the' settler.ient, ap~t fron sub-

sistence fnrr:u:r:g, wo.s to uoe bun(.1.no.s no th.e co.oh crop u:r.til plunting8 -:r,1

cocoa. c,:ine into prod.uctie,n, Lifter wbich bu.nano. production would cease en

tho.t po.rt of tlle lL'..nd. The goverm:ient produce inspector and mer;ibers of

the Bcnra vioited tbs settle::::ient frcn time to tine to cdvise the settlers

on ~.;.g:riculturo,l nothcds. Th6y o.lso o.rronged :for the ,mpply of plcnts o.nd

se6ds, tocether with tools, at wholeonle rates. The RmDn Catholic .Missicn

8tn.rted va.lunble dencnctration gnrdeno. Road,8 were built, and. a 1300d water

supply VQ8 conpleted in 1946.

38. Unfortunutely J a.cccrding to the official recordo, nc.cy of the

settlers prov0d uncuited for work on the lana.. Scm.e left the ln'bot.iring

tc.skG to their faniliec or to hired Sononn lnbourerc, o,nd the ']_ucli ty of

culti vo.tion ::ma of tbe :products fell cwo.,y. Mnny of the nen left to seek

work in J..pio. or went aurin3 the wc.:r to work for tbe JUJ.eric:in .forceo. In

1941 the Eco.rd c0.ncelled the leci.se of• one oettler who was not ccn:plyir..g with

tbe ogre ea terr:::::::, but d tbe request of the other oettlers he wco finc.2.ly re­

inoto.ted by a. bure nu.jority of the Bcurd. Since thc,t tine the :Bc::i:rd ht::.s

pro.cticQlly ceuced to function. Of tbe original 12 settlern ,· only 6 now

remin, o.nd of the lcter 22 only 14 rer:::u..lin. Scne -sectiono ho..ve chc.nged

ho.ndc three or four tines. All but 2 settlers ure in arrears cw regards

repnyoents due to the Acniniotr0tion.

Recentlv interest in the 0ettlet:1.ent ho.s revived once nore, largely 39. V ' through the initio..tive of tbe cettlerc themselves. A useful urrunge~ent bas

been no.de to send o.11 cococ.beo.ns to tho New 'Zeo.lund. Repo.:i;:O:tion Estates for

dryin13 and proceosing, nna 10' per cent of the proceea.o is then applied to · _· . -.-- ·'· ,T/~6/P.,~d.+ ·: ·. · _. · · · Page, _49.- : . \ . . , I out3t::'.nd.1nG ae:counts.~- In ;~dd1t:ioh· t o: tbe ··uc uai -~:~l e. of ·sreen be.nano.a r~; . ·. • • ' • • • • ' • + ' • • • ~ ~

f .::i.ctory • ..

··40~ On 20 NoVer.iber 1-9J.to,; by the·-Sunoun-Ale·io.1 Council ·Regi,ltitionc;

-1946, t he right wile· [!iVen ·to· ele~t n ouy; r ._c.nd covncil wit .Ir pcwer to :t::::t)se . . ' by-lo.wc : er the .. oettleoent . He_o.lth work; cchooli.nB, a.pd: other cociul. ·., . '· . servrices ere c.loo·_ bef?(;.' ib.p;r.cved, . • _I n o.i1 ·such ·wcyc the· Ldnini ot~c~t i on. ;i s now .·

r ene-wi ns its efforts ·to n::i.ke the schene n... s ucceoe . : . ·

F . The New ZectJ.ruid Re-cnro.tion Estates

.'. ' ~ 41. 'nlese ;Esto.tea r epre·aent the :rormer; provcrti'ea of Geroon nationals ' . ' ,. . - . ~' . .

which wer e· Lwdrced,-to :the· New Z6.~ 1.:nd G::.i~e~riine·nt . ~s war repor o.tions cft er '.· ' • I the Fir at Wor ld- Wn.r ~ They ar e .:dmni-stered separately frcn t he Adn!r.iotrr..- . . .. . t1cn of th~ Terri-t;ory, bei:n,'3 unc.or G..• Genera.], 'Mc.n0-£er. ·;responsible directly . . . . . , . . . . - : . . - , ,. .. t c the Goverr.nent . Pro:fito frco. the Eotates f.!.O into the Gonool1d.o..tea· Fund ·· - . . ~ . .. . . , , . . . in New Ze~l e;.na·.

42. J.,_t t he_ begfnning ocoe 113;560 ucre0 vf fr,sebold lo.nd wc.o vested

i~ the New Zeo.li..l.nd.. Goi:E::-:-~cer,t .::.o r epc.ra.ti cns . . Of: thi _s t otr..l,. o.bo\lt -38,200 ·

o.cres which ccncisted of -::::J:Dlle;r:- pL:.ntc,ti cns a.rid ··c.ccessible bush,. lo..nds., .-· ·.

• • I ho.ve ·be6il d.i spo0ec. _e,f oyer a. thirty-rear per-iod ·by gra.nto to_S t:0 0<;1ns . _. Of ·.1 ·~ -. . the rem.1nine 75,560 c..cr e·s 9,836 c.c~es ere _wcrked. direQtlY,.. a.s :piunto_~io~. ·. _i

la..nd. by :the Es t ~t~o 1:1,:m6.g~t:1ent , and ·4,681 :_~creo ~e leo.s~d-_t ? fri.vu.te . . ' , . . ·· Euro:pea.n a.nd Sar:to.:i.n bolcer o . Tbe Estl';!;~o D'.lna13eoent ;onsider o that . -tb~

l~ge unoccupied ·and ~niznprcv'ea. resid.ue o.:;ntuins very J.i ttle lo.nd ouit,o.ble • + • • • • ,' •

f or cult:i:vction·, being fnr ini~a· 0.9d rugged, witli poor - S?il.

per sonnel r egul a.rly enpl?~ed by .t 'oto.lo 43 . - The the Esta~eo 1,589 '. •.' 6.nd consisto of l 7 New Zeo.lcn"dero f t·om ? Ver seas, 21, lcco.J,-bcrn Euro'peo.n I . uocir.t untG, 14 loceil:..born Europeans on t he offfce etc.ff; 45 European ::ind . . , ,. ' Snmoan f orenen and ov-er~ea.s , 181 Europe:..::.n o.nd. S2rioa~ s'killed. vorknen p.n~ .

l,3ll lcbc,urero consistlng. of Soootin, Chinese a.;.d Mel c.noaio.ns·. Samoans work-

lldd.i tiorioJ.ly tind~r contrc.ct, · o.nd t his bringo the 'tot~J,.· nuober of ;t.a.bourers , . . . to nbo~t c..,ooo'-t ; 2,306 do.ily .· The tcto.1 po.yuent .f or sa..la.rieo_ _o.nd. wn~es _-:

• • •' • :. ', • t •' . .:\ / '

. ... '. . . " · / ... '. : : - _. . . . I. -: .. , .. _,· : ' > '.'· > • • • •• , · t .,, •• T/46/Add.1 Page 50 · ·

in.1946 to.:194,7 w:10 !577,810. , /·

44.~ b.ccordinc to f'iGUres supplied: by the Esti:i.£es mno.genent the

enterprige mde finc.ncio.l contributiorio to the :pubi:i.c inccne of the Terri­

1 tory by way of direqt tn.xati_on. in 1946 t 0 1947 as follows: turnover to.x

I;l ,ooo; ···building tux o.nd waiter rr.teG :S600; export duty .on product □

!il0,1'75; in.port duty qn natericil.s 1,8,025; totq,l .sl9,800. · Touether:vith

the total pnynent fer salaries QI'-d ~c0es ~f ~77,810, this neQns thot the

vnl\J6 of ·the New Zeulund Repo.rc.tion Esto.tea to the T?rri tory during the

yeo:r wes 1=;97, 610. As noted eurlior, the Esta.tea therurlves contribute un

inportunt shu.re of the cc.;rmercin1 production in "':he Territory.

45. The New Zeo.Lmd Goverr... ':lent L~.;,o recently decided to use ull pro­

fits fron the RE,pa,ro.ti.Jn Estn.tes, including thooe uccunulated in the pact,

to subDia.ize welf:,re and develornent :projettc. in the Ten;-itory.

46. So,no,, hr.10 lcm3 been c. stcppinc :plcce for ocec;,nco:!.ng shipo, yet

becnuce cf its 3r82.t din.tc.nce :,:'rsn the lar:3e.r countrieo it r.mct ctill be

conoiderea. very ioolnt6d. Itc external cmd interno.l fndl.itieo for. tr,::me­

port ::ma ccr..nvnicc:1.iiono. ,:re linitea.. . Public we;rks oxe r:;c.inly devel:::,ped

in the Api

stc.naurdo QI'e ;.1,; i te rudi:c.entc.ry.

47. · Seo. tro.ncr'.)rt ic linitea, anonc other f::,ctors, by the lack of ho.rbotiro except for the rnther poor end e:xpcoed. Apio. c.nchor,J.ge. The near­

est good h~r:5our ic o.t P::.,go Pac;o, in o.d.jo,cent.Jc.~··,:ricrtr: So.nee.. Ne-rertheless,

Wectern Sonca ic 8erved by sm~ll but regulc.r oLips of the ;1.slcnd trade,

:;iving ccri.... '1ecticn with the hub islund port of Suvc, in Fiji, o.nd with New

Zeo,1::ma. Internn.l wc.tc:." ccr:r.mnico.tions a.re by noter luuncbes o.nd seagoing

S,::n,un cruft. Pert a.cti vi ties fall v:::.riously under the ou:pervision cf the

Tre;:i.::mry nnd CuGtcr:m })e:p:::-.rtnent o.nc. the Public Workc De:pnrtr.1ent ,·. .

48. i,ir trn.ncport, until recently non.:.existent, wo.s dev:eloped. during

the wcr with the lQyins out of un nirfield neor·the northwest end of Upolu, und the instGJ.l~tion of seaplnne landing facilitieD. At present a weekly ' T/46/Add.l Page_ 51··

'· cotr1ercial .::Jr oerv;lce is being DClinta.ined frcn New ZecdQ°nd to Western

Sancu nnd otber _Britid1 9ent:fr.1i ?:-.-:,cific Islonds .'

49. Lr:nd trc.ns:por.t;; :difficuit to. deveioj;) and- costly tc no..intuir:. in

such rue6ed. terrain i:.:nd tropic0-l dlfo..nt~; io still very lioited. The . J!, Tsrrit0ry .hes ec'bout 176 roleo cf rca.ds c;Q,po.'ble of co.rryin5 not or traffic,

:pcytly sealed but nostly t;ravel □ urfaced.. Those, however, nre confined

ulr:lost wholly to :tte central und west :po.rte of n0rth ·U'J?olu where European .

settler::i.e:qt occurs, una where tbe Sa..1rr0:in p8pulnticn is noot d.enne. Buo nnd

ta.xi services ere ucti ve on theCE, roc.ds. A road has '2l_so been d.eveloped

aero.o's Upolu to the Goutb coast, and. another nlons the er.wt -und -soutbeo.ot

end of Saved 1 1. 0therwi □ e lo.nd. t:::-:1ns:port in the ·cuter district bo.s been

;lir:iited to foot trc.ils, which·the So.m.cx:m co:r.:-.ounitiec £Jervea tbereby are

expectec. to r::.:~in+,o.in. In Gemo.11 tine:::i, 9, pt,:::;e ::,,r r:~r:,king roo.d.s w2s le.id

down, or rougb. :voc.ds were cut, in :r:::.rtc .of U:i;olu and Lround !:lUCh of, the

reminder c,f Sc;,v::i.i 'i. But tpese h,ive l:::.psed no:i:·e er le£Js, bec~.1use the:r:e

ho.ve been no wheeled vcbicle;:i tc ct:J.t1ulnte nninten2nce.

50. Pl:J.rw ,lre ,.:.t :present und.er .my fer extencive rcc,d develo:pne1-t in

the outer c.reas. It io expected tbut i:,bout 145 o..tlso of new roads will ,. be ccn:pieted in the next eiehteen ncnths. For Upolu tbio yill co:c1:priDe two - : ' nore roc..d.o c:i.crcss the iclc.nd., and o,loo n rco.d oyster:i. elong the entire

len2--th of the ooutll c.nd. eo.Gt cs;J-st.. i:;, road will nloo · be coopleted. r::i.oct or

possibly nil c,f the wo.y o.round Savc~i ':.. The De:pnrtoent of Public Works is

responsible for such enterprioeo, nnd nn experienced enginee~ has been ,

c._ppointed to direct the :prc@'.'D.I:Ue. Wbere budget el:Lotnento in the po,ot ' b:we bum .rslcti vely orr:J.11, tbe 1'947 to 1948 ncti:onteo contetiplo.te roud o.nd

bricc;e miJ.intcnnnce cocts cf i=.16,coo ~LDa new road. builcinc coots of J,,74,000

of wbicb ;:,63,000 io to be 1..:pent in the outel' llic'rJc~~o. As noted eC!.rlier,

1,50, 000 io beln@ :31 ven r.1s ,. free cubsi dy by the New .Zer.J.lund Government to help neot tbeuo coDts.

