T/1484

UNITED NATIONS

United Nations Visiting Mission to the Trust Territories of Nauru, New Guinea and the Pacific Islands, 1959 REPORT ON THE TRUST TERRITORY. OF THE PACIFIC ISLANDS

TOGETHER WITH THE RELEVANT RESOLUTION OF THE TRUSTEESHIP COUNCIL

TRUSTEESHIP COUNCIL

OFFICIAL RECORDS: TWENTY-FOURTH SESSION

(2 JUNE - 6 AUGUST 1959)

SUPPLEMENT No. 3

NEW YORK UNITED NATIONS

United Nations Visiting Mission to the Trust Territories of Nauru, New Guinea and the Pacific Islands, 1959

REPORT ON THE TRUST TERRITORY OF THE PACIFIC ISLANDS

TOGETHER WITH THE RELEVANT RESOLUTION OF THE TRUSTEESHIP COUNCIL

TRUSTEESHIP COUNCIL

OFFICIAL RECORDS: TWENTY-FOURTH SESSION

(2 JUNE - 6 AUGUST 1959)

SUPPLEMENT No. 3

NEW YORK, 1959 NOTE

Symbols of United Nations documents are composed of capital letters combined with figures. Mention of such a symbol indicates a reference to a United Nations document.

T/1484 CONTENTS Paragraphs Page REPORT ON THE TRUST TERRITORY OF THE PACIFIC ISLANDS SUBMITTED BY THE UNITED NATIONS VISITING MISSION TO THE TRUST TERRITORIES OF NAuRu, NEw GuiNEA AND THE PAciFic IsLANDS, 1959 (T/1447) Letter dated 8 May 1959 from the Chairman of the Visiting Mission to the Secretary-General ...... 1 Introduction Terms of reference ...... 1-3 1 Itinerary of the Visiting Mission ...... 4-6 1 Chapter I. General General considerations ...... 7-13 2 Areas affected by recent typhoons ...... 14-27 3 Displacement of islanders as a result of nuclear and thermo-nuclear experiments ...... 28-42 5 Chapter 1!. Political advancement Development towards self-government ...... 43-58 7 Administration of the Territory ...... 59-65 11 Civil Service ...... 66-68 12 Chapter Ill. Economic advancement General ...... 69-75 13 The copra industry ; the Copra Stabilization Board and Fund ; copra production ...... 76-83 14 Land ...... 84-99 16 Agriculture ...... 100-106 17 Fisheries and home industries ...... 107-116 18 Transportation and communications ...... 117-130 20 Trade ...... 131-142 22 Japanese postal savings and bonds; war damage claims ...... 143-144 24 Chapter IV. Social advancement Medical and health services ...... 145-157 24 Entry of Japanese nationals 158-159 27 Chapter V. Educational advancement General ...... 160-177 27 Dissemination of information on the United Nations ...... 178 31 Annexes I. Summary of the four-year survey concerning the condition of the Rongelap people conducted by the Medical and Scientific Team of the United States Atomic Energy Commission ...... 31 II. Charter of the Yap Islands Congress ...... 32 III. Charter of the Dublon Municipality ...... 34 IV. Written communications received by the Visiting Mission during its visit to the Trust Territory ...... 36 V. Itinerary of the Mission ...... 38 VI. Map ...... • ...... 40 RESOLUTION 1952 (XXIV) ADOPTED BY THE TRUSTEESHIP COUNCIL ON 28 JuLY 1959 41

111 REPORT ON THE TRUST TERRITORY OF THE PACIFIC ISLANDS SUBMITTED BY THE UNITED NATIONS VISITING MISSION TO THE TRUST TERRITORIES OF NAURU, NEW GUINEA AND THE PACIFIC ISLANDS, 1959 (T/1447)

LETTER DATED 8 MAY 1959 FROM THE CHAIRMAN OF THE VISITING MISSION TO THE SECRETARY-GENERAL I have the honour to transmit to you herewith, in accordance with Trusteeship Council resolution 1923 (S-VIII) of 17 October 1958 and with rule 99 of the rules of procedure of the Trusteeship Council, the report of the United Nations Visiting Mission to the Trust Territories of Nauru, New Guinea and the Pacific Islands, 1959, on the Trust Territory of the Pacific Islands. I am glad to inform you that this report is subscribed to unanimously by all four members of the Visiting Mission. I should be grateful if you would allow an interval of one week to elapse between the transmission of this report to the members of the Trusteeship Council and its general release. (Signed) Chiping H. C. KIANG

INTRODUCTION

TERMS OF REFERENCE concerned, in petitions received by the Co~ncil rel~tir:g to the Territories, in the reports of the prev10us penod1c 1. The decision to dispatch a visiting mission to the visiting missions to the Territories and in the observa- three Trust Territories of Nauru, New Guinea and the tions of the Administering Authorities on those reports ; Pacific Islands in 1959 was made by the Trusteeship Council at its 933rd meeting, on 29 July 1958, during (c) To receive petitions, without prejudice to its its twenty-second session. acting in accordance with the rules of procedure of ~he Council, and to investigate on the spot, after consultation 2. The composition of the Mission, approved by the with the local representative of the Administering Au- Council at its 938th meeting on 17 October 1958, dur- thority concerned, such of the petitions received as, in ing its eighth special session, was as follows: its opinion, warranted special investigation; Mr. Chiping H. C. Kiang (China), Chairman; (d) To submit to the Council as soon as practicable Mr. Alfred Claeys Bouuaert (Belgium); a report on each of the Territories visited containing U Tin Maung (Burma); its findings with such observations, conclusions and recommendations as it might wish to make. Mr. Sergio Kociancich (Italy). 3. At the same session, at its 939th meeting, on 17 Oc- ITINERARY OF THE VISITING MISSION tober 1958 the Council adopted resolution 1923(S-VIII) setting fo;th the terms of reference of the Mission. By 4. The Mission set out from New York on 4 February that resolution, the Council, having decided that the 1959, accompanied by a secretariat of four persons.~ It Mission should depart in February 1959, that it should arrived by air on 6 February at Honolulu wher~ dunng visit the Trust Territories of the Pacific Islands, Nauru the two days of its stay, it paid a courtesy ca!l on the and New Guinea in that order and that the duration of Commander-in-Chief of the United States Pac1fic Fleet its visit should be approximately three months, directed and visited the Bernice P. Bishop Museum, a centre the Mission : for studies and research on the islands in the Pacific. It also met with members of the Advisory Committee (a) To investigate and report as fully as possible on on the Hawaii Training Programme for Micronesian the steps taken in the above-mentioned Trust Territories Students in Hawaii and, later, with Micronesian stu- towards the realization of the objectives set forth in dents studying at the University of Hawaii under fel- Article 76 b of the Charter of the United Nations, lowships granted by the United Nations Technical taking into account the terms of General Assembly Assistance Administration and with other students at- resolution 321 (IV) of 15 November 1949 and other tending various educational institutions under scholar- relevant Assembly resolutions; ships granted by the Trust Territory government and (b) To give attention, as might be appropriate in the private organizations. light of discussions in the Trusteeship Council and in 1 the General Assembly and of resolutions adopted by The members of the secretariat were Mr. W. F. Cottrell (Principal Secretar~), Mr. W. T. M·ashler and ~r ..J. L: Lewis them, to issues raised in connexion with the annual (Assistant Secretanes) and Mr. A. Katz (Admmtstrattve Of- reports on the administration of the Trust Territories ficer). 1 5. After a brief visit to Guam, where it made final eral trips to outlying islands including Imrodj on J aluit arrangements for its visit to the various Districts of Atoll and visited Rongelap in the northern Marshalls. the Territory and held a number of meetings with the The Mission left the Trust Territory on 10 March to High Commissioner as well as with other officials of visit the Trust Territory of N auru. It returned to Truk the Trust Territory, the Mission spent the period from on 14 March, where, on the following day, it held final 13 to 17 February in the Palau District where it discussions with the High Commissioner of the Trust visited the islands of Koror and Peleliu. The Mission Territory. On 16 March, the Mission departed from then went to the Yap District from 17 to 19 February, Truk and subsequently visited the Trust Territory where on 17 February, on behalf of the High Commis- of New Guinea before returning to United Nations sioner of the Trust Territory, the Chairman of the Headquarters on 25 April 1959. The present report was Mission presented the Yap Islands Congress with its adopted unanimously on 8 May 1959. Charter (see annex II). The Mission returned to 6. Throughout its travels in the Trust Territory, the Guam on 19 February, and visited Saipan, Tinian and Mission was accompanied by Mr. John E. de Young, Rota on 21 and 22 February. Following a one-day stay Staff Anthropologist of the High Commissioner's Head- on Guam, during which the Mission held a private meet- quarters at Guam, except for its visit to the Saipan ing, it departed on 23 February for the Truk District. district where Rear-Admiral W. L. Erdman, Com- There it visited Moen, Dublon, Fefan and Tol islands mander, Naval Forces, Marianas, and Lieutenant- and presented, on behalf of the High Commissioner of Commander C. J. Carey accompanied the Mission. the Trust Territory, the Dublon municipality with its During its several visits to Guam and again at -r:ruk Charter (see annex Ill) on 24 February. Leaving Truk during its final visit, the Mission held several me~tmgs by air it arrived in the Ponape District on 27 February, with the High Commissioner of the Trust Terntory, where it visited Kolonia town and Madolenihmw on Mr. Delmas H. Nucker. The Mission wishes to express Ponape Island and visited Ujelang in the Marshall to these and all the other officials of the Administration Islands on 3 March. On the same day it departed by its gratitude and appreciation for the _warm we!co?Ie ship for Mokil, where it spent one day, 4 March. Upon and for the assistance they extended to It. The 1ilsswn its return to Ponape the following morning, it departed also wishes to thank Mrs. Allan F. Saunders, who, as by air for Majuro in the Marshall Islands District, the Micronesian students' councillor, made it possible where it arrived the same evening, following a stopover for the Mission to meet the Micronesian students attend- at Kwajalein, where the Missions aircraft was required ing the University of Hawaii in Honolulu. Finally, the to touch down owing to typhoon conditions in the Po- Mission wishes to express its gratitude to the people nape and Marshall Islands areas. The period of 6 to 10 of Micronesia for their generous hospitality and for March was spent in the Marshall Islands District, where the cordial co-operation it received from all sectors of the Mission visited the island of Majuro and made sev- the population with which it came into contact.