51. The Postell :s:(3 w~aio DFpn::rtsent io reopor.nible for ccnnun;i.cation□ and io f5.nanc1rilly oelf-suote.ininc;. The estirrio.tec for thio Department for the yeer l947 tc 15:48 show an o.r1ticlp:.1ted revenue of J:;25,490 ond an expendi- 'J; /46 / t,/d4_.0l Page 52 ture of ;:;37, 635,, t:ut included in th:lo e_x:peridJ ~~fie :if;,' o.n o.oount ,pf ~9,58o r . • • , . • , I : for U Ch'. cc ..::;t::.ng scheue wl':ioh Ne'tit Zealand. :propC)868 ta. nieet by nec.nd of 0. . ' . ,b • cu s1dy 1 Pootni o.nd ro.dio serviceo-:-ure r:uint,.mea. in conforruty with the cto.n:.

ura.o of the Post and Telegrc.pll. .Departnent of 1 l'fow Zecil11nd, the technical offi~ cers reg_uired b_eing cecond.ed froo thu.t' D!;Jpurtnent. Exe cu ti ve and fin.:incio.1 renponsrbilt ty,. hcwever, as in ull 'ioc,~ service: , recto with the A.dn.inistru~ ticn. Ten cub ... po~t offices, under the control cf the Pcotnuster, (.,,pia, and five ro.d1o out-str,,.,t1ono under the co11trcl ::;f the Superintend,ent, Api:::. Rudio, serve ~he icl~:mdo· of U:;;:,olu nnd Sc,vui 11, the cut~st::tionc being stuffed by trG.ined S1:u:100.n operators. A telephone □ ervi ce with :::10 connecti-ons e:x:ots in

A:pia, and its vic:'...ni ty. There 10. no newspaper serving the Terrgory at :pre­ sent, tbcugh n onell weekl;;l :p;.~:per formerly existed. A nimeogrci,phea- dnily. sheet Gives the cnly :public outlet fer up-to-d:,te news, npnrt frc:r:1: privp.te r,:di

52. The Adoinistration io ::i,t :present :plann:i,_ne to develop J. Tsrri tory­ wide 1:rcaaco,ctinc :Service by rlucin3 receiving oeto_ (150) in nenriy ever_y villr.1ge in Wee tern S:noc:,. It io fl::~r,ned in this. wo.y to develcp closer contact between tl:le authorities nnd the peGple. Theae_soto will 'be of o. ty:pe thut

und ricwer, otreet 11(;,htinG, w:,ter, refricernticr..J encineering, l)Ubli c build­ inc;s, etc_. New b,Y o.ro-e:Lectric construction ic currontl:; in pro;:;reoo 1 nnd will quudru:ple the :present c,1:r:lci ty. The Adl:1.ir..iotra.ticn bnc been taJ:dnc udvuntnse of :present hic;h revenues to effect r1ee_ded imprcvenent.s in public bu1lcjnco •

For 1947 tc .1948 'l:110 eotir:o.te fr:,r r::cinte:nc.11ce of e:xis_tinc buildincs tctc.lr- ll7,5C0 cnu fer new 1:uilcinco I;53,559. Tb6 ccst of' certcd~ ]?Ublic ,services cuch ur: licht end_ wc.ter are lc..rcdy or wholly recover8.ble. , -

54. The GoverrJ:;,ent hi:,,c in the 1x1£;t hcl;r::ea Sor.1ean villuceo to in]?rove

pools, L,no. c,100 by inct2.llin0 i,ivelincc ctnd faucet □• · Latrines have nloo been T/46/Add..l· Page 53_

· 'tuilt. Vill,.l{_;ec in o~ri~ · in~tc...hcet, huv~/'.fina.nceC their cwn water cyoten.s,

. . the cfficbl i)l';J.ctice .:.:iere 1:ieinc to lJ'Uj?J?ly e:x:pert dd. ·ahtl tcclu. 'T/46/Add.l' .· ·.Page·, 54

.:. ~·. . -- .

1. Western· Samoa, although a tropical comitry) is· basically ·healthy.

It lacks the Jr,Ost serious scour ges of the tropi~s, ·such as cholera·, yellow

. ·fever, and malaria. The ~ost prevalent dieease·s t oday are ho_o~-worm, yaws

and filaria, which are almost universal, ,:i,nd such diseasEJs . of bad sanitation

I ' as tj'f)r/)id, dyscn~/ and infantile diah::>rrea. In addition-, t,uberculosis

.presents a major problem, and pneumonia and other chest diseases, arid dis­

easfJs of childr..en caused .. b.y: faulty .f.e...~g, . are, frec,u·ent . Uccasional epi-·

demics oc<.:ur, such as ·:i..111'luenza and m\lll':l?,S, .but these lack the- seriousness of

the epidemics which decimated the population periodically in earlier days .

The death rate and iufant mortality rate are lower than in most other Pacific

isl&nds a r eas, though they are .ctil:::.. high by western stand0.rds·. · The · people

are generally of fine physique, -ar,d their dietary level s eems on the whole

fairly satisf~ctory.

2 . The missi ons introduced the first . systematic medical work -along

western l ines . The German Adlrd.nistrati on began the developmept of a-public

health service, and this was continued vigorous:y by the New Zealand author­

ities. Hospital services are free to 'all SPmoans, except ,that the families

provide food and bedding .for in patients ; small charges are macte·for medi-

. cines • . Public he:1.lth wcrk has consistently been t he large.st item cf publit.

exp~nditure, usu~lly comprising about one quarter to one -fifth .of t he to~al

expenditures . ,

J . As of 1947 the p1blic health progr aimne cf the Terri~ory has become

part, of the South Pacific Health Service. · TJ-.e Service -(>overs the other

Island Territories ad!rinistered by New Zealand~ as well as the British Crown

Colony of Fiji, mo~t of -the other .Fritish jurisdictions in the area· and the

Kingdom of .. Tonga. Its est,:i,blishment is .the r esult of an Agreement signed

the previous year between the Gov.irnrnents concerned, and it-f ormalizes and

e:>."te:nds c0- operative ar.rangements which have .been developed_ among these T/46/Add.l ·page 55

jurisdictions over ·2J1nost a twenty-yeqf ·p~riod~ The Agreement sets up a South Pacific Board of Health, Uhder th~ ~ha1rmanshi~ of a medical_ ofiicer as I.rispector-General, to advise and co::..or'ctinat~ the various public health

programrr,es, · to pl:m visits and· inspections, ahct to initiate and encourage

medical research;· Th~ Board wi.ll provide a ·pooi o·f competent medical officer,s

both from.the U!ri,ted Kingdom·and from Ne~·Zealand, and also a pool of nurses

from the latter country. It will· also continue the .-iork of the Central· Medi~

.. cal _School at Suva, Fiji, in which South Sea islanders, including Samoans,

' are trained:'as- medical practitioners, and the Central Leper Hospital at

.M:akogp..i,°Fiji, to which lepers are sent from. Western Samoa.

4.. The local Health Depa;tment ts headed by ~- c·hief H~dical Officer.

It maintains a well equipped centr'.al.fiospital at Apia, with separate wards

for Europeans, Sainoans and Chinese, and also thirteen small district hOspi- " tals for S2llloans .. _ The district hospitals con~ist.for thG _most ·part of a

small central dispensary, wi. th several Smno~n..... style houses as wards·. 'Perio­

dic inspections are made of villige health and sanitary conditions, and

vfilage Women 1 s Committees have oontributed importantly to'public health

work, including infant care ..., 1-'q,ss treatments for .hookwo'rm and other common j diseases are given periodically in the vi;Llages~ :Medical.and dental work is ' . being carried into the scnools, and, hygienE;. :i,s also t:mght. as a subject •.

Medical inspections are. made at the port /tb prevent introduction ,of diseases,.

"anct· legislation is provided for_quarantine,·control of drugs; food inspection,

sewage disposal,· ?'nd other _prevE;ntivepublic health activities.

5... . The European staff as ·of h.ugust l947 consi~ted of the chief medical \, officer,ar.tl one other medical officer, a ho;pit2.l. sccret;ry, a matr~n, assist-::--

ant matron, and 7 nu.rses f;om Ne..; 7,ealand,. a .dispenser 2.nd a _bact:~'riologist,

who is of part-Samoan, :;i.ncestry ~ Th~ f'ull establishment, .. however; c..llows for

. ' two additional d.octors, . two .. nurses,. and a ·dentist, a dental· mechani.c and a

health inspe¢tor. The shortage is partly· because :·of ~~ce~t,' resignations

. ·and partly.because of .the difficulties of 'recruiting ove·rseas personnsl. .T/46/Add.l Page 56 ·

6. The Samoan· staff consist~ of_, 2J Sa.moan medical practi,tioners ,of who::

3 are serving in adjacent N~w Zealnnd Tet~1to;iBs out~ide Sa.rr~a, 90 nurses '• .._ , . _.,. I . :(39 trained and 51 in trs,ining), 11 untrained, female assistants .in .out-:station . . ~...... ~ . . .. , hospi tais khown as ~aby welfare assist.ants, ··7 dental officers,. 5 _dispensary assistants, 2 10.boratory assistants., and_ 6.assistant health i..."lspectors. ' ' ' . . - ~, . 7. The Samoan medical practitioners are graduates of the CEintral Medical

School at Suva which gives a four-year course specifically·keeping in v:iew / . island health conditions. Each of the thirteen district hospitals is in. charge of a senior practitioner. · Because of remote_ness from. the central hospital, they are called upon to perform even seriqus operations in,em.:orgency cases. . ' . Their work is invaluable as 11 indigenizing11 modern msdicine. No Samoan has yet become a fully qualified doctor~ , The Sanoan nursing s_tafi; is· trained at the Apia hospital. Ee.ch distriGt hospital has a graduate nurseJ ar).d s~me districts also have a district nurse who carries .on work in the vil:l,2.ges. i"Jany gr'.lduntes of the nursing programme have resigned to marry, but their influence continues in .their corrmunities.. The dental officers n.re gra.d­ uates of a Dental School at .Apia which .:has also trained N:Lue islanders.

Besides cerrying on work r.t the .i-,pia Hospital, tl}ey make ,visi~s to the villages.

8. The Samcan people gene!'all;r speaking now come readily. to .. the hos­ pital for treatment of sickness. But they continue to be conseryative in health matters. Their old conceptions of illness as being caused PY super­ natural force~ die ho.rd, so that much Samoan-style medicine is still prac- . ' . ' . ' ticed,. Child-birth is still handl,ed almost exclusively in the_ .home.s. It is not easy, furthermoreJ to prevent water pollutionJ to get the peo~~e to ~se latrines, and to introduce other measures of moderi:i ~an,itation which may in some cases conflict with established custom. Host of thesc .. matters_)llust await the long pull of health education.

9. At the present time the Medical De~~rtment ~s ~dertaking ~ complete re-examination of its activities., parti~ularly in view_of the great incr~ase in population •. The organization of the. medical service has so far been based T/46/Add._l Page·57 on a. conception of the Apia. Hos~itc!l as .serving th~ heavily pbpul~ted north coast· of. UpoL., and also acting\ii tl~8 specialist ceritre 'i:o:r 'ha.iidling-~rri~re ' difficult cases sent in from the :-district··hospitals. But this concepti~n

has not ·worked out in fact, ·because of 'the lack· of adequate corrnnunications.

Statistics show that 11:ore than' half the -major surgery done in :the /Territory

has beenha:g.dled by the Samoan medical practitioners iri the'out-stations.

Now, with ext8nsive new road-making under way, a greatly increased public

income, and ..six more :inedical practitioners in trci.ir.iP;_g at the Suva School;

.it;is~ 'considered p~ssible to move forward in medical work'0 Nevertheless_·

- th'8 ftindamerital conception of the fuhctioris of the different pa:rts · of the

medic3.l serviee ·will continue;

10~ Apia Hospital, wh~ch ~dll be improved through a building programme

already under· way, w.. ll- provide:

(a) A centre for the district work on North Upolu. To increa:se the ·

effectiveness of its contact with the villngos, new transport is

now being purchased, including a mobile clinic and a new amtulanc~

already in use.

(b) The'principal therapeutic centre for'the whole Territory,•with th~'­

m~in lah:l ratory and X-ray diagnostic services as now_,· and other

facilities for the fully qualified staff.

(c) Themain centre for stores and supplies for all the out-stations

as now.

(ct)' The training centre· for the local Samoc1n staff other tha.n the medical

practitioners., ·n. · The district organization of medical services will:corresp~nd'ingly

. be strengthened, so as to carry the work" beyond the Lpia• centre-~ With -the

new road.:_rriaking·, sche~·e,. cha..'1ges wiil be rnade .in the· boundaries of•the dis-.-

- tricts, so ··a.s to balanc'e p6pul~tiori number's· ( son1e" -of the; present districts

have··as many as,·6,0GO p~ople·; and others as.few as'l,500.). 0 Thi:; pre-sent'c'

districG wi 11 be bonsolid~ted~into miljor unit·s; tach•·with:a,weil' equipped

.- .. 'district hospital -in charge'•ol·a: 'seni~~-medfoal.-,practitionei':, -idth a nursing T/4-(J/Ad.d... l l?age 58 ·

staff 3.Ild an ass:ist3.Ilt he(llth inspector,:. and proper tr_ansport, f2.c.i).i ties id.li '-~- ··: ·-- '' :·~_:\•i'·,.•~, --~~:- .., '.: ~ . :, )-. .i,: -·•-··

be provi~etj ~-~ ?"·r~y _th_~. ~.~rt, ~?t~, th,Ef I v_µla.ge_~. '.fhe.se ~ospitals 1'!iJJ__,l.i_e cap2.ble of handling more cltfficul.t cases, so far as it. i$. tJ:iought .. r..dvis- • .l. ' . .' . ' I • ' • ' , ,, ' . • ~ • , ,. ~ •.f --::. , ' , • • ,' ,' ' able to. send them on to J.pia., The }?ra~ch distr~ct dispense.ries.in t_hese new

districts vd.ll be in charge of junior medical practitioners> or E;lse of.

Samoan nurses where such dispensaries are small. These centres will also be

improved so a. to deal ·with emergency cases' as we+.l as the_ i:limpler routine . ' . , ~ \ . . treatments. The medical practitioners,.district nurses, and.nurses in the

hospitals _ai:d dispensaries will work through the Women 1s Committees, in the

vill,'.1.ges as at present. In so far as preventive mediciJ):t; is concerned, tr.e

new scheme of trajni.ng S2.iiocin health inspect,ors will provlde th.e personnel ta

its full establid-u'Tler..t_, 1mch clo_ser C,)ntact will_ be m:1intained between the

Apia centre end the di3tr:Lct-s.t and it will b,;3 possible to carry on better , therapeutic servlciss t~!.'Ct.1,3hout the. Te."ti .i:,ory.

l2t The j~'1pro-rrn::i2-1ts here contem.p1.ated are alre8.dy. under way. The stan-

d'.lrd equipment for chs:-:::·Lt ho.=:pit..'1.ls and d:..spensa,riesJ. including refrigera­

tors and labor?to:i:-y eeiu::.1-rnci1t., h1,s. n.lre2.dy he1:;n 0rder~d, and the first of the

main distri~t. hosp~ ~als w_ ll be in oper;,,tion wi.thin a few _m;:mths.

1.3 •. The success of the plan cles.rly deJXmds UJ)Oil the a:vailabili ty of . . . trD.ined personnel :md transpor·t.. On t'he q'..::e ction of pcrsonny:l.;: ~t.,,~s proposed

to review .the sela.ry scales, promotion syste:n, rmp. other conqi:tions of service

o.f all Samoan membE>rs of the Depa.rtmrnt so as to bring them m?re, into line

: wi ~~ th~ qh2.nging _living conditions. At present) for example.,· the medical

pr:ictitioners · c2.n reach their maximwn s~l::i.ry of F,215 a, y.e;:i.r afte;r seven years,

and.heyond this no. adv3ncement is provided. It is hoped tµat thi?~revision ...... will pro~de r1hat ~s now missing: stimulus to self:impro~e.ment.r:rid good 1-rork,

Since the greate~t lack in the s~rvice the preq~n_t .tin:ie is qual- 11+. at. .. , -...... ' . . . At le.ast .two . ified s1-ssistants) the .tra:lni,ng p.r,:ogramme will ,be strengthened. . ., . . , ...... "' . . . ,• . , .. . .. ' } trainee~ .are ·bei~g sent annually t,o. :the Centra · Medical Scp_()ol in _Suva ..... A • • • • • ,,. -. ,. '. • "'. • ~ • .. • • •• • •• • ' < • \ • .. ,_. : • ' • ' • ', ' • ' , . scheme for !)Vit-:grR.duate train:i,ng of. S:3-111oan nurse~}n,: .t-I.e.w. Zeal~~d! ,. W1:1i~h: has : ' . . -~ .. '.-.- - . . ' . . - - . hee:~. cip~ratir:ig fo:;:, s9_rri~. y~ars.,. will. ~~ \'.o~tin~ed~ .. ~: A''.~ifnilar .rl-~~ ~1--±J; nlso T/46/Aada Page 59

be introduced to give post-graduate tI'.aining t0- other Sainoan personnel, so

as to increase the usefulness of the present staff. It is expected thatJ as

,~he standard risrn, positions now held be seconded officers from overseas

· · can be gradually taken over by. equally 9.ualified local personnel'.

B. Education

15~ The' transmissi~Il- bj the Samoans of their cu~tural 0eritage frorr,i

_g@nera:tion to generation iri~olves many types_of training which are still

carried oh in family and village life; We;3tern t;;rpe _schools were started

, [,, , I >'. , in the ninet.e~nth ·centu;y by the mission. Qodies. Their work stressed lite- - ' . i ra_9y in the_ Samonn_ :language, religious teaching, r,,nd in the more advanced . ,r . . cinstitutions the training of Smnoan pastors and ·catechists~. The village - ~ • . . '· z. . ' ' . '. . pastor s9_hool~ s_till continue., beingusi.ially held at the· Snm:J~n rniniste_rf s

. house/ ,and they. ~ave received official recognit1on as 11 Grade I Schools ff.·

As a ,result/'of.-theii- work the Srunoans are e.lmost wholly literate in their , own language •. _The customary.Samoan-type education of children together with . . the Q-rade'I.·$~hools now form the qase of the SeJnoan educationnl pyrt:i.mid,.

• ' ' . - f. - ~-, 16: > 'Three government schools were opened during the German regime.,

i ·including one for European children at Apia. But otherwise schooling was

left lo0<.:t0E- missions. The New Zealand authorities, however, instituted a mo_re·· vigqrou~ policy of public schooling, 1J.nder the direction of a Depart­

ment ·or ,Education. - But they, too .,have not interfered with the right of the, .. present five missio~ bodies_to provide schools for the chi.Ldren of their'

adherents, 'I'tiis has meant that theri:;: are ~ow six par:allel school systems

in the Territory, one run. by the Administration and five by the missions~

No official control has been instituted ?Ver the latter schools, though - certain. standards ~nd co-operative arrangements have been worked out through inter-consultation.

17. Statistics of the.mission bodi~s indicate a combined enrollment in 1947 of ahout 20,52:3 pupils, while the Administration schools ha.cl an official enrollment of about 10~B68. These figures a.re not reliable, as it. is obvious T/46/Add.l Page 60

in terms of the Sam0a.n age distri':)ution that 37,300 persons, or :o'{er half

of the total Samoen population, could ~ot be in a school system lirri.ted

m?.inly to a five year ci..rriculum. Schooling is free, _but not compulsory,

and statistics of attendance are not known accur2-tely •. Children come to

school or leave it as they·or their parents see fit, and there is no age

limit. Hany children do not start school until thoy are 10 or 12 yee,rs old,

and in genaral there is· a very marked c1.ge rete.rdc..tion c,s co pared 1-:ith

school systems in most bf the western count:rie3.

18. SchJolipg for the gre!lt ma:,;s of Samoans has been limited· to work

in the lower element"..ry cln.sses.' The vill:i.ge mission schools (Gr:1de I

Schc0ls), use the Samoan languag~ cnly, and be'sides religi011S te2.ching thsy

offer some rudirrientnry work in secul::r subjects. Vill::\ge ,Aministration

schools (Gr2.de II or lfPrinnry11 Schools), of whfoh there are 98 in the Terri­

tory wi t.n a totnl cnrollnrnt uf 2.bout 9,720, co..rry children through the

11 primers 0 up to Standurd III (or ,St"·.ndnrd II until 191,7). Nominally this corresponds to tte fifth year of the standard eight-y~,'.11' elementary curri..­ cuJ.um, but the 3amc"tn St:md'l.rd III level is recognizerl. .~s fall~ng fc.r short of the equi vs.lent level in the New Zealcmd school systerrc. The Grade II schools o.rE: staffed h;y Sn.,1oan t;eachers, mostly grc.ducc te s of a Tee.chers 1

Training :Jchool ( see below). ''I'he· curriculru:i, for which speci,,~1 locAl texts have been prep<:l.red, e;upha,sizes· hca:Lth, agriculture, Samoan handicrafts, and the local history e.nd customs. School sites and buildings .?.re provided by

_the· comm.unities concerned, o.ndare of very varied quality. The school week consisted unti~ 1946, of four hours a day, fcur days a week, but it has now been increased to five hours a·day; five days 3 week. The mission bodies conduct schools or cl:i.sses equivrlent to these government schools.

19. The basic language of instruction in th8 lower elementary grades has been S3.111oan. But elementary English has also been taught as a subject.

In 1946, after an inspection visit by the Officer of Isla:nds Education in -:, t!liB New Zec1.lnnd Department of'·Isl~nd Territories·, it was decided to st0p the· teaching of English in the 'Grade' II Administration schools. It WRS felt T/46/Add.l

_ Page;:61 1

that the Sanoah ;t;.e2.cfo:m.~ w:.~r---6-::P-P~ble as yet ,:to give, adequate instruc.tion in

Erif1"isfr. ·Jhis ·met_ ·wi fti;opp,9I'?~ti0h fJ:'9m the Sa:monns; how~ver, and a~ a ·. ~ . . result many. Sarrioan:. famil.i.E?~: shif~ed.:.the4-1' c:hUd;E/h to ~ssi011 schools which

· continued, tbe teaching _of -English·., I~ ·July·l947 J,he: teaching_ of English

· was resumed officially· in . "these .Administration schuols.

I , '· 20. A comparc:.tively small number of Sain?ans proceed to. the upper levels

of elenieritary education and beyond. · The missions m:lintain sever:al !!colleges:' / in which .there is special emphasis. in two fields: religio:us trainihg,_ and;:

training in commercial· subjects. ,°The J;.dmiriistration systeiu proyides two -. j

resident schools for boys,:. Avele at Apia and V~ipouli on S2.vai 1i,. ~d ol').e (

. ' . , . . . . . " .·· .· ·, ·. " '...... \ ·resident school for girls, Malifa at li:pia .(Grade III or 11 1"1:iddlell SchoaJ..s}.L Pupils" are admitted to these institutions on the ba~is of com~etitiye' . ,- . I ! eX!rd.nations, and small fees for board and lodging are paid.at the qoys 1 j

scho0ls ~ These schools have variously h.?,d full European or. Samoan hEoad.

I ' teachers, and the rest of their st~ffs are N-.me of these Samoan:,

/ te2.chers have certificates. Instruction is supp.:-sed to be entirely in I English, and covers the upper elementary levels, Standards.II to VI.

. . curriculum is ri:mch the SC:1.Lle i'l.S in a. NEoW Zealand pricary school, excepj:, that.

/ , gener?.l history and geography are not fully treated and special instruGtiori

- -- . 't - is given in Samc;n crafts 2.nd customs. Flucational experts testify, howev:er, th.';.t the atk.inment level is well below that of New Zealand· schools.,. tt{ j· Sai.'TI.oan Standard VI being about equivalent to Stand~rd .IV. at most.:._ ThEi rse. of English is still poor, except whe:f.e the pupils h::i.ve had. oppo:rtl,JDi~iEjs to r . . , . ' learn it outside the schoolso Graduates of these mission and- Acrntlnistf1tion· schools provide the bulk of more . skilled official and cominercial Sameak employees in the Territory. ';['he total ,.mrollment.,ofthe three h.dm.inist;ation ...... I .. schools 2.s of July l947 was 334, a sharp rise from'-earlier year~•- . -f,,. E/ome- . . . , ...... I what lnrgel' nu.>nber. are.· in the ~or-responding gra·d¢·s.,,. -of ith~- miss.ion "$Choo ls. , . . . I. r i :_ r -- -- The missions have Europe~ff personn'.31. in ch.2:r_;g~ o_f ·their: advanced schc)'°ls, . ·. . ,· . /· ,. notably the Roman Catholic Ydssion, which ):las. :a large' staff of teaching • •• , • , , I • , , • •• I • I Brothers and Sisters. T/46/Add.l :Page 62 .

. / 21. · For EuropeQ.Il children, •both t,he. J..dministration and the Roman Catholic

. :Mission provide schools based. clossiit on, the N.ew-Zealand elementary .system.

The Leifi 1ifi School at h.pia i.9 by.f;nr.the best equipped goverru:.1ent schoolir.

the Territo:cy. It is staffed by seven teachers from New z.ealand who have cer­

tificates and eightee.n local EurDpecn teachers,' all but one of mixed ancestry,

The School had an en;ollment in July 1947 of 635, with m~y children being

turned awaYt·..; .\. few Samoan children from urhan. , hon,es. he.ve- been admitted •.

111-i.ccelerate 11 cl:1ase.s have recently been establish 1 to carry forward the

b~ightest pupils. · An Admi.,iistration school .is also .run' at the Aleisa European

s¢ttlement. So far d.t has le.dkac, proper staff personnel because of poor acco­

modation and rer.:oteness .from the town area, b.ut a new build:i;.ng is be;i.ng erected

there during this finnncial year• ·1 l \ 22., Beyond the dementary level, several specialized lines of further

edi:-.. cationc1l training are availnble: ·

A small Post-Primary .or High School has been., j;n existence for _nine years,

and is a ttache'd to the Leifi I if School at i-i.pia. It h2.s a full European

(New Zealand) teacher, and a 3yllo.bus based closely on th2.t us>°d in

Nev~ Zealand h:i,;,7;h schools (first three gradep, or' 11 formsn). Its enrolment

of e.bout 30 includes a few So.mo,cns as well. as Buropeans, - Nearly a_ll

:i::upils choose· a co;;u:,ercb.l course, and most pupils leave at the end of

the first yeJ.r to take empl::iyment. Extensive prep::r~i.tory work would be

needed for purils to bridge the gap bet,,,een ·t _;e Grade III Samoan schools

,q,nd this· school.

(b) . A Te2.chers t, Training School founded in 1938 tak6 s selected Samoan students

from the Grade•-III schools for a two-year course which iqcJ.udes ·-tea:)hi."lg

practice in a model school. ,The enrolment is about 35, and·a small

monthly salary is given. to the trainee~q The institu~ion is ataffed by

a full European :;:rincipal (from New Z<:;e.land)., 1'-rith Sani.03.n assistants.

11. sma.ller number of 'superior st11dents are held over for a third year,

and then berome · school inspectors or teachers in. Grade III Schools.

A few teachers h,we been supplied from the Training School to mission T/46/A(ld.l Pag~ 63-

. ' . schools. 11Refreshe1-n courses are given periodic2.lly to the teachers

already in service. A number of 'Samoan a,nd part-Samo1.n teacr;ers have

enrolled with the New Zealand Correspondence Scho?l, and their work

has been supervised by the New Zealand teachers on the Leifilifi

School staff.

(c) Superior graduates of the elementary schools may enter train:5-'ng for

public health work, including the course for training 1;1edical pr:a,cti-'

tioners at Suva, FiJi (see Health).

(d) In 1945 the New Zealand Government established a system of schol~rships

making it possible for~ a number of boys 3,nd girls of superior abi,lity

' - . to go annually to New Zealcnd schools for primary and high school work. •. ,, •, This had been done only sporad1caJJ.y in earlier Lyears9 f'.,.s of July 1947,

35 scholars were overseas, comprising 20 S&'Uoan boys, 9'Samoan girls,

and ·6 Europeans of part-Sn.moan ancestry. iifter considerable discussion

-with Samoan le2.ders, 'the New Zealand Government decided that the

scholarships would be awardea on the basi~·of scholastic merit rather

than taking account of family status, as in matters of rank.

23. The Department of Education is headed by a Superintendent. In all

·-- there are 15 tre,ined teachers including the superintendent seconded from

New Zealand, and 38 other Europeans and Sa~oans on the establish8d staff.

The Chief Inspector of Schools is a Samoan with long experience as a teacher, and there are eight Samo.rm district Inspectors ·who supervise the /,.ct.ministra­ tion Grade II Schools,

24. Unfortunt1tely Samoc.n school· te::tchers do not 2.s yet have a status -· and influence in vill

There is great need for making the career of a school--teacher compar.;:-.ble with that of a medical practitioner if the sqhool system-is to go forward~ T/46/Add.l Page 64

26. The, budget of t,he Administ1~tion school sys~em _has so far been

_modest. Up to l944 it ranged annually from about E5,000 to hlO,OOO, exclu­

sive of school building costs:, which come under the public wo:r

succeeding years it has increased greatly. For 1947 to 1948 the_proposed

budget-is £36,400, or nearly 8 percent of ·the total projected expenditures,

Of ,this :?cmount the New Zealand Government is contributing !:8,500 for the cost of overseas scholarships. The smallness of the education budget is accounted for by the fact th'.3.t the missions meet their ,own educ2tional costs. 27. In Jlme 1945, the Prime :Minister of New Zealand sent a Coimnission

to sur-,ey education in the Is~cnd Territories administered by New Zealand.

This 'W3.S headed by Dr. J.C. Bee~y, Director o! Educ&tion in New Zealand.

His report nade a series of recommendations to remedy the m~in weaknesses

of education in Western Samoa, and some_ of these have now been carried out.