CHAPTER I GENERAL

GENERAL CONSIDERATIONS2 demonstrated, albeit in exceptional circumstances, the ability of Micronesians to exercise the functions of re- 7. The visit of the fourth United Nations Visiting sponsible and mature local government. Mission to be sent by. the Trusteeship Council to the Trust Territory of the Pacific Islands coincided with 8. At the present stage, the administrative services a period of intense effort by the people of Micronesia and the people in the devastated areas are gr~du~lly and of the Administration to rebuild the many islands resuming normal activities. Personnel and sh1ppmg, left devastated in the wake of three disastrous typhoons dispatched earlier to assist the distressed areas, are which swept through the Territory late in 1957 and now being withdrawn as circumstances permit. Never- during the first part of 1958. Prompt and efficient theless, some of the islands will require continued mate- emergency relief measures taken by the Administration rial and other assistance for a long time to come before immediately after the typhoons struck prevented the their immediate needs can be met out of local resources. threat of starvation and disease from becoming a reality Despite the laudable efforts now being made to rebuild and enabled the people of the affected areas to embark the devastated areas, it will be many years before full on a long-range programme of rehabilitation designed economic recovery can be achieved. not only to restore the islands to normal, but also to 9. The events of the past year have amplified the improve economic conditions beyond those which considerable problems which confront the Territory, Micronesians in the affected areas had previously even in normal circumstances. The tiny land area com- known. The efficiency and speed with which these prising the Territory's fewer than one hundred in- programmes are being carried out are, by all accounts, habited or inhabitable islands, which are scattered due in large measure to the fact that every phase of over a vast oceanic zone approximating the total land the plans has been prepared in full consultation with area of the continental United States, and the diversity Micronesian officials of municipalities and congresses. of its population, whose cultural and linguistic back- I~ should be a matter of gratification to the Administra- grounds vary, not only from District to District, but tion, and to local government bodies alike, that the suc- also within the Districts, impose natural barriers on the cess thus far achieved in their co-operative effort has Territory's development into a political and economic unit. • For descriptions of the geography and culture of the islands see the reports of the Administering Authority on the adminis~ 10. It may also be recalled that over the past sixty tration of the Trust Territory. years the divergent policies of four different adminis- 2 trations have tended to complicate the development of AREAS AFFECTED BY RECENT TYPHOONS the Territory. 14. During the latter part of 1957 and the first half 11. Under the Spanish, German and Japanese adminis- of 1958, three typhoons struck in various parts of the trations, the traditional structure of local society was Trust Territory inflicting serious damage on trees maintained until the present Administering Authority and crops, and causing several deaths. These typhoons began to foster the development of modern political were known by the code names Lola, Ophelia and institutions following the end of the Second World War. Phyllis. IS. The first typhoon, Lola, originated in the southern While this development is making gradual but steady Marshalls during November 1957. On N amorik Atoll progress throughout the Territory, sight should not be all buildings were destroyed and swept out to sea. Two- lost of the fact that the rate of progress in this field, thirds of its coco-nut palms were blown down and food irrespective of the strong encouragement given to it supplies were only sufficient to last for three weeks after by the present Administration, must necessarily depend the storm. After inflicting minor damage at Kili Island on the people's readiness to accept new, and to them, and capsizing and sinking a boat, the typhoon struck untried institutions. Furthermore, a strong residual close to Ponape Island, moved into the Truk District sense of parochialism among the people of the islands, and on to Guam and Rota. Aside from the damage forced on them by centuries of geographic isolation, caused at Namorik, the Hall Islands in the Truk Dis- tends to impede development. The results of efforts to trict, and Ponape were the most seriously affected. On overcome these obstacles are encouraging, but it should Ponape a considerable number of trees and palms were be borne in mind that complicating factors inherent in blown down, with fruit and foliage ripped from others, the geography of the Territory are not conducive to and thousands of young cocoa trees were uprooted. the attainment of a rapid development of cohesive Ter- Subsistence crops, including yams, bread-fruit, bananas ritory-wide organs of self-government. and taro were destroyed by high winds and flying debris. On Nomwin and Ruo islands in the Truk District 80 12. Even greater obstacles have been thrown in the per cent of the coco-nut palms were totally destroyed, way of economic development. To administer such a while in the Rota District damage caused to vegetable widely scattered Territory, the Administration must produce was estimated at $25,000. maintain seven separate administrative centres and 16. The second typhoon, Ophelia, caused great dam- provide the various Districts with adequate communica- age on J aluit Atoll in the southern Marshalls. There, tions systems. The cost of these services far exceeds the entire east side of the atoll, approximately thirty the ability of the Territory to maintain them in view of miles in length, was inundated with water to a depth the general paucity of its land and the absence of min- of from three to eight feet. Approximately 90 per cent eral resources. The Territory must, therefore, look to of all the coco-nut palms on this side of the atoll were the Administering Authority for heavy subsidies which, either uprooted or blown down. Three persons were at present, amount to roughly four-fifths of its annual drowned ; thirteen others are missing and are presumed budget. to have been swept away by waters which washed over 13. As in the political field, the presence of four dif- the island. The typhoon then buffeted Ponape, inflict- ferent administrations in recent times has similarly left ing more damage to the already crippled island. Later, its mark on the economy of the Territory. It is worthy at Truk, docking facilities on Moen Island were almost of note that, under previous administrations, economic completely destroyed when heavy waves demolished the development was largely confined to the exploitation foundations causing the dock to settle in the water. of available resources for the benefit of the metropolitan 17. The third typhoon, Phyllis, originated in the Powers. The indigenous population for its part con- southern part of the Truk District and before warnings tinued to pursue a subsistence type of agriculture and could be sent to the area, struck severe blows at Namo- merely participated in the development of the Terri- luk and Pulusuk Atolls causing tremendous damage to tory's resources in an employee relationship. The almost trees, food crops and property. From there it moved complete destruction during the second World War of northwest into the Yap District and struck with vary- plantations, installations and other developments in the ing degrees of intensity across the islands of Elato, islands, not only deprived the islanders of future use Satawal, Lamotrek and Olimarao. of these installations, but also of any immediate cash 18. Even while the Mission visited the Territory a income. In contrast to previous administrations, the fourth typhoon struck the Ponape District, causing, present Administering Authority undertook to develop however, only superficial damage to crops on Ponape the Territory's resources exclusively for the benefit Island. of its people, and its policies in the political, economic, 19. The Administration estimates that actual damage social and educational field introduced during the past caused by the typhoons on the various islands of the fifteen years called for the close association of the people four Districts ranged from slight to almost 90 per cent of Micronesia in the development of their own Terri- total destruction. On the coral atolls damage was more tory. The gradual but distinct change resulting from the serious than that on the high islands, because of the introduction of policies so completely novel to the normally greater scarcity of various subsistence crops people of the Territory has not been accomplished with- available to the people. In these areas immediate emer- out the creation of attendant problems. The rapid growth gency feeding was required to alleviate hunger and of the Territory's population, the gradual but increas- prevent starvation. As a result of the damage caused ing demand for cash in an economy which is still pre- by the typhoons over the past year and a half, copra dominantly of a subsistence type and the inability of production is estimated to have been reduced by 5,000 the people to satisfy this demand are indications of the short tons, resulting in a reduction of some $500,000 problems which will require ever increasing attention. in the total income available to the Micronesians during It is for this reason that the Mission has in the present 1958. report placed considerable emphasis on matters relat- 20. The administration estimates that it will be eight ing to the economic development of the Territory. to ten years before full copra production can be re- 3 stored to pre-typhoon levels. Subsistence crops will be in the southern Marshalls, the Mission saw similar available in a much shorter time, with bananas estimated progress. to be available within eighteen months, yams within 23. Under the long-range rehabilitation programme a year and bread-fruit, in limited quantities, within the in the Marshall Islands District, a field-trip ship makes next few months. To compensate for the severe losses one trip each month to deliver food, equipment and which were suffered in the affected areas, the High supplies and to transport personnel, and It IS expected Commissioner obtained a special appropriation of that this service will be needed for at least two to three $1,350,000 from the Congress of the United States for years. A chartered fifty-foot schooner provides se~vice the purpose of alleviating suffering and for the estab- to the islands of Kili, Jaluit, Namorik and MaJuro, lishment of a rehabilitation programme. The Trust transporting rehabilitation officials and !o~d among th~se Territory was also able to take advantage of surplus islands. The initial plan for the rebmldmg of housmg foods made available through the United States De- and for water storage has been completed and e~~rts partment of Agriculture, and it is estimated that sur- are now being concentrated on agricultural rehabilita- plus foods to a value of more than $100,000 will be tion. On Namorik Atoll, 400 out of 600 acres have made available to the peoples of the typhoon-stricken been prepared for planting. One large c?co-nut nursery areas during the recovery period. Over and above holding 15,000 seed-nuts has been estabhs.hed and 6,000 assistance rendered by the Administration, Micronesians seedlings have already been transplanted m new groves. spent a great deal of their time and money on the re- Thirty thousand additional seed-nut.s were r~cently. de- construction of their homes, which were either damaged livered for planting. Upon completwn of this project, or destroyed by the typhoons. the Administration proposes to make a survey to. assess 21. The Mission was informed that the Administra- the future food needs of the people on Namonk. Al- tion's rehabilitation programme was placed under the though most of the coco-nut palms wer~ ~estroyed, the authority of the Director of Agriculture. Programmes Administration estimates that the remammg palms are were formulated for food distribution, the reconstruc- sufficient to provide the people with adequate food and tion of housing, water wells and catchments, the removal small quantities of copra. They now have an over- of vast amounts of debris and the provision of all tools abundance of bananas, pumpkin, squash, limes ~nd necessary for the preparation of land for replanting. papaya. Some of this produce is being sold to t?e Umted Selected coco-nut seed-nuts were, and continue to be, States Navy and elsewhere, and thus pro.vide? some made available free of cost for the replanting of coco-nut cash income. Trochus from the lagoon Will gtve the groves, under the supervision of officials of the Depart- people additional income, and efforts are being made. to ment of Agriculture. The programme called for the find outlets for local handicraft. They are also bemg full participation of Micronesians in the rehabilitation taught various methods of preserving fish with the view of their own islands to the fullest extent possible. The to selling this product. Administration informed the Mission that the results 24. Jaluit Atoll, with 2,400 acres, will, it i~ esti- to date have been greater than had originally been mated, require another three years to complete Its re- hoped for. In a number of areas, the ground has been planting programme. Sufficient numbers of palms re- cleared and the planting of seed-nuts, in accordance main on the western end of the island to supply all with planting methods recommended by the former the people with food and to enable them to produce a Director of Coco-nut Operations, is now in progress. modest amount of copra. In addition, harvests from Paradoxically, the typhoons will have had one beneficial three large trochus beds should provide them with effect. Agricultural officials explained that many of the a good cash income. Fruits and vegetables sold in con- destroyed coco-nut palms had nearly reached the end siderable quantities to the United States ~avy compe~­ of their productivity and their replacement would have sate the people in part for the loss of the mcome .Pr~vi­ become imperative. Possible delays, due to difficulties ously derived from copra production. At present, hmited arising out of the complicated traditional land and quantities of sea shells and handicrafts are being. sold property tenure systems, particularly in the Marshall to markets both within and outside the Terntory. Islands, could