Early in 1946 the Department of Isl~nd Territories appointed an Officer of Isb.nds Education to serve all the New Zealand TE;:rritories. In 1946 to 1947 the New Zealr:.nd GoverThuent made special grants of ?lO,COO for film projectors,

text materials, and other equipment for schools in Samoa c.nd the Cook Islands,

and also r:5,300 for scholarships to send Samoan pupils overseas. Some of the much needed school furniture was sent from New Zealand. ~n addition the

_following are among the new steps taken:

(a) The European staff has been augmented by an hSsistant School Super-

intendent, an .i'.dviser in infant teaching methods, and a Headmistress

for the Mc::.lifa Grade III girls 1 school. (b) Selected Sam.oan teachers have heen sent to New Zee.land to observe tea.ch-

ing methods and other conditions. Three such teachers spent a year

working in Native (Maori) Schools. The enrolment of teachers in cor- ' respondtmce school courses has been started • . (c) -An additional class (Standard-III) was'added, to the Grade II schools

to extend the primary school'period to six years.

(d) A,.'1 additional class (Standard II) was added to the beginning of the Grade III Schools in order to enable the transfer.of more gifted chil- T/46/,\dd ,; l Page .65 · . .

is dest_gned to .acceler"9;te p:r:ogres.s~Qf:.the CTost ,intelligent p{ipils, so

_that ycunger children wo~d b~ .availa~le f er scho~~rships .to New

Zea.lan,d . . The •scho .lar~hip · syst em, has peen cont:L'1tie.d . ·

( e}. ·Efforts are bei_ng _made t? encolll'age . .S~o,:u~ pareqts . to send their cl:lt l ­

dr€n to school at -an eariier Rge, preferably at five years old • . This . ' . . . , is an, att ack upon _th£;· ,ag~ reto.rdatic_m .problem • . The increase of the

.. •· · :school P1:0($ramme to 25 hours weekly was !)Oted . abov~. .

.. (f) . Syllabu~ _r evisiori•c?~.l!)ittees, cop.prisin~·repr~sentntives of all missions .

ari.d of .the '1.c1¢ni.si;,),'atiun) have. bAen ._s et up to ,suggest chrnges. to be · • • , + • • .. • 1'

I tnc orporatE:-d into a: new cil:r.ricu:J..112-. fci;- ,.the Grisde II Schools. They. are ·

currently at 1-9 rk. . (g) _Approval wn.~ given by the Ntw Zs::~.llmd 'Governmr:m t for the a.ppain.. t.ment of

(h) Publication of a mont.h.1y !!School Journ,.~F i s .b/'Jfr g sta:r~ad in Ne~; . : . .· . . . ' Zealand by thl'.: Off) cer: fir Islands EC: ;.ic~ticn &.nd t,"o Sw;10t..n ·school

Inspec:t,ors who were recs r~t1y in. New Ze~'L:.rid. ' ,' . '. . ' . . , (i) lfow salary sca les .have been est~t,1 i.::;h.:;c for Euro2sa11 .and S¥J.Oa11 te,1chers·, .. ' • .·. ' , . ' . which shou+d make the teaeh~.n:s i?r·of8~;;3icn ..:n Si'n~a morB, attr.n.ctive .

_But the ·s3.lnoan salar;r sco.lc is stiti vsr_y l?w•

,28 .•.. The Director o.f_Ed;.1c,,.t.ion., D!' •.B .e.et-;iJ h3.s recep.tly proposed · to

the New Zealan4 Govern~ent the.r o13:-owiLg furt~er steps .for th: qevel-0pment

of education in ~-:estern Samoc. :

(a) . The staff of tr8.ined f-few Zeal)1J1d. t ~achers should be incre1:1.s.ed until such

.. tim.e -as the Samoan educational systein is at;le t0 produce Samoan te.:1chcrs ,. . ,. . ' • ...... · . . ' . of the desir.ed .qua.li ty. In p~ticular: the 12.rgei;- G~i;de 11 Schools

should oe placed under .the control o;f: -H~e.d ,Tef\Ch~rs,. and.. have. Infant ,. . .. ·' ' Mistresses; seconded. from New Zealand-: .. ..

The Grade III Schools should 1e inc~eased i n nlli(lber and size, ~nd addi- (b) . .•. . tionnl New Zealand teo.cne~s ;~hould b~ ~ppoint,ed.: Pai~. l a;b~ux: . should, . . . ' .. ' . . . ' .. , . ,. •. be empl?yed to supervise_ scho.?.l pl~t~t_i ?l1S . and .to :p:r;-epa;e food for : T/46/P..dd. l ·Page 66 ··. ·:

the pupils".'

( c) . Supplies of teaching. materials should be provided in abundant qu2.nti ties,

Ls soon as possible th.e New Zetland Country Library Service should be

; extended to the Territory. Text-books and teachers I handbooks .in English ,' .and Samoan should be prepared and made available to mission as well as

Administration schools.

(d) Tecccher traini.11g fac.ilities should be improved, including the appoint-

' ' ment of a New Zea.L:md teo.cher for the Model School, and the erectfon of

new buildings. The poli~y of sending selected Samoan teachers to ob­

serve teaching nethods ue-ed: in New Zealand should be·. continued·. In,­

service training for teachers through enrolment with the New Zealand

Correspondence School should be expended.

(e) ~dult education, by means of itinerant instructors, should be commenced.

The :: Dracticability of a tr,i.de training school, to be· confined at first

to night classes, should be investigated.

(f) .The scholarship system should be reviewed in.the light of experience

to date. This was rega.ro.erl. at its inception as a short-range plan, as

the danger exists that pupils away for four to ten years will lose touch

with their own people and customs. Every effort should therefore be

made to develop the local high school facilities so that the full post-

primary course can be pro-vi.ded in the Territory for greater numbers of

pupils. ·when this goal is reach~d, the scholarships could be given

c.nly for higher. spedc.lized ediP-,ilian to produce fully qualified person­

nel in various fields for which needs exist locally.

· (g) As the standard of attainment in•the Grccde II Schools is raised, an

'· additional class (Standard IV) should be added. Continued efforts

should be made to get pupils to c0Ji1:i1ence school at an earlfer age.

Ultii~ately-a system of compulsory education between fixect·ages should

be aimed at.

(h) A comprehensive· school buildings policy should be drawn up, and an annual

· mun should be granted to provide school furniture. T/46/Add.l Page 67

' 29-. The New Zealand Governnent has notified the Mission that it

desires, a:3 part_ of its mrrent plan directed towards the fostering of

·self-government, to est:iblish in Sainoa as soon as possible a high schooL

This 1\ould be st:-i.ffed entirely by Europeans, '[md probably divided into

· -'two sections; an it1teri:1ediate s:::hool ,ind a senior high school. · During

the intermedi2,,te stage some prelimin2.r-y ciassification of pupils w:rnld

be made with a view to encouraging them in the l:iter stages towards '

either academic or tehnical training according to ind±vidual aptitudes.

The most promising pupils W)Uld be given opportunitjr to proceed to Uni­

versity level in New Zealand. ter::ci . .· tori-cs

. . ' ·. •· , ' ·. _. .Ar- t i cl•3 76 · ....

. . \ ·. ...- ( a) . to fur tt1cr- in1,er ne t:i.ofi,.i ;~-E:~~e ~~1-i · securi 1,.;y,;-·

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(a) tho st i•,lem'o,.::r e ad.:d.uist·:ir.l.,:Ji~ t ru::::t. t ~r;.~it,-:>ri 3s; . ·...... ,.

r.o..:.1i1iist~ring iru:,t tc;:;.·ritories;

·.,,

t erri tcri ,:s f.tl

I quo.lif•~eu. t'.~r son. t o :r,r;p.r,::: ~er1t :=-,t tt:

. ~-h~ Ger.ei-:;.o.l llssil,.1lbly ..ill~, . ' . in c~~crying out -toeir f' tmctions> u;;~y;

I , /(u) consi uer . ' : .,

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(d). t-0.ke ·t11ese 'l::.Jl6.' ct.be~ act:ioHS·, in c0ni'c.1·.rrii ty -;:-l t !1 t.~1~ t~rms. 'of

•,· •.' ·· .poli ticq]:,. E-Conomic; _no~ifal; ,:::..n(j, . eciuca ~j ot1r.:.l UL;_v.:;,r.c~,:;n~~nt ,:if · tJ;8 :L1i1C.::.:-it a.nLs

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. J '. ., ; ' .. J :.,ii:ic:i.u~nb ~he;r~c1;hotj. _oL se;i.ecant;. ct.-c.s· 1--risid,.mt':

::.:_2. i. ', • ~he '11:•,\St·Jesl~ip• Cc-~cil.' Cii~J.:t ·.,1~~t f..:1 4 0 , ,. • t I' /.• • ,, ',• r ·. rul.e~ ~·,·::hich i _:;1-i~;i · i.~c~ tid';;; .pr~y:\.;i~n l'~r' 'tn~· C011V'-:}!j,i11[; o:;; lll-?-C:tir~:,.,; ::; ; . , ' . . ·~ ...... '

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~ssisto.nc~1: of 't_:1;._•. Scc__ ·,nom _:i._· c_ .....· ·mi ~'..;unc·il _u·nu. c£ ~•n·;ci·S ,.... - .·soc.i•,j.,...... + ·'•-...... ·>!., -li - ... . - v ~. <('. ..;,,·- " ,~ 1 / 1 ' • • '\' ••• ! ,'~ : _.•, .J' , f ,_ 1 ' I 1 • ,' --: • • I i;> in regard fo ru,.:!:.fa,re; :,;it'i1 {.::;ic11 ~iBJ" _~~rc l:s~;p(.lc:wiv·~.::.;,: C.J~lCi!rn-)d. : ·. \ . : . . I, • -----~-----~ ' r

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.$. IQ.ti ,tW_f#_,. ¥49':V. 4 .ES: ...... ;· ,. ·T/4~/A.a.i~i'· : :Page'>73 ··

. :·. . --~~ . . ... JUfNEX III · :. ... ~ . ... .

. . . . ·. . . .~ :•: · .. :.:· ,_:'- , " .: .· .- ., ...... ~~ ·• '" ~ ,· ~. · ' Approved by: the >Gene:caJ. .Aa&embly ·or the Urii tod . ·.-:, . iiations ~t_t}1e Sixty.;.Second, Plenary Meeting ·of ' .- ·Lt~. First.:?es_sion ·on. 13 December, · 1946 • . · .-_.·. · ·

' .., . . ,, ~REREAS .the terri to:ty of.Western ~~'a hiie/ ~~en admin:t~tered.

·: . in. ~CC~)~dari~e \;fi tl1: Artfcie -22 ·of. the . C~venant · 0~ ' the LeagU:e, of , . ' .. ' - : ...., • ! ..... ; • • ' •• • • • • • : , • • ...... ~ ... • ~ • • • • •• • • ' •...... / • ~ .·. ·_Nation.a a.'1it ..p'ill'E:!Ll.3.Ilt _ t'o ··a m£.nd.ate conferrad. ·u:pon lli_s :Brit~i .c

,...... _:: -.,:••• • : ·· • • 1 > . • .. !...... ,• •. ~~ • ~· • . .;: . . Majesty:· to ._Qf;/ ex0:r.oisud. on h i ~ behalf ·,by ~~~ - Goverma.ent · of . · ;, . . New Zealrui ·, '- . .· : . - -< \ , . . . ,. . . . . _...... · -~ :_ ,' .. · ; . · AND\iE&lEAS t he C:iarter ·of :the Uni tad· Na.tions ·1aig.11ed _at · . --~~n .Fr~~;,i~ :~o- o? ·ko. ;~1a i94-5; _.·;;o_v{~~s- for _-·the: ~-ata~li·~-~-m~nt · ~-· · . :. · ... . : : ,l ' • . • ~ . • • . . . • • , of a."1 int'einat-:tonal' ti'u3te·eship.-~yAte~ fer the a:dmi~iatration .' '_ - ·,. . ..' : ·, ·: . '. .. , ·, ·•...... and. supezy.ia~6n \f siich \t.erri to;ie~.. as· my be. . the subject : of· ··:.-.· · . . ... · . . ... :-; . . .· .- ti;uste~ship _·agreements; •• •--: ·.,.' • - • •) • I,. ' ,. • :.\.,,,_ - .. . ·. -·· Article 77 .AJ.li:O W.dEREf.S und.or the . s~id· Cha:rter .the . in-~ernational '• ·. • • • • t ~· • • ; - ' ~ • • • • 'l .. , , •• , ..... ·,.. -- trua,~ee·ship eys~ein mey be appl~ed to terri h;,r.iea now held.·· under

· ' . , • , mandate; : . ., .· .. . ·.-. .

· · .. : .AND WEEBEJ\q tiie -.Gove~ent of- New Zealand have indicated . .

.' , • I • • • • • ./ / ..their jilli.ngnesa .that tee ·said :international'. truatee.s})ip .. : : ! ., . :'.. : . : ~ ~... ·_' . ··-,· . · . . ' '°\··· ..· ; . ! . :'; :., .. ·::.· ' - ✓ ·. _: ay~:tem b~ a.:pplied. to Western-Samoa; ·_ .: , ..; . .. A.1\fI? ' W~i!;JI.S the-· said Charter p_r ovidea· 'r~:t.1:.:ir 'tJ:.!!-t tho . ,• . . ~

. . ~. -:

:, / • . . . . . - . •• :t. . . ., - • f'or Wee~er~ SamoaF · in Pnbsti tuti01i f'oi·· t.bo te.i·ms,_o!, ~be·· . . .., , __. . af'orese,1d mandate. , ..· . : , . . . ,,.

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; . ... ! • . T/46/Add'ol J;'age 74 .

Article 1

The Territory tQ which this Agres~~nt applied is the territory knovn as Westeni Samoa, col3lllrising the islands of Unolar. , Savai ·,1 1 Manono , and Apolina, together with all·other islands and rocks adjacent thereto.

Article 2 .,

'Ihe Government of New Zealend are hereby designated. as the Adm.iniate!

1ng Authority for Western Samoa.