have retarded the establishment of a Nevertheless, material assistance will be required for well-planned replanting programme for a number of a period of at least five years. years. Instead, the scientific and systematic replanting now under way will eventually assure the people of a 25. In the Ponape District, where Ponape Island far greater cash income than would otherwise have suffered the greatest damage, rehabilitation work was been possible. The plans and programmes of the Admin- instituted through community development programmes. istration were fully explained to the populations, and Community development officers, together with munici- according to Administration officials, all Micronesians pal councils and other groups, concentrated efforts on have enthusiastically co-operated in the rehabilitation replanting subsistence and cash crops, with personnel programme. and materials provided by the Administration. In the 22. During its visit, the Mission was able to see for municipalities, public works groups were organized to itself some of the areas that had been devastated. At re-establish subsistence gardens and other crops. The Jaluit, where destruction can be described as being Administration estimates that, as a result of this effort, almost complete, the Mission was told by the people of each of the municipalities will have a greater food surplus Imrodj that prompt and effective intervention by the than was available before the typhoons. Administration had enabled them not only to survive 26. The rehabilitation programme in the Truk Dis- the fearful effects of the disaster, but also to embark trict is progressing rapidly. On Murilo, in the Hall with confidence on the slow and difficult task of re- Islands, where all the coco-nut palms and bread-fruit building their devastated island. During its visit to trees were completely stripped of their fruits, branches Imrodj village and the rest of the island the Mission and leaves, the acute food shortage was alleviated by noted that most of the village had been rebuilt, includ- the provision of regular food shipments, including rice ing a large water catchment, and that the replanting and milk. Since then, garden produce planted under the of coco-nut groves was well under way. In other areas supervision of the Agriculture Department has come 4 to harvest and the Administration hopes that emergency the unaccustomed climatic and physical conditions. Hav- food shipments can be discontinued within a short time. ing failed to find a habitat more suited to the wishes Nevertheless, bread-fruit and coco-nuts will not be of the people, the Administration made arrangements available for another two years. Coco-nut replanting to assist them in their gradual adjustment to their new in accordance with the recommendations made bv the environment. This included a rehabilitation programme former Director of Coco-nut Operations has been-com- designed to acquaint them, through the assistance of pleted. Homes, community buildings and water storage a Marshallese agriculturalist stationed on Kili, with tanks have been rebuilt with materials furnished by the new methods of developing the considerable economic Administration. Similarly, on Ruo, Nomwin and resources of the island. To compensate for the lack Fonanu Islands reconstruction has been completed and of fishing facilities at Kili, the Administration provided coco-nut replanting is expected to be completed at the them with a ship for transporting personnel and goods end of the present calendar year. The destruction on two and for fishing at nearby Jaluit Atoll. At the same time, other atolls, Namoluk and Pulusuk, was almost com- four large houses were built on Jaluit for the use of plete. Nearly all trees on these islands were destroyed, the Kili people. Nevertheless, the complaints of the together with all buildings and canoes. As a result, it Kili people remained unchanged. The boat which had is estimated that emergency shipments of food will have originally been placed in operation was completely to be continued throughout 1959. Replanting on both wrecked and it was not until some time later that an- islands is well under way, and at the time of the Mis- other boat was placed at their disposal. Subsequently, sion's visit to the District, many tons of squash and in 1956, following a series of meetings between the pumpkin were being harvested, although taro and yam High Commissioner of the Trust Territory and the production was being hampered by a fairly persistent people of Kili on the question of claims for the use drought. Coco-nut palm planting will have been com- rights to Bikini Atoll, agreement was reached for the pleted by the middle of 1960 and the rebuilding pro- payment of $325,000 to the former inhabitants of gramme is due for completion by the end of 1959. The Bikini. By the same agreement they formally received Administration considers the progress at Pulusuk and full-use rights to the island of Kili and to several locali- at Namoluk to have been extremely rapid. Reconstruc- ties on Jaluit Atoll. Three hundred thousand dollars of tion and replanting is well ahead of schedule, and the $325,000 was placed in a trust fund which is ad- twelve sailing canoes have been built in the last nine ministered by the High Commissioner, and interest pay- months, with the construction of another twelve now ments from it give the Kili people an annual income of under way. about $20,000. 27. The emergency measures taken by the Adminis- 29. In November 1957 and again in January 1958, tration for the alleviation of suffering immediately fol- considerable damage was inflicted on Kili by typhoons. lowing the typhoons and the subsequent initiation of Although no injuries were suffered and no buildings its long-term rehabilitation programme in the affected :vere destroyed, almost the entire coco-nut crop on the areas have received wide-spread approval and praise Island was destroyed and the Administration estimates from Micronesians throughout the Territory. It is the that it will be at least one year before copra can again Mission's view that the rapid progress now being made be harvested. At the same time many of the banana in rebuilding the devastated areas of the Territory is bread-fruit and papaya trees were blown down. A fifty~ due in large measure to the prompt initiative taken by fo?t. scho.oner which .h.ad been purchased by the Ad- the High Commissioner and his staff, and to the tire- ll_lllllstrati~n for the Kth people was destroyed. The Mis- less efforts of the officials, who, in assisting the people siOn was mformed that as a result of the loss of the on the islands toward restoration to normal life, are at ship's cargo the trade store on Kili had been unable the same time helping them to build the foundations for to purchase goods for local sale and that the Adminis- a better economic future. Nevertheless, it should be tration had provided, as an emergency measure, $3,000 borne in mind that the initial phase of the rehabilita- worth of food to be sold at half-price. The proceeds tion programme is now moving rapidly to its conclu- amounting to $1,500 were used to assist the store to sion and that it will be followed by a longer and more continue ~ts operation. An emergency food programme difficult period of waiting before the efforts now being was put mto effect, and an agricultural rehabilitation made can bear fruit. It may well be that this period will programme was described as being well under way at require even greater patience on the part of the people the time of the Mission's visit to the District. A large and an even more sympathetic understanding of their coco-nut seed nursery has been started, bread-fruit problems by the Administration than previously. Based se~dlings and banana corns have been planted, and upon its own observations, the Mission feels certain chtckens, ducks and hogs have been taken to Kili to that both these conditions can be amply met. augment existing stock. In addition, a schooner has bee~ chartered for the Kili people until a new ship, costmg $30,000 and now under construction for the DISPLACEMENT OF ISLANDERS AS A RESULT OF Administration at Hong Kong, is placed at their dis- NUCLEAR AND THERMO-NUCLEAR EXPERIMENTS posal within the next few months. 