Article 3

· The Administering Authority shall ha-ve .full powers· of Adminfstrat:l.on, legislation and ju:dsdiction over the territory, subject to- the provisions of thls Agt·ument, and of the Charter of the United Iva tions ~ and r:.ay a:p:ply to tho Territory, subject to any modifications which the Adlll!niatering

Authority rr.ay -consider desirable, such of the Laws of Hew Zealand as may seem appropriate to local conditions and requirements. Article 4

·. The Administering Authority undertakes to administer -Western Samoa in such a n:rumer as to achieve in that Territory the basic objectives of th~ internaticnal trusteeship.system, as expressed in Article 76 of the

.Charter of the Uni tea. Nations, nOl:!Oly:

"(a) to i'urther international ·peace and eec,urity;

11 (b) to :promote the·po1iticnl, ocono:o:tc, oocial and educational

e.dvencement of the 1nhabi tanta of tho ,trust tel;'rito:desi and

their :progressive developm~mt towards self-g?vernrcent or I independence as may be appropriate to the particular circum.-

stancea of each territory and its peoples and the freely expressed wishes of the peoples concor~~d~ and as may be provided

by the terms of eacb trusteeship agreeroont;

" ( C). to. encourage respect f'or bU!lll;u'l rights and for ~dareental

freedon:s ,for all ·without distinction as to' race' . sex' la.'1guage

or :religion, and to encourage recognition o:f the.inter-dependence

of the peoples of the world; and , /"(d) to enaui·e . T/46/ Ad.d.1, . .. Page. : . ·75 ,·· ' ..· ·.. · . . '

to ~nsure ,.equ~l treat:rµent in ~gocial/ ecor.,omic J and eoirmie:r~ial • • ,. • , ' • ' • • : . . • • ., • ' : . , ..;; • '• ; • '.. '. - ~ ~ • • • .. t . : ~ . : .... : ' : • • • :ma:tte;rs .for-. all. l~e~bers of. the _United _li1atio~s .and, t~eir 12,atidnals, · , ' ' .. ,.": .. .. .· , ·...... ~nd als.o' equal treatment· for the latter :in the ·ad.ministration· of

, • • • ~ ... v •• . : .· . : •• • • ...... ju[!ti.ce ,' withoµt _:prejµdiye to . t:t+e at'tai:'.lment of the foregoing • ' ~ • .! , • • • . , .. . . • . . . . . • .

objecti V~B and f:lUbj_~_ct t

. ., / . . , .. Th,e Ad:!linistering Aut_ho:-city shall· promot€1 .~he ..development of .free . ' ; :, . . ' , ,; :, . . . ' . . ·, . - . . '.. ' poli:.ical fpst1 tut ions sui.tad to .W aste:r:n Sa,.TJJo~. . To this. et:id an~ as may.be ·, , . , . .. , . ·,· ~ ·. ,. . . , . - . . . . _appropriate. to the particular circu:ros'te.nces o.~ the Territory. a.n~· ita peoples., . ~. >.· • . • . • - • •• . , . t , • •• '! . , , : • the Adl!.J~ste_ring Au,thority shail' as~e t _~ t ho _1ntabitants of Western -

_ s_a,moa a . prosr~~siye,!y: increasing· share. ;tn the adfuipiat~ati ve .,~nd other • ' , ..., • • • • • ' ... • - • :· .. - • • • • ' ✓ . a~v.ices of·.. tll~ Te.r:r.itc-::cy, , shall: d$,vQJ.op _th~_-:participat~9_n ~9f th~ _inhe.b1t~ts , . . . . . ' . . ,... ~ of.)'lestern Sarno1;t ,in ad.vis~ry ~d-legislative. 'bodie~ ·and-.~n the gov-err,.;::ient . .. . ·. •. . . , : : . . . . •.. • ., . , . ~ - : ! ·• • , ., . • . . of the Terri tc:..7, _and. shalL take . u1,l other.. appropriate measures -wi tl;l a- \ . . ' • , • , • I ., •, , ' ,. •, ,. , • • view to the political adve.nce,:,ment of ~h~ ---~~abJtcnta. ·or·western Saioo& in . . . ,. . ., .. . . acco~dance .with,',(\rticle r§ (b) .~{ the.Ch~·~er ?f t_he.UnitedN!i~t~n.B;· :- . '. . ., ~

·Article 6 . -= .. . .:.. • .. ~ . _: : \ . • - ,•.. . ------. . . .. In pursuance . of 1 ts under·::;aking to promote ..the social _advancep]ent ...... •' -...... ,. . . of the· inhabitants ·of the· Trust Ter:l'1,tory, _and :wi~hout in arty way limitir..g . . . . - ...... ' , its obligations thereunder, t~e Ad.ministering A~thority :shallt 1, Prohibit -all 'form[:'! of sl~very ·and slave .. tfading; ·, ._'. .. : . · : -· . (·. • , . . . . ·. , . .

2 .. P_ro,h1'bi~ .a+l forms of·.r oreod 'or compul~c-:ry ·labour1 excopt for . . . ' ·,...... / - ... essential pub?,icyorks and se:rvf?es ..~ s '??Boif~cally, a~thm;-ize4,

. . . '.by the loc~l. ad!!lini~atration and tL,"~ on;Ly , in .times .. of public . . . : ' ...... ,, . -- ' . . ,/ . .. . • ,,. . . ,. eoerg,;3ncy, with adequate renumera_tion and ad~quat~ . pro.tection:· ·., . . . . ~ . ,

. of· t,b.e . wel:',~e. . · of. the·. .workars; 3-. Control the --traffic ·1n a.,-.,:ns end.ammunition; ..·· :. · ,,,. ,. • . . . . '· . . . ' , . . • , I . • . 4., Con\ r-ol, 1p the inter e~t of· the •inha'bi tante, -the :manufacture,· . . . - irr,portation and d.iet:r:1bnt1.on of into:i:icating ·spirits and bevera.gea ...... , . . . ~ ' and

. , T /46 /Add~ 1\ ;. . ', . Page 76 : · ·

. ,• .... ~

". .. of·. opium and narcotic, drugs.. . . . ,,., ' • r • •, ••• l ArUcl e 7

The Administeri ng Auth~ri ty undertakes to apply~ in Western Samoa the ' .. . :•" ' ~-·" ...... provisions of any . international conventions and reconmienda.t:iona aa dra\lII up

by th_e United Nations .or its epeci a.liz~d aJ enciea -which _a;~, ·.in the opinion ... . . - . ' ...... '. . . ' .. . . , ' .... .,/ of the Adminiatering_Authority, ap;ropriate to the ne~de and conditions of . . . / . : tbe Trust ·Territory, and conduc:'.. ve to the achievement of the 'basic objectives

of' the i nternational trueteeahi J,. syst em.

) . : .Article 8 .. ' .J ·, • • • In f'r aming t he _laws to .be applied in Western Samca/ t he ~a.ministering .. . ~ . - ...... ; ·· . Authority shall take into consideration Samoan r_,.; atcn:a and usages and shall . . ' . . . \ : . -~· ·...:• . , respect the rights and safeguard the. interests, both present a~d fu~ur~, of.

+ •• • • i, ~- , , the Samoan population.

In particUlar, the laws relating 'to· the holding or transfer of land ; .. ' . ., . e~all ensure that no native land may be _transferred eave with the prior

consant of the competent publ ic authority and that no right over native ,. .· ,· . . . .' . . .. land in favour of any person not a ·Sa.moan may be created 'e!-cept with the

same consent~ ..

' ' .Art icle 9 ·' The Administ~ring Authority shall ensure in the T~~ritory freedom of ;

conacie~ce and the fre~ exerci~e cf all. forms of worship, 1 and eha.11 allow missionaries~ -nationals of. any State M~mber :of the United Nations, to enter ' I ihto, travel and reside in the Territory for the pUl'pose ~f prosecuting · ·

tbeir calling • . _Th~ provisions of thi ~ Article shall ~ot, however, aff ect'. ·the right ~d duty. of .the Adtni nis~er~ g A~thori t~: ~; ,.ei~rci~e, -s~ch control

. , ,: . . . . \ , . \ ' . ' :·. , . :. ' . ., . as it may con.sider ·necessary for' the main:t~nance·of peace,- order ·and. ·good •• • ' • • •• • ( • • • • ,· ,• , · f ,,'- ,- ,.. / • : governlD.ent ., • ' • I

. . ,; / . ' . . ~. :Article,10

I . I .· .. /West ern Samoa, • 'T/46/Add .1 . ..:·<• ~.. : _~ Page 77< : ·.:· · .,

Weate~n- samo~ ..sh~i -· p{~;;: i(a ;-i~~,· ~ ,e.~~oti~~~-with. the. Charter. of- t~e .: U~it~d ;atid~s ,~_' in 'the ~ -in~:n~~-ce~:dt 'h1t~;n~ti~~al peace· and security • . To this end ·_:the, l'.d:!ninister.ir.g Authori-ty ·sh~i. be entitled: ·i.-· Te> ea~~bl~h niiv~.l, nµ.l~tru:,y · a~d:,-ai•·•~aaes ··_end: to e;~~t fortifica- · ' . 'I . , • 't . · ticns in the Trust ·Territo;y. ·. ( .- . : '. . .: . . ' '.; . . •, .. 2. To otation and -employ armed_ forces ·:in the T$rrit_ory. ~- .. . ' . To make ...~~~ of v6~unte9r -f~;c~~, ·.ra~.i:i.;ti.e~- ~d ·ass.is\;~ce from •, , ' ' - : . : th~ -T~ust Tenitory in car:ry:ing' out 'the -cibl igat.ions to~rard 'Ghe ,: ,- ·' · ...... ~ .... ~:.. ; . ·. Security Council ·u..,d~rtake~ in thia regard by the Administeri~g.

. ;; ,, ., . . ~·. \ , :'. . _Authority, _as Wfill ~ -·ror ·loeai -d~fence o:Pd the mai~t~nance of '.·

le.wand 6rder within the .Trust.Territory, ./ ...... 4. 'To take ·a1:-1 ·'suc_h other measures in accord.enc~ with the' Purposes

0 0 0 - -: : 'and :·Principles 0:f 'the , ~h~ter '0£ -~th:.U rii~;d. N~~io~s I as ~e in

0 -~h~ . ~;~ion _:~; -t~~ A~i~i~tering '~:~:~o;it;· ne~a,ss~y to' ~he

inai!ltenance: of i~te~atioriei :pe.ec_~ an,d security and the defence

of Western Samoa.

.Article.·il.l - .. .,

The-- A~isteri ng -Au.t:hority. a.hall ,as . may .·.,c _approl,'r.~ate. to the: .··;- circ~tar,ces· .of the T:ruEi·(Te~r-~t_cry; ·.c~ntimie ~d. extend a general ·.

system. of. education, .including poet .. p~~ar_y' education ,and prof'esefonal ,

· training.

: . .' , · Article 12 _·

., ~ . . Subject onl"J to the requir~ments (?f publ'i.c: ord~·r ,· :the;. A~nis!;ering ;

Authority· shall guarantee -to the. inhabitants of the Trust Te~rito;ry-, 'fp~e; I • , ., " '

. ' dom· of ~_pe~ch, 'of the _p1·e13s,, of assembly and of petitiotl:• ·.

'.. ' • •J Article 13° :.. . ·: The ·Admiri.istering f.uthority ''!:1.8:f ~~e. for' -the; co-.operatiox:i. of· ' .. :

Western. Samoa in· .any regionaJ.- e.ivisory commission, . regi onal. technica.?-, . · . ·, ' • • . I ,,, • organization or ot_her. voluntary e,t;SO~iation of sta.te::/; a;r,.y stscialized

·: international bodies·, :public ◊r private, ·o; other forms ·. of, inte~n8;ti~na1:. ' . , ...... 'f a9ti~ity Ti46/Add.l Pase 78 -:

: . I . . ' . . '. .· ~:, . ·_.· activity not inconsistent ~i~~ the t,h~~~~ .6.f .th~-·United. Na:tio~. -

·Article 14. ·

The Aa:,1niatering Authority shall· make to the a·eneral ..Assembly of

the United riation~- an annual report on the, basis of a questiop.naire draw up by the Trust~eship Council in accordance with the· Cherter of the United

Nations and shall otherwise collaborate fully ~ith tte Trusteeship--Council

in the discharge of all the Council 1s functions in a~cox-dance· with Articles 87 and 88 of the Charter. T.he Administering Authority chcl.l arrange to be . ': ' . represented at the sessions ~f the Trusteeship Council at which the reports of the Administering Authority vith regard to Western Samoa are· considered. Article 15

.• . ' The tema of thjs Agreement s?iall not be ·altered or e.mended. exce_:pt ,: . as provided 1n Article 79 of the Charter of tbe· United Nations • .· .: Article 16

If any dispute stould arise b·etween the .Adm1niatering Auth~rity and

·another Member of th~ United.·Nationa, relating to the _interpretation or application or the ~rovis1ons of this Agreement, such ~1spute, i f it cannot . . , · be settled by negotiation Ol' s im.ilar means, shall be submi tte9--- t o the

Internat::..onal Court · of Justice:

( ;he full text, of Chapters XI_I 'and xrri of' the . Cha;ter ( ( see -above) . is annexed to the Trusteeship Agreement f'or ·western Samoa as an integral part of that .Agreen:.er.t) • ·,

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1.;; ...-:~ ·1;;...: J.,v i.:o:i .., .,:...... ,. . . •. 1 • 'l <-Ut., J tl i.,o .,o.:. ::·:t::· ' . ';: I • . I • • ,· .•, .•. ·1: ~ _.... \ :•-:. ;·:10: :f . . •.. ~ n~G.. ~.. . , ::: ..:ftm ➔ .. . , .. ·.:·· J.' \..~l•:{4011.o · ·0.:: ..1 .t.11. ~; -: . ' ... .

. .· .:,-:c:. J. . l. .. :.:..·. ·. : ~ ·.; . ····,.· .. I. ' I i' \.~l: .~-~ l:. ,... ~! .., ..,.\·.5::.. I ' ;,· . ,.. . •. : ,• ,,.; -. : ... ,• .... "\ ... . ~.:i u;,iu ~·-iu.. •u ' , ...... ••',

,_.... , ., .... ~u1~ilu ~-r ~ . ', . , .. J\UrJU~.. · .. · ·. · : ,; ._,,' . .. . :.'• :·.1...L v,.:.... , Ll!::u:,:./ t .' • ., . ' ., ~.,.. ·.· • I ~ .. ~ .... ' . :~·· 11: ··suvea ·· · l :.i G;.,a ... t1.• •...... :-...... :. ..;li e I • . , ', . : : :.~( :: .: ~- ...... ·.·.·· i •...... , .·; 1 · T/46/Add.l: ·Page 83 -:--•.· .