28. The problem of the displacement and the subse- 30. During its visit to J aluit, the Mission was unable quent resettlement of islanders in the Marshall Islands to meet the people of Kili, but was informed that it has continued to occupy the attention of the Trustee- would be years before the Kili settlement on J aluit ship Council. The first of these transfers took place in could be restored. On its return trip to Majuro, the 1946, when the 167 people of Bikini Atoll were evacu- Mission flew over Kili, some forty miles away, and it ated in several stages, first to Rongerik, later to noted that the appearance of the island, in contrast to Kwajalein, and finally in 1948 to the island of Kili in J aluit and other islands devastated by the typhoons, is the southern part of the Marshalls, where they were good. The Mission hopes that, in view of the consid- settled on land provided by the Administration. There, erable difficulties of adjustment which the Kili people it will be recalled, the people experienced continuing have experienced in past years, further efforts will be difficulties of adjustment to their new home owing to made by the Administration for their return to a 5 normal way of life. In particular, it recommends that the United States Navy on Kwajalein. Once each year, t~e Administration should take steps as soon as pos- a United States Atomic Energy Commission team visits stble to restore the Kili settlement on Jaluit in order Uterik to check on the people's health and general to enable the Kili people to make full use of the fishing well-being, and in addition medical and dental teams and other facilities in the area. from Majuro make regular trips to the atoll. Adminis- 31. A second group of islanders was displaced in tration officials informed the Mission that the people 1947, when 137 people from Eniwetok were trans- of Uterik had made a complete adjustment, that no ferred to Ujelang. At that time, the Administration complaints had been submitted, and that they could be constructed an entire village for them including homes considered as living a normal life. meeting houses, a school, a dispensary and a church: 34. The Rongelap people, in contrast to those from In 1956, an agreement, similar to that reached with the Uterik, appear to the Mission to present a considerable Bikini people, was concluded whereby the Administra- and continuing problem. After their evacuation from tion paid the former inhabitants of Eniwetok a sum Rongelap they were moved to Ejit Island in the Majuro of $175,000 for the use rights of their former habitat Atoll where a village was built for them and livestock and ~warded them full use rights to Ujelang Atoll. placed at their disposal. While there, they were given Of thts sum, $150,000 was placed in a trust fund simi- $200 a month in compensation for the loss of their lar to that .established for the Kili people, and yielding normal copra production, and an additional $1,100 a an annual mterest of about $10,000. month for the purchase of food and other supplies. They were also provided with water transportation between 32. The adjustment of the people of Eniwetok to Ejit and the District centre. Their personal loss claims, their new environment appears to the Mission to have amounting to about $5,200, and copra compensation, be~n satisfacto~Y·. At a meeting with the people on amounting to $1,300, were settled, in addition to which U]elang the Mtsswn was told that they wished to have they were given every opportunity to work at Majuro. the assistance of an agricultural officer to help them plant additional subsistence crops and coco-nut palms. 35. When Rongelap was declared safe in 1957, the They also requested the installation of radio communi- Administration built two villages for them at Rongelap tions to enable them to contact the District centre in and Jabwaan. The Administration informed the Mission case of need. In the course of the meeting, the people that the Rongelap people were fully consulted in the were informed by Administration officials that a radio planning of the rebuilding programme and that all their set would be installed within two months and that an requests were granted. Throughout the building phase agricultural extension agent, who had been withdrawn two Trust Territory officials were present at Rongelap temporarily to assist in rehabilitation work elsewhere to supervise the construction. At the same time, a com- in the Marshall Islands, was scheduled to return plete agricultural survey was made of the atoll, on the within a matter of days. In addition, the District's basis of which plants, cuttings and seeds were provided agricultural officer planned to visit the atoll for a two- to start a subsistence programme under the supervision month period later in the year. On another point, the of an agricultural extension agent who remained with Mission was told by the school's principal that oppor- the people for a period of two months after their re- tunities for students from Ujelang to attend the Pacific turn. Upon their arrival on Rongelap in June of 1957, Islands Central School were limited but that the people the original number of eighty-four had swollen to over were anxious to see one of their own number trained 250 persons. They received a three-month supply of in agricultural extension work. The Mission considers food and all their belongings were transported by the their request to be justified, and it hopes that the Ad- Administration. ministration will give this matter its sympathetic con- 36. A long-range programme set up by the Adminis- sideration. tration included a subsistence and coco-nut planting programme and an American agriculturalist was re- 33. A third transfer of. islanders took place in 1954, cruited to assist the people. Two health aides now live when the people of Utenk and Rongelap suffered ill- at Rongelap to minister to the people's needs; a monthly effects from unforeseen radio-active fall-out resulting from thermo-nuclear tests held during that year in the flight with a medical practitioner is made; and once a year a medical and scientific team from the United Pacific Proving Grounds. One hundred and fifty-four States Atomic Energy Commission conducts extensive persons from Uterik and eighty-two from Rongelap were moved to Majuro and Kwajalein as a temporary medical and scientific examinations on the atoll. measure pending their return to their atolls. The Uterik 37. According to the information given to the Mis- people were