1 I Fb.IPTJLE SUI ·-, NU•U -! 20 D Faamatuainu · T ~ Lelafu • · . Falafa .· Teesago Lufilufi

'.· Tofilau l-1oeioa Iva . Matamua Si3:leloga

' . . \' 22. Touta.1o1.e:f'ue \ Faasoo F. Sale~ula Tevaga· · · Loo.lo. tele ·

Tio.tia Matautu. Faamoe · Matautur

24. Ale M~ Ulu M~ Toemua ·Koe · Vaitele

25. Savea Tuiloa ·Safotu Timu Safotu

26. J?atu Tof'aeono"·.M.,. .Vo. ial~ . Tuiletufuga . Apia

27. Sala Sala So Leauva•a Tevaga I,eauva•a

28. Tapusoa Su•a Sataua Mata•u Sataua

• I 290 Toluono Mata 1 afa Palmili .~agaaia .Faala

30. N. Solia M .. Seun:anutafa Falea.l:;.t;io Auva•a Falealu;po ·

31. M., Faimalo · Leifi Lalon:anu Sagapolu Ulutogia

' ; 32. Fao T'..:lfuga Pisa Asau Ma.soe Asau

Sasina·

34. Tuilagi . Pa•u Sitiveni Safotulafai M. Lio.Matua ' ~a:papali I i /35.' T/4.6/Add ,l P8.ge 84

FAIPuLE Slfl NU'U

36, A8in.ta M. Tavui M. . Satupaitcla Leme.tua R-. Sti.tupaitea

37, Ulupoao T.L. Tiatia Tasi Cataivai Lav.m.au Puleia

SA..moa I. Vailele Fuarri.z.t'..l. I. Fagali I i

3 ~: . Taua vame a U. Naea Sala 1 :i.iua 'l'oi10lo Taga _: ..T/.46/Add~l .•. <:Page 85

... •, ... ·. ·. · GOVEB}1MENT TBANSMI'ITING TEE fll;'l'ITION • -----·-----...... c ...... ~='- ...... ;....'--- '' ... . TO THE UNI~D NATIONS

: ' Minister of Exte:rnal Affa.:t..:rs,3 . ., . .

\ · Wellil~gtcn, N. Z.

24. Jan.u.a:ry 1947

Sir,

·, , • • ,1:'' , . • • • • • • \ •• - • Trusteeship Council, e. petition f1•"m r-:--::.,resentative Samoan Leaders cf • • --:~ <. -·----=-·-,-.- --·- .,, ·. - ' ,,;• ,f , , Western Sa.lilDa. ' \ -' . 2. The occaa ::.on: on .vhich ~~~ ·:p~\,i tio~- ws prepared ancl:~resented to " . . ,' .. • · .·. -.~ · ~;· :· . . : •·."· I .' "'.· ~-, · • .. . the Acudnist~tor· l\'S.8 a public g~therinc t6 -which the Ad;~ niatrator . ·.· . . • • . • : · .' .· : ' ' t .,,, . • . . invited. all Samoans ;ho w:t shed- tQ a,ttena./ in '~rd.~r· t~-discuss the prop6eed . . ;. Truat~eshi'p. Agree~ent for the territoi,y· i~ the d! .'~·f fo-;,m in which it -~~-- . . . . \ . . , , .. ·. preee~ted. to you on 28 October, 19ti6 • . i;he Admini1;1trator .iclormed: the. ·

• • . • • ' - ' > • t • , • • • •• • - • • : . • • . • ' ·: : • • . "

peti t i onera tha. t their vi ewe would. be .me,de kno.i,,-r.i. to the.. Uni . tea: Nations .. · and tha.t the p~tition.woula.' be p,1.aced. ' before 1;,he T~~~·eeship Council _:· ·: . . - ' ' . : . . ,:-.· .. - upon its f ormation. , . lt "will. b e r~ce.lled.' t~t the New Zealand . re:presenta- . . ,· . tive informed: Sub-Co~ittee l of Committe·o IV at its.meetir>..S on 23 ·:No~cml;,er,

and during discuss~ona in subsequent ~~e:tj.ng~, · tha:.t ·the S8ll1Dw..a· · ·had· ~xpreseed .

• + ~ •• • : • • • • , • • • • ,

; • + • ~ themselves as not de~irir.g a Trust eeship Agreement .but iILined.ia t~ self- :_ Ii government.

3, The New Zea.land Government will be pJ..e~sed to l;earn, in due ·course, ·1 · • ·, • what a~r angeme~ta are' p;op~~ed for· tbG cxa.m:lnation oi,tilis petition ·1~,

.. ... ' • . consul.tation with the Ad.minieterir.g J'.:ithor ity. ' . ·. r have the honour to be, . . ., S;ir, _ .

·Your. obedient. servant, . / -., ', ... , (Sgd·. ) . P. Fras·er: · . • . . · ' · . , Minister of External Affairs The Secretary~General, United Na t i ens, .. P .O. Box .1000, . . NEW YORK~: 1. N.Y. . ,,. , , . • I T /46 /Add. 1 - . AFNEK V Page 86. ·.• 'c

The United Nations Mis-sion :west~rn Samoa in a \ . tci ~ ; sense represents all·.mankind. It was -sent· to Western

Samoa by the United Nations which is a kind of world

Fono orfanised to promote universal peace and wellbeing. - Fifty-five nations including New Zealana-are members of this organisation. In order to achieve its basic purpose, the United Nations has six principal organs; the General Assembly, the Security Council, the Economic and Social Council, the Trusteeship Council, the Internati.~n.al· Cour.t -of .Justice and the· Secretariat. Thjs Mission -represents the ·T-rustee- - . . ship Council which is the organ principally responsible

for the operation of the International -Trusteeship System. As is well known, Western_Samoa·has come within

this system·because the }Tew· Zealand Government, \Vhich VJas the mandatbry Pm·,er in the days of the League of 1'-Tations'

considered that·it i~ reioonsible. to th~ world. as a Whole for its conduct of the administration here.· At the same

time the org"anised community of nations feels· :t ts own 1 responsibility for the v1elfare and prog;essive development of the peoples cf Western Samr:a and of. the other· -trust

territories. The main objectives of the Truite~ship~System as s~t forth in the United i,rations Charter (f~:·ticle 76)" are four:, (a) to further. in.ternational peace arid. security; (b) to· promote the p<:"litical, ~cono~ic, social, ' and ed~catiom~l advartce~ent ·o_r the. inhabttants ·­ of the, trust te:r;i tories, and . their progressive. (1evelopment towards self-government or in..: dependence ~s may be appropri~te to the ; . . . .; • ; '·' . : :... . T/46 iAdd: ...i :. t .i ··'.· . ;: .. . t:.i u1· . . . t· ...... , . Pa.ge 87° ',.': . ·, ·: · · ,. · :· . P?r :.i.;~ • ar :-c·1 r~ums arrces -·oJ.:.. ea.ch territory ·:. .-· :, :_- ...... · . . ,...... \ . -- ~· ~nd'. .i_ts -~-~opies.··. ·and~_,the' .f~e·~iy .'expre~·s.~d: -

. : . . t ...... -:·. : . . :: : . _· • : . + • • • ~ • • : · · ··: • ' • - - : • • , · ~ • • :: ~ - ' . • .wishes ·_ of :,the . peoples·· ·concern¢d, · ahd as,. may .. . >

• • 1 : • • • • • • • \ ~ • • - ' ' · . \ _: • ' • : • • • • • • • • • , • • ~ • • ; ·: · • • . _b~ provid_ed __ b)( th~· .~erms of·-~ ach trustee:sh1p . _" ,: . ·. . • . '• ••• • • • • ' ...... · ' t • • agreement; . · _ . , ·, (c)·\~ ~~c6;~a,ge ··~~spec/_for. human rights and··. · ,: , _· .-_ .. :

•• .. ' • --~ • : , • • • • < ' .. ' .' • • ' • • ' •• • : • • . • ,.,.,.. • •• - - • for fundamental freedoms ·for all with.out -~- .. : .. . . . - . . ~. . . . . ; . .. .

.d -istinct,iQ~·:·~-~'·to- ;ace,:.. ~~~, lanf~~-g~ ~; . ' ~~l_igion,.·. .~nd t_o.enco~ ; -~~-~-:-·;e_c~g~iti_o~ -~f · , ,

• \ ·!' . • • • • •• ,, : ·· : ··, ••\ - : _ . • • . : ·- . • ' . · tµe . inter·depehdenc~ of the . pecples .'· of the . . • • • -. ••• • + ·: • • :. : :- • ~ • • ' ...... \ ' • • ' . ... • : ~ • • • • • . . ' W(')ricf ,· . ··. ~·rld: . . . . :' .. . • ' • c:l • .• ... , . ~ •. ' • • , •• ' ' ~ • ·,. ~- · · ·', .. . ;·,·- · f , ... , , ~ • • • • ~ ~." .:· ' . : • ...... · (d)· to en~1~e. ~·qua~ ..t;r.(:;a~~ept ·. .:lr\ _.So~ia1;. econ0m~c ·.. · · ' : . . . .. ' , ...... ' .. : ·~ .~ . ' . . . -,; .. . - . \ ' .' .; . . ' . :,, . ' ·...... ~ •' fin.a .Q

. • •· · ' • . • ·• ..• . . · , , · • • •. · . i , · , : . ... . • . ; . _ _ : · . , •• : •.-· ·, .]. ·_and·al'so ·equal treatme·nt fcir_.--the iatter iii .· ,-:,_·· : · · .. _, . . . .· . - . . . ' : the adm~{s.trat:i.oi of justice, .\v~ th~ut'-pre~ ·:: ·.·: ,_- . . . .· . ' ' .· : , , . . . . . ~ . '. ' : ·. ,. ~ - ....~ ...... · )ud~ce.;_ _to the attainment.. of .- ~he . fore_g.o1ng · / . · / . • •• • . ... : • • - • + : :. ,.' • • ,,. • • • • . obj_ectiy.es and subject : t-o· the ·p~ovisions·,.~f: ' . . .:' : ,. . .· ~ . . :.· . . ·: :. ., Article .80 -,f theChil.rter. · .. . .' • ' . ~- . .• ; !•; .-•. :·. ., In· order · ·to en~ur.e· the- fulfilment -~f' th~.s-e, ~bje~tives :··.· ·".' . ·: the . Trµs~.e~ship, Coun~-~l .was . set·... ~·P ·: ·~1i th po~~-~ - ~~ rec~iv~ ·:na:~ :-'._> • • . • • • , . • . , . , , I • _' : ," I , , ., , ~ > • -. ~ :• ,

4. ... ' '·-. ,' dealing with ·the administration . o.f_· the t·rust · t .errit~:r·1·es., -. ; ' . .. . . , . ; . to 'receive· petiti~ns ·concern:l.ng·· trust ·: ter~_it~ri~s ~nd ·t-o·:·., ·. . ' . . , . . . . ·- ~ .. :. .•, . ( . . . . \ . ' . .· . , .. . ' . .. . ".,. . . ,,· . .,. ( crnduct periodic _yisi ts to>these territories. • · •,.. : · • • • • • • • ....· •• • "', < ' • ' • • • , • " , , : • ,.. • • ' ; •• •, · -: _; '. :. · The· .Couricil- ·cons1sts of ·all , the States 'which .alim:l.n.i'ster :. :.. . ~ • -. • • ·. -~ ·•• .. • . . . . • \ . ., ! ' trust te;r11;;orie-s and an ·equal :n.u;ber,. of ·St~t9s .;bjch :ao·:• nbt : '.· :' ha~e .~.d1tti~d s•.r.;at~~u · 1•e~pc:r~:s1:b~~{tle~ .. .· The·· five ··.P~~~-i:-~: ...wh .ich·.·: <. ar~ pe;~a~·e~t···~e~beri1;: ;f \~e ~~·c,~~~ty_~ -o~;;~~;_, _·n;~el .y•:·th ~ ··· _·: '. ,:

' , • • ~ '. • ••• ' .: • • .~ - • , • • , • + '- : , • •• • - · : , · . - • United. Ki_ng_dom~ C}:iina,,.~thf{ _S,ovi~.~ Uriio~,.-,.Fr~n_c~ .and ·'t~e ·:.-.·:.. .. :' _.. . ~ . : / ·. . : ...... -. " United· S,tates ·must: alway.s be members· ,cif the .T r u~t.eesh ip ·,.: .. : - . .. . : -· , . .., ' '?. /Itf. /Add. 1 .Page 38 / At present there are five ~dministe~i~g.merobers:~ the· • . i • United Kingdcm, Fr3:nce, Ne,~ .. Zea],and,, A.u 9tra-Iia. arn:1, : . . Belgium. The other five members are· China, the United • • • ' l ,, . , • ' • States, t;11e Soviet Union,.MExico .and Iraq.•

In the trusteeship system the Government of New .. -, Zealand is entrusted with t0-e.admiJ;1.istration of.Western

Samoa. The 1-' ew Zealand Government. }s a party to the

Charter of the United rations and als·o· to the j Trusteeship

Agreement and ,is responsible fo:r; promoting ii} .We.stern Sar.ioa the objectives of th·e trusteeship :systenii,, The Administration of Vvestern Samoa by the New .ze~land -Govern-· ' . ment is subject to the supervision of -the Trusteeship

Council and the G0n,qral Assembly a The possibili.ty of direct contacts between the people of Vfo~tern Samoa and_ the Trusteeship Co~cil is secured by th_e pro'lisions. concerning peti ticns. and periodic visii:s to the Territory •. In accordance with the Charter of

the United Fat:ions and the.terms of the agreement- by which

thi9 Territory ,was placed within the system of trusteeship,

the l'ew Zealand Government, . has transmitted. .to the _Trustee..- ship Council your petition requesting self-governme.n-h and asking further that an end be put to the division between Vlestern Sam~a and Eastern Samqa under United States adrriini­

stration: One cf the underlying objectiven of the Trusteesh~p

System incl '<)des the 11 progressive. developmentlt '· of the inhabi- \ : ~ - tan ts of ~he trust. terri to:r:ies 11 ~owards self-government or independence as· may be- appropriate. to the~ particular cir-:,. ·· : . . 1 cumstances of each t?rritory and its ~~oples_and. the freely_

exnressed wishes of the peoples. ccncerned". Your peti t'ion . .,I. ' • • •

I ~ • \ \ ~, -, • relates to the· app1icat~on o.f this· proyisiqn. to. Western ·

Samoa.: 1 >T/4~/A"1.d. i·. · Page 89 : ··

. ,' . - . \ manifest the Trusteeship Council''-s deep· interest in

' . your welfare that it established this Miss:1,on and sent

,US here to-learn the rele'vant facts and to report our• findings back to .the Trusteeship 'eouncil. It is not for us to make any deci~i_on. But ·1 t; is our· purpose to discover all' the necessary information which will enable ~ ' ' ' the Trusteeship Council to ma.ke just, 'appropr;iate and wise recommendations vdth respect to your petition.

Any change in th~ Islands f administration vi/ill req-µire the con.currence of the 1'1 ew Zealahq· Go,;ernmeri.'t, In dis­ cussion13 in }1 ew Zealanc!, th~ Mission has, been assu~ed by the Ptib~-Mihister t~at ~he rew Zealan4 Government - ' ' . I ,,, t .· • , • , \\Till give, the gtc_atest weight, to ,the recommendations :following :this Missie:p I s visit i:;o VJGstern Sa:moa. ' . . We welcome rour assistance and cooperation. T.f46 /Add; "}- . Pag0 90 POil1TS 81:T.BNITTED·i·.TO THE MISSION, BY TBE E'CROPEAN CITIZEYS' COMl~ITTEE ON 9 JULY 1947. INCLUDI1'1 G . · ·.Al-IBl1DMEF~S FADE• ON 11 AUGUST 1947

POINT 1·: · TRAJl1SITION PERIOD 1hat.~_Transition peripd of ten (10) years be est~blished.c;luring which time the . people.of Samoa are- to ~e trained for self~ g-overnmen t_,. to be followed by a· further period if found necessary.

(a) During this .period J\Tew Zealand officials

to be gradually-replaced by Samoans and l(')cal Europeans whenever vacancies .occur- ·and when c~pable- persons are available for such posi­

tions •. (b) Present locally-appqinted offic+ais to t_ake u:p advanced course's on subjects. relative to their pr_esent jc.,bs with the view of quali­ fying them f0r higher positions. fOTITT 2: LEGISLATIOt-T That the present constitution of the Legislative Council be changed and replaced

as follows: (a) Members of the. ~Legislati_ve Council should be elected from the permanent European ' .• residents of the country and Samoans. (b) Council to consist of seven . (7) Samoans and five (5) Europeans ahd not more than six (6) Government officials~ (c) The Adminis.trator to have the power of veto. . ' Europeans to be elected by ballot according (d) \ r - to the present .franchise, • ' C '., , ·T/li~/Add,-1 .... . : .. . . . - Page 91 . ·-.. ' > • . • ' ·-· =-~ ~ ,•·: -~· ·.,,, ·. ,. .• "" ... ~- . t~ '_,.. ·' :-··. -~ ;_.. _ . . ' : • . : \ - (· :-'"· - .· ..: . (¢ t ,~Sa rnoan:)nembe·:z::s ·: t9· ·b~ ·:.appointed or .J • . • - -·. ; •. • • ;:· ~ ..• • _ .. ; _ : ·~ . ... -•• : · · ; ·"· · ;•;· •.:...... · elected· ·-a·ccord 1rig to . Samoan :·cus t'rnis .: . . ' ·: . . . · _., '·. :· .. ' :\f) ·· ·T~;rti b~ '_ b:rt:tcJ · ~f -L~gislative ··co~·c:1.1 . ··

. ' ") .· . : . ~ ' .. . - -: ' ..

, . . . . ' ...... : . ·. .,_ . ., ., . n· ·; - . . .. ' : · · - ~. . · . . . ' .... . , .. . . .· ·.· . ·.· T~at a Fin_anct:i°' Bo'.3,rd ):>e ··appointed by . .· ·.: ':th~ i~gisi~ti;e ·c~~~{i. c·o~~-i·s·ti~g···of n.,ot . . ' (. . . =: . ·. . • ~- .: .. • . ... • • : ◄• ~ . ' . : .. •. . . ' . : • less-. than three and not m~re than five ·. members -to··;onst:i.t~te: the B·o~rd. '.. : \~) ' ·,:' The •Boa~d·. 'to ;,re~ie,~. ·all ·estimates ' ., • • .. • • • ~. • ' r . ':' . . ·, .. . . of expenqi ture ;:an'cf f,evenue b·eforE? ''the ·<:Cm-:- ' • • - ' • • > • ' - • • • • •• ,.

0 0 merid~m~nt --~f :each fin.~ncia], year·. ahd \o be . . , ' . : . . . . ~ . . ;ub~it'.t~d :~tJ11· th~ir,. fec·ornrnendat·f~ri~ 'to . . . - . . . . ' . . . " - the Lt~g:t;51~ ti'!e ~9~c11, ·. ·: '.·:•. •· . ·, . . .. ; :. ''.~(.bf ~. > Ali ~stilriat~s 0 9f---e~p eri,di·t,.;_~e·- must . • • i' • ~ , - • •. • , ,. • ·• •~ · ·be · passed by· ·the Legislative· Counc·il .ori. - ·. . . . , ., · a ~13.-j ori_ty:· VQt~ ~ · : · -. · ·, · ·. filWCAT 10[1 - ' · T.hat th~ Co~i ttee ·fuli y_ -supprrts .the· ·.- '_ 0 s;ste.m of ed~catioi( 'outiiri:ed· by- M~. Parson~g·e . : . ; . , . ., ·,. . >. ~... ,' : • ~ •• • ' • , ... wben he ·addr.essed the ··F.ono of Faiplll:e in ! . ·August/Sept·e~ber,' 1946; .· a:n:l ·v;i'tti'.·_ t~e· f_oll C'\'!ing'_: .

. ~ • . .• 1 ~-- ! •. · -. . ·.~- ·. • .~ • . · added recommendations: ...... ,. " : (a) . · > That· ·aqdi ti6~~i_fa~:11:tt:t'~s be· made

• • • • • • \ ' • :. ' •• • : ~ • ', • .• :• I : •• • • • ....~ .:..: • · immeditttely available at, Apia for_ high ·

• • ~, ••~ •, . ft '_.,· • • .-,,. . • · • ,~ .. . • :: - I . ' .• ,• . , ' : sch~ol training equa~ to ~ew Zealand high . . .. ' .,, . . .. , ' "', . •· ·, .: schoor standards . The aim will be· t:'0. pro- . ;. _ ~ ~ · • '':.' • . •.. ~· · :.. ... • 1•·. : · · . . ~'·, ' : vide .·ye·arly ··.rrrm .thEi . ·h~gh ·s·chool ·a number :~ .6f ··Pu~l i6. Servi6~ entr-~ni;·•·'t'~/'i .1ri/:juni of ··, ·__ ·/ ·.:. •.:~~bi'.16 ::~~;y~n ~,• 'p;~·i i1on:s ·.D~~-~:e:1: a· : b; .. ·i~~ . . ,., ,.. ·.· ' por'ted· of:ffcia:(s\i.t :: . ' _,.._ , • •. .• : : • ' ~ • . -• •. ·\,•· ..' .. , . -.t... ·~-._...· · . .., • _ ·... ' '\ ", : . . • : • 'I I • • • • • ' ., ··: T/46/Add. l . ·=./ Page:92, · ' ·

. oµtstan~ing pupils· of_ the ..high schools . who

• • J- ' •• • : • • • • • , . • • • ~re. des i r ous of see~ing adv~nced training

6ver seas. on .specialise d· subje~ts' ·;.-· (c) The establishment of ni ght cl~sset ·1n ..:·· ,, · : -·\ . ·:conj unct ~on wi½h the High· Schoo_i · to affor d ,opportunity. for. instructions_ 1n further :· ...... ' ; . ~ , . ' . . -advan_cement in commercial, administrative ... 1 and :te_chnical: subjects . · · . . .(d). Recc:rnne~1~ compulsory education ·making the elementai~Y _school age f r om 5 to 16 year s and also the 8nfor·ceme·nt. of· a ' . leaving age-. to. be de.cid.ed upop.' by the Board of Edup_~t~1 .· n • . • (e.) That a Boa1·d of· Educat;ton· be :set up· t? go. int9,- ·all matters~ pertaining t o education~

P0il~T 5: HOUSE ·OF :F'Jif_!:I.E That· -the :functions '~f the -House of .

Fai:pul~ r emai·ri a-s it is today. (a). . Tha-t a system of e qual r epre$'.antat;lon. based on population be. r.ecommended to the . . . . . -~ S_amoans as follQW:s,:·•. •. .. ..: 1 f4tipule f:~1· Dis:tr--ict with populatJon up to. 2Q0◊

' II . 11: . .. 2 II .. " · ti fr-om 2000 up to 5000 I ' ... ' . ;t, . fl ,, \ . ,, It. - II II 5000 7500 .· 3 . ' " fl II -H. rJ . '1 II 1oqot, 1\: 4 ".. ' . " '. 75oq .. (See_ ~~t~ch~d. list_ _for _pr:op~sed set up as a~ve) . . POTI1T 6 : AG~ICULTURE . · · · · ... , ...... That q. ~-epart~ent of Agr::tcultti;e b'e ··~et up 0

,wi t ,h· a • Diie.cto/ ·of Ag:r'icul ~~~~ - and.; assisted ' by _. . \ ' • • • • \ • • • ' • -. : . , \ ' , • • , • < • , ~ '•• I • • : a 0, sina{1 ~oa;d· ,.t6 a.ct ~s ·a~-~i~~rs: a~d f or~ed ·rr-om: • :.. •, • • ~ • • -.. • - • • \ ( I , - • • ~ • • • • ._ ._ • • • • • 4 • • • ; : ·:i;·c~l ·plan:ter.s~'. . '. .i: .. .: . ..,. .,. '. ,_,.-,.;:- ,:'; ;:, .. :/ <· ::: ·;~ "· ..: . .- ·. •. :. - ' .: ;'• ·,_:..:· ·•, .: ..·; \ :.::·:-::<<"-..:::•: ·,;'~·~:"· <·:•_·.:::-:· -.:::~:·: /::,,: _:_;~~~-:.·. ->/ >. •·::-: ;_:\-:r,~>,r;:t _:.::: .• ,\ .- :- ?·.i,~:::;r 0. ."- , ·PRO~OSED·~~UP OF -FAIPULE ACCORDTI{G . ,: .-.. -:.. . > ' · TO POPULATION ",IN EACH DISTRICT ' ' ..

- ··

-PROPOSED ·1'.lt.JMBER,,

UPOLU -ISLA~-: n . . . - - ' ,), . ' ·• ... :· 4 . ,_. •. VAIMAUGA ••.; i';~ • : ~· ~ ~ :.· 9, 023 ' ' 2*, '• . ' '"', .., ·- . ( . .. . . ·, . ~ .:. : . . . . . ' . : .. ' ' .·· :' ~- ;. . · F ALEA r A • • •· • •· • • • • • .• ~ • 4 ·, d7 5 .: ·· · ·, . 2 2 ' . ~ • . • ~ • • . . " '• • . . • \ • l • . ~- . ~,. ' . SAGAGA PJITD _LEAUVAA ·•• 5?218 ,' ·. - ' · 3

...... ·' · ,• . :. ' ; . '· APJJA MATU. (N.orth). :-: 5 ,A-67 . · · 3 ~ I ., FALELATAI ·pjrn .SA1:.A.'~ . : . TAU: •• ~ •• ! •• ~ • .: • -. ~ 1 , ~84. < 1 ,, 1 1 · . . . . l . LEFAGJ\, A1' D.' q/~LEAtJ:LA ·. i _, 696.~-- . ·: * .( • • ' . . . . TUAWJ\SAGA _'Cs,outh) ...·: ·.2, 712 :··, - . 2 : < ·. 2 . ,, . ,'' FP.LEALIL r ••••••••••• 2 ,.135 , :- ..: .. · ·· · 1 * - · 2

LOTOFAGA ·: ~ ·1 D LEPA.··~-1,495·· . . -.. 2* -1

, • • • • ' • • I ALEIPATA~ •••••••••< . ·. 2,444 2 '.- ' '.,: _2 . :- · l :_:l : . ' '. .;,", V M - 0 - FONOTI -••••.••.~l ,'340 .. t : •. : -. h • ,~, i,' ;' ·Af'l .OA]ilA 1 A·.~. ~ • ;.- •. ~ : .• • 4 , 133 ·, · 2 , AIGA-I~LE- TAI ~ ·.:• • •· •• i ·; 6.9_6 . . , . . .

SAVAJ.'f 1 lSLAFD ·

FA I ASALELEAGA.~ .·~ •• .'. 5 ,409· , . ,• ' ' ' '. 4- * 3 < • , . , .. : ·, .· .... GAGA '-El-~AUG_A ••• ~ ••••• 2 ,-145 ' ': 2 , ' .,. . .. ,. G:AGAIFOMAUGA ••••:. •· .' •• 2 '759 . 2 • • '·•• •, • • • I . , VAISIGAGO.·~ ~. :· •• ·•••• 1,46 ~ 2* 1 FALEALt.TPQ ••.~ •••••••• 510 <- . ' . ALATAUA. SISIFO. (West} 842 1· . . . , ,,. ".. ,. ' . -. - .. '_ ... ' .. i .. . ' I ·. . . . . ' . ' ' 1 •f , •, ,• '; ,I ' ' ,·' ~ . . 1 PALh.ULI (West) •• :.;,•• 1 ,323 ' ' ! . • • I • < ., - ... . -~ . , ~ .' sXrruPA i I TEA -~ : ••• : ~ -~ -~ ·: s·52 . 1 1 .

. , . . :·· NOTE·~. t ·:,1.s wh~r ~;;ch~~ge_.· ~ugg~s-~e~';< ~-: :_: . ·: ~:_Y . \:::'. ._'.'_.-... _, ,. ~::::·):·i<: :·:- ·:,:. · .. , , ,. ..·. ·..

. .. f.gmrn1J.ni9&-'!t£Q_.;,to th.§...MJ.&.§ion by the .Hen. -Tamasese· on · . . ?I.}uly 1947 ·. -. . . .

(l) HEAD OF STATE : The Three Fautuas • .

' ' ' (2) PJ~RLLu~rT on ri GISLATIVE BODY : 41 Samdari. Representatit . (Fai ou1es) 3 or 4 Eurqp~ah Repre­ ~ent~tives (Proportioo to tctai ' populaticn 1/12) . · · - Head's of b~pa;bnent~ b be present at :meetings but -t hey have .no v?te, :

(3) N. Z. REPRESEl; TJ.TIVE IN. SA1/0A : · (a) The·Jl'rew Zealand· , Repr esentative ·to h~ve the ·nower of veto ex­ cepting the foll.owing · -subj-ec-t'? : . Sales of Lands and Irami· grants, except Missicna· ries , Go~ernment offi- - cials· and people r equire · ·by firms' for posi ticns that cannc:t be filled by .. l1Jcal'-people , · under Nn· tract for -a certain period . · · ·. (b) The Representative o rew Zealand should be ' the protecto'r or Consul for foreigners.