returned to their homes during the same sion, copra production at Rongelap during the present year after the atoll had been declared safe for human year is expected to exceed by several tons the pre-evacu- habitation. On their return they were provided with ation production of forty short tons a year. At the same building and medical supplies and found that their cis- time, the. Administration points out that production terns had been cleaned and restored by the United could be mcreased even further if coco-nuts now being States Navy. All of. their clai~s, amounting to $2,900, !ef! to spoil on the ground were actually harvested, and had been settled pnor to thetr return and in addition 1t ts hoped that with the aid of the agriculturalist this they were provided with 300 chickens and 190 pigs to problem will be overcome in the near future. replace those which they claimed they had lost. Since 38. During its visit to the atoll, which coincided with their return, the Mission was informed, several com- the annual visit of scientists and doctors from the plete surveys had been conducted on Uterik for the United States Atomic Energy Commission, the Mission purpose of determining the adequacy of educational had an opport~nity t.o it;spect the village of Rongelap, medical and agricultural facilities, and improvement~ to hold dtscusswns wtth tts people and with some of the ~ecommended on the ~asis of these surveys had been members of the visiting scientific team. The village tmplemented. The Utenk people produce approximately itself impressed the Mission as being one of the clean- forty tons of copra a year and supplement their cash est and neatest seen anywhere in the Territory. It is income by selling handicrafts and large clam shells to well constructed and planned. During the Mission's 6 walk through the village a number of islanders pointed tors which had contributed to the slow and difficult with great pride to their new buildings and, judging by readjustment of the Rongelap people. The complete their remarks, the Mission gained the impression that support the Rongelapese had received for many years the people are satisfied with the present arrangements. while living on Ejit had made it difficult for them to 39. However, the people are gravely concerned with return to a life of self-sufficiency. The problem was the effects of radiation on the atoll and in the lagoon, aggravated by the fact that the eighty-four people who which, they fear, has permanently contaminated coco- had suffered from radio-active fall-out were joined by nut crabs and fish in the lagoon. Throughout the meet- 166 other Rongelapese who had previously lived else- ing, this matter was raised by numerous people, who where but who had elected to return to Rongelap be- pointed out that, not only had shellfish and fish in the cause of the new housing and food that had been pro- lagoon been contaminated and thus been rendered in- vided by the Administration. It was this latter group edible, but also that some of the coco-nut palms on the which was the most vocal in its complaints. The High atoll had died as a result of radiation. They stated that Commissioner stated that he had been assured by the the fish in the lagoon were poisoned and were causing scientists that the people were in good physical condi- illness among them. Others wished to know whether the tion and that the island was safe for habitation. Suffici- irradiation they had suffered in 1954 would have last- ent agricultural potential existed on the atoll to support ing effects on their health. Since the Mission was not the present population and to produce copra for export. in a position to allay their fears for lack of adequate He frankly stated that the problem was to convince scientific knowledge of the facts, it requested the heads the Rongelapese that they could again become self- of the medical and scientific teams, who were well supporting. known to all the people on Rongelap, to explain the 41. On the strength of the information given to it by situation at the meeting. They stated that the people who the Administration, the Mission is confident that the had suffered skin damage immediately after the fall- Rongelap people have now recovered physically from out in 1954 had now completely recovered. Further the immediate effects of irradiation and that the mate- tests regarding possible late effects of irradiation were rial assistance rendered them by the Administration constantly being carried out and, although late effects for their rehabilitation is fully adequate to their needs. were a possibility, they were, in view of the small degree However, their emotional and psychological problem, of irradiation suffered, not likely to occur. Nevertheless, arising from persistent fears and apprehensions con- the annual examinations were being conducted to ensure cerning their well-being, is one which, in the view of against such an eventuality. It was further pointed out the Mission, requires prompt and serious attention if that only coco-nut crabs had been found unsafe for the Rongelap people are to be fully restored to a normal eating because of the presence of radiation. However, and productive life. Although the Mission cannot ex- fish outside, as well as inside, the lagoon were con- press its views on the evaluations made by scientific sidered to be safe for eating. Some of the fish near the experts, it feels certain that its people would not have reefs were poisonous, but fish poisoning of that type been returned unless the Administering Authority was was not due to radiation and had been known to exist convinced that conditions on Rongelap were safe. At in the Marshall Islands and elsewhere long before the the same time, the Mission feels that the long period nuclear and thermo-nuclear tests had been conducted. of inactivity while away from their homes has created The Mission was told that many studies on that sub- doubts in the people's minds as to their ability and fit- ject had been conducted to determine the source of fish ness to resume a useful life. These doubts may have poisoning in this and other areas long before the Second been further strengthened by annual visits and exami- World War and that further studies to this end were in nations by medical and scientific teams which, they feel, progress. Subsistence crops, coco-nuts and water were would not be necessary if they were well and no danger considered safe for consumption, and tests carried out existed. during the investigations did not show late effects of 42. The Mission fully appreciates the very serious radiation on plant life. Nevertheless, investigations problems which the people of Rongelap are facing in would be carried out on coco-nut palms which, accord- their readjustment, and it recognizes that the Adminis- ing to some of the people on the atoll, had died off tration is alive to them. Nevertheless, the Mission after irradiation. In addition, the scientific team pro- recommends that the Administration should, in co- vided the Mission with a summary of its four-year operation with the other agencies of the Administering survey, which appears as annex I to the present report. Authority, provide every possible assistance to the 40. During his final discussions with the Mission, Rongelap people to enable them to overcome their the High Commissioner pointed out a number of fac- present problems.