, ( c) A resolution passed by the Fono Gf Repre­ sentatives and vetoed~ . the YetJ Zealand Repre­ ·scn tative could be · referred to the United Nations for- final dec1- s1cn·. ·

( 4) ADVISORY COl;T}UTTEE : (1) · Health / (2) Education . .._ (3) Public.Works (4) ,Finance· .. , . (5)' Arr i cul tural . All the ab_ov~ Committees ·. . --decisions· or. rec("'rnmenda· · · tions will be put befcrE ... thi.· Fo~o of ·Fa.ipule_ for . : ·,--. ! :t: , T/46/Add.l· . ,Page 95

thei~.approval~ \ . There should be a Board with full .power to select• local_ p~ople on their me­ rits for govern~ent posi- . tions. · ·

(5) .CROWN ESTATE LANDS (NEW ZEALArm The petition of the Samoans REPAR:~TION ESTATES) ' is for ~he Crown Estate Lnnds to be given back to ' thi Samoan :Government for the future genetations, be~ caus~ land does not in-· crease but the population increas~s every year. . T/46/Add. l Pag~ 96

_____ANNEX VIII ..;__

ST1-1.TK·'IENT =1ADE- IN THE HOUSE OF REPRESLN'I'A.TIVES

· OF NEW ZEALAND ON 27 AUGUST 1947, ,

BY ACTING PRL£ i-lIIHSTER, THt RIGHT HON. W. N1,SH,·

ON POLITICAL JJ.DVilNCEl:illNT IN W.SSTEHN S11.L!IOA.

Introduction

I desire to inform the House tho.t the Government hD.ve under consideration certain constitutional changes in Western S~moa.

The House will recall that, soon 21 fter the Government assumed office, they becc1me aware that the aspirations and political development of the Samoani enabled them to tak~ a more respon­ sible part in the Government of the territory. In the period before 19)9 some preliminary steps were taken towards giving the Samo2n people a greater voice in the mannge­ ment of their own nff.::::.irs, but the distur1,ed conditions result­ ing from the war .del2yed the development of further mee.sures directed to this end. In 1944 the Prime Minister, accompanied

by l'J.Ir. A.G. Osborne, 1111.P., Parliamentary Under-Secretary, visited Samoa to learn at first hGnd the ideas held by the Samoan leaders themssl ves regarding poli ti ca~l advancement • . TR{L~tEESHIP AGRE~/~N';r

In October,. 1946, a draft trusteeship agreement for Western Samoa was submitted to the United Nations by the New Zealand Go~ernmen~, ~nd plac~d before the Generjl Assembly for ~onsider­ ation and nppr6val. This prcivided for the replacement of the ·.· T/46/Add.l rage 97,·,

League of NationS'::manci~te·, py -the trusteeship agree:nent, which brought the terr:ito~y·:withiri fhs· framew~rk of the inte;m{tional

, ' ., - - - . " ; I , -· - .. , ~ ·:-:· , . '/ • • , - 1 , , trustee ship · system~ _ established· w1der 'the Charter. of· the :United , " ' _, ., ' - ,. Natioits.. • The agreement._was approved _by. the General Assembly on 13th Dehember, ~946. In t-he meanti.m~. the Samoan people had been· consulted regard-

' ' ' ing the _terms of :the draft~ · Their repres_entatives declared thi1t ',, . ' . ' . -

on the mc:tndate, · and th~y st.tite~- the:ir ,,appreciation of t_he syY11,...

pathetic manner ••in whicii they- he.cl been tre2-ted by -the Government, , _~ • . , I • . . - and of t_he pr?gre,ss rrade d:--tring · the' pa~t ·. teri ye_ar~ in d_eveloping

sociol services,· but they felt that ,their ultin2,te aim of. self- , ,:..,, .,.<-' government would n'ot · be furthered. by :accenting the c?..greernent. _ '·, , . • I, • ,_ • • Accord.ingly· :· . they asked t·ha't Sam~a: be· grt:nted seif-gov'e_rnment - and that New Zealand remain as advi SE:r :md P,ro~'e,ctor of Se.mo 2. •

. CONSULTi.TIONS IN Siu.mA

} , - During recent' inon:ths the~ Government' have C ar1;:;fully_ studied

,the whol~ quest ion·,·_ cind consulted: wi ~h ,ths S,1}Yloan leaders to·· ·discover.· in. wh2:t .m.anher the wishes of t_he .S2moa.ns cnn b2st be /

/ ' . met in the immediate future~ ' In undertaking this task the Government_have been grea~ly helped in ari examination of the 'po,sition by the _member_$ of the

United Na.ti~ns 'rvi{ssipri, wh_ifq, at.: ~eii Z~atnnd' s request, i~ ·~ •

' , • ' ' ' , ' _, , ' ' ~ , c·,- • ' ? visiting vv'estern S;:,moa in conri'ection :with the Snmoan petition · to the United Nations. Trusteesh:ip Coun?il .:

, ·. DBLIGnTio'Trs. oF TRUSTEESHIP

,:''. - Ur{d:e:r the ter:ms ;or· the' t'r~.stee ship<'agr,eeme.?-t New Zeal~nd, •· is ,chv.rged with the'_responsibiiiti''of progressi 1:ely incre~sihg ,,; the partici;ati·o~ of, -t~;: .Sa~~-an .pe·_~ple ~n the ~~-ntrol ot thei~ /' . / . '

.T/46/Add. , . i .. Page 9g : . . -· . f ·own affairs. · Our cons!-,lltutions wi tfr the' , Samoan loc.ders have led us to believe tht1t a substantial .step· for-wnrd·, can now· be

t3ken. . Accordingly, the Government have worked out plans ··

which will give the Samoans an · increased measure. of r 6.spons- • ' I ' ibility immedi2.te'ly, and prepare th8m for t -'..l.king further .. pr~gressive steps towa rds.self- government. · These · plans are now being di°scussed with the· representat~V8S of the ·samoan • · people . The details of the Government's proposals are:·.

. . , COUNCI~ OF STkT8

The establishment of a Council of St<.1te to advise· the .' hdministr?.tor or th8 High Co:nmissioner, e..s he mny in f uture .. , · . be called, on ~11 important matters of policy affecting the territory. This Council would be compos8d .of the Iidr.iinistrator,

as -represGntative of New Zeo.land, and the· three Fnutua, ·who ~re, at present, the acknowledged representatives of the SAmoan people . Future appointnonts to the· Council ~would be ma.de by­ the Governor-General on the nomination of. •the. . members of the Fono of FP.ipulc , and .the Samoan members of the. legislature ·sitting togetber ..

. , , LEGISLATURE

lt.is proposed to replace t~e present L~gfsl&tive. Council

. by·· a legis~~ture ln ~1hich t.he Samonn members -would h.0cve nn

absolute . majori.ty. T°hi s body, would be compose(! of the. follow­

ing groups: -

' ' . The members of the ~Coun~i l of' State~ . . Ele.von member.s nom i nc'.ited by, .the,. F~no of Fll~pule j Five·: reores~ntoti ves of the local Eu~opeo.n . community elected· under· 3:dul.t suffr~ge; ·· : . . ' - ' .. • . ., . "· ,· ,' . ' . Six ·o.f.ficial m'cmber·s . \. T/46/Add.l. Page 99

The Administ:rat:or VD uld .act 8.S Pnrsident of the_ Le'gislature,

and would possess only- a . casting v_ote. The three Fautua WO tlld,

have all the rights of_ordinary members.

POWERS OF _LE:GISLATURE ' '

Whereas in the past the po:wers of the·L~g1slative Council were limited, it is proposed that :for the.future the legislature should have full ,powers in ~,.11 rnatterS affecting the terri tor_y. In the case of legislation on the following subjects·, however, - ,, ' , ', • f the-consent of the-New Zeru.and Government is necessary before it becomes law: ext8rnal affnirs, defence, the control of the· . - \ ·' Public Service, the imposition of discriminatory ·Customs duties~. currency and banking, · immigration, and any ·matte.rs [.tffecting the

prerogative of the Crovm or the title to Crown lan_ds. ~

. . . Tn view ·of her position under the trusteeship agreement,_ New Zealanct·i:nust.continue to hold general reserve powers of.

legi slat ion 2.nd of. disallqwa.nce of local legislation. But th:1s necess2.ry resirve power will not restra,in the exercise of ·

a real initiative and r~sponsi bi1i ty by. the ·new -Sa.moan legi s- lature. In rega.rd to financs, control would be vested in· the Legis...:. lature, but measures dealing with financial matiers 6r involving 'expenditure would only be introduced with the consent of the ..

. Administrator. The audit of the finm1ces of the territory would· - . continue to· be made by the l'iJew Zeall'..nd Controller and Auditor ....

--Genera.l.

-----~~--GOVERNT-~NT... --- OF ,lESTERN-~-~- _ .. _,_ -c-SAMOA,__ _ : . ';.. . .

· In future/it is prop,osed t.hat the titl'e ·"Administration .. · I· . , - . , . . ..

/. . of .Western Sam;aTT should be replaced .by that>•of flGovernment of . , \. . - - . ·. ·- .. Western Samoan.,- This might:):equire a number· of other "corise- T /46 /Add.. l" . Page 100.

· quential changes, such as a ·change .in the title 0 of ."SE-:cretary to the Administration,, to that of "Chief Secretary"./ ./ ,

FOI'{Q_OF FAIPULE

The Fono of F ;:ii pule, or Samoan Advi.s~ry Cou;cil, which consists of forty-one district representatives, ½'Ould remain Gonsti tuted as at present; its principal fur1ction b·eing, in·

addition to that of n~minating the• Samoan members of the legislature and the holders of y.3.rious other offices, to ·keep the Government 2nd the Legi~lature aware of the opiniohs oft~ people in the outer villages.

SAMO:~N PUBLIC SERVICE

The Samoan Public Service would be removed from the control of the New Zealand Public Service Commission, and an independent

Public Service authority would be appointed in Samo.a.. It WJ ula

be the special function of this new authority to find means of

promoting local people 1 both Samoan and B:uropean to positions of responsibility as quickly aG possible. In this connection both the New Zealand Government and the Samoan leaders are aware that promotion of loc2.l Civil servants to the higher posts depended upon our ab} li ty to push forward, as rapidly as possible

' with our proposals for giving specialized training 0to ·officers already in the Samoan Public,Service, and f6r providing young Samoans with the best possible education ..

\ PROFITS FR01i REPARATION EST.,i.TES ·.

The Prime Min'ister decl2.red during•his visit to Samoa· that- he. believed that in future all: the profits made by the

. - Ne~ Z~aland Reparatiori Estat~s shotild Be used for the benefit of Samoa;. Many grants had been made from'the New Zeal2nct· ...... :·-~. -·i':.: :: :, -•~·: '.:->·: : <~ -; ~-~. ./ <;>.·. .. ·..· · ·: . ..' :· :· :::.·:· · .'_~..; . ~, ·_:,_T/4 1.6/J~ad: i : . . ,-' . ··,: . ·.• . - . ...:., ·.·:.. •· . • .. --:,· ... . .· • · . · · ...... ·Page_lOl .·_. . :.

• · - • ' . ~ • - ,: .. ·:.,,_ • • .-:· , • • -'( . • • + - • • • Trea~ury' f or '. ~th~ \~ri?~:ri~c't'i·o~: d.f·•·,ro~~-·s ,·::£ ;r ·- t~e-.esta.blishm_ent · of. schoi~r~hipl,<. for :the·.: bll;i_tding' ·of~. a \broadca·st.'ihg~~tation' >and for other pu~~:~~es'~: ~- .~1._t: --~as -;_~-tended,· to ·-6ontin~e this · practice and, ~os~i bt~ ,- :-t~- gi ~e 'it some :1E:gai .. form by· the establishm.ent ·o:f' · a· Sarrio~n Development . Fund·~ '. to whi,ch-· the

. ' \ profits·. :of the Reparation Estates wculd be paid ·2.na.· ·fro in :which .. l I grants would be mad·e ~~.:

' . . ' --OTHER·:-----.-- .QUE'STI0NS

importance, whj_ch the·· Gover;ime n~ wishes to:-: discuss .wit h ·:t,-he . . • · representntives of the 'ue.oole. of Samoa durin'i .the \omi11~ year; ... " . . . , . . ... ·. ' - "· . ' . One of these ts the . question of·· Samoan . status • . · :The . Samoans :. ·. . ,, . . . - ~ ~ . . are anxious-- that · nny risk of c:·n ·· evurtuai c l ash of .·interests : · ·

between persons of .SeJ:moan stf.i'tu~ ·and _porson3 .pf · Europea~ stn~us, shall be avoided . ThGy hope, instead , that .all those .who

' . . f • .:, . r8gard Samoa .~as their permane nt home will·. gradu2lly mov~·. towardef _ the possession of .. a: common ·stE:.tus . ·Anoth.~r . question _which' .the. ~·_- . . Govern;nent wishes to s8e ·discussed is that of locr3,l- body Gove'rn:... ~- ment for thG vi,llages,-·and for Api,a • . 'These ·are· matters, '•, howev:~r,

·which the propos'ed .n,ew ·Legislature, nnct' the Fon<)' 0~ .Fai pule_. -~ shoul d hive an opportunity of considering fully before, 2.ny · ·. .,.. : ·· ·. . ~ action is tc1.ken .

; · CO NCL USION · . . ·'

Confer ences vii th the Fautua h·ave been held in c::n atmos­ phere of the greates.t ,f .ra~k~~ss · and ·friE:n'.dliness, · r:.nd ~J:ie . -•·. ·. 1. .. . Gover,.-nmen:t·,·s ·.proposals vJi.11 •now be• di.scussed _f -ull,y ·at· a' meGt:ing· · . . . . ' • • I being -held :with district .representcttives. · I • • ' • • • • • • • ••/ ' • • • ' ~ .' . : : · .· The· Unit.ed. Nati ons .Mi~sion- in ·sa.moa ha~ be~n· ke;pt. i nformed _,;;.: of our· plan s . '. . . The~r ' ◊-~ ·.\·o.p.ort.:has· not:·y~~.: b.een-- ·su~.~.itted· to . . /. -~ ...... : ·: -: : ·, . . .·. ',. . . ·, • I ·. " i. : 9'/46 / A,d~. l p,,ge 102 ·

, ~he: Trus~e.e ship Council~ , ,bu~ .. ~he: C1o".:-~r;nnent'. .~ii],' .give f_u.11-­ . consj_dere.tion to any proposa1:.s t,hat they mayJnakD ·regarding . ' . ' ' ,'" . , ·,, ' the Governr(l.ent of the Terr:i:, tory.., Frqm our examination of the position end our discusstons with the Sarrw0.n le&ders, _we. are

convinced that the plans we have elaborated for- the._ developn2nt of self-government in the territory represent ,a real rmd,, I

' beliE:ve, a welcome advance for the people of Sr,rno,~. The present propos~ls are intended only as the first steps in a process which will not c:nd ·until the Samoan people

arc e.ble to assume full responsi.biJ.ity for the control of their

01:m affairs.