CHAPTER II POLITICAL ADVANCEMENT

DEVELOPMENT TOWARDS SELF-GOVERNMENT divided into distinct cultural and linguistic groups, 43. To assess the progress made since the end of the which are further separated by geographical barriers Second World War in the develonment of democratic and consequently have had little in common with each organs of self-government in the Territory, two things other. Secondly, it must be remembered that before the should be borne in mind. The first of these is the fact war the people of the Territory had not been encouraged (already referred to above) that the people of the Terri- to participate in the conduct of their own affairs and thus tory, though broadly classed as Micronesians, are had continued to adhere to traditional forms of local 7 rule until, under the present Administering Authority, broader aspects of the Territory's needs rather than the concept of representative government was intro- local interests. In response to the desire expressed by duced. The adaptation of the concepts of political free- some delegates to give increased usefulness to the Com- dom and of self-determination to the existing traditional mittee's work, it was decided that each District would structures was therefore initially confined to the devel- be asked to designate a hold-over member to the Inter- opment of local organs of self-government at the District Advisory Committee to serve for a period of municipal and District levels. This process has as its up to two years, instead of one year, and that there ultimate objective the creation of a Territory-wide organ would be no bar to individuals being rechosen as dele- of self-government. The relatively slow development gates at the end of the two-year term. It was also de- of a Territorial consciousness is attributable to the cided that each District would assign a hold-over mem- factors already referred to above as well as to the ber to attend meetings of the other District congresses persistence of a strong sense of parochialism through- as observers. The Mission feels that the establishment out the Territory. of the Inter-District Advisory Committee is a signifi- 44. Although there are as yet few signs pointing cant step toward the cohesive political development of to the development of a Territorial consciousness among the Territory, but at the same time it wishes to point the people of the Territory, the Mission found some out that both the Administration and responsible Micro- evidence that some of the obstacles standing in its way nesian leaders are fully aware of the considerable ob- are gradually being removed. Notably the Pacific stacles that must still be overcome before a truly repre- Islands Central School enables young people from all sentative Territory-wide organ of self-government can Districts of the Territory to meet together and their be created. common use of English gives them the ability to over- 46. Despite the apparent absence of any wide-~pread come the language difficulties and the opportunity to Territorial consciousness, the Mission feels certam that discuss and appreciate common problems and to de- the continuous and increasing efforts made by the Ad- velop a sense of unity. Like its predecessor, the United ministration to promote the cohesive development of Nations Visiting Mission to Trust Territories in the the Territory by means of education and the inc:easing Pacific, 1956, the present Mission had an opportunity association of its people in the conduct of thetr own of meeting with the students attending the Pacific affairs will ultimately bring about the desired results. Islands Central School as well as with those who were To help further this development, the Mission would attending the University of Hawaii. During its in- suggest that every effort should be made to assign a formal discussions with the students, the Mission was greater number of Micronesians to positions outside told by many that, as a result of their brief experi- their home districts, and it recommends that the Ad- ence of living together, they had not only formed friend- ministration should give consideration to the employ- ships which would otherwise have been impossible, but ment of some Micronesians at the headquarters of the that they had also come to realize the problems which Trust Territory. could ultimately be solved only through common ef- forts. Significantly, and in contrast to the experience 47. The Mission also wishes to recall that the 1956 of the previous Mission, the students seemed confident Visiting Mission recommended that, as a further aid that the older generation would not be reluctant to to the development of a Territorial consciousness, a accept, ultimately, changes in the political and social book should be prepared for use in the schools out- structure of their society provided that such changes lining in simple terms the geography, history and char- were beneficial. They also thought that much of the acteristics of the Territory and its people, and that this earlier opposition to the introduction of new ways was book should explain the relation of Micronesia to the gradually being overcome and that education and its modern world, with emphasis on its trusteeship status and the political, economic and social conditions of the demonstrated benefits had, in many cases, stimulated 3 a desire among the elders of the communities to see Territory. more of their children educated. 48. The present Mission was informed by the Ad- 45. The Mission also found that the annual Terri- ministration that in 1957 a short history of the Eastern tory-wide conferences of representative Micronesian Caroline Islands had been prepared and had been dis- leaders, which have been held on Guam since 1956, have tributed to all District departments of education where, further served to contribute to a better understanding in some instances, it was used as a text in intermediate of common problems and to the creation of a common schools. However, since the book was limited to the interest among Micronesians. The results of the 1956 Eastern Caroline Islands, other Districts were required and 1957 conferences were considered by the Adminis- to prepare corresponding materials. Efforts to synthe- tration to have been sufficiently significant to enable it size all these materials into a Territory-wide book in to convene them on a regular annual basis as the the English language have thus far failed. The Ad- Inter-District Advisory Committee to the High Com- ministration stated that the preparation of such a book missioner. While the establishment of the Committee would entail considerable expense and that the funds may be regarded as an initial step towards the ultimate at present available for the purpose were not sufficient. development of a Territory-wide organ of self-gov- In view of the important contribution which a book ernment, it should be stressed that at this stage the of this type could make to the development of a Terri- Committee does not possess any powers of legislation torial consciousness among the people of the Territory, and acts merely in an advisory capacity to the High the Mission recommends that this matter be given early Commissioner. Nevertheless, the discussions held in the and urgent consideration. murse of the third conference, held during November 49. In the development of local political institutions, 1958, provided encouraging evidence of a growing in- the Administering Authority has followed the policy terest among the delegates in its aims and purposes. of initiating local government at the level of the munici- Particularly in their approach to possible solutions for the numerous economic and social problems besetting • See Official Records of the Trusteeship Council, Eighteenth the various Districts, delegates tended to emphasize the Session, Supplement No. 3, para. 291. 8 pality and of developing thereafter regional and Dis- cussion at the time of the Mission's visit. The Adminis- trict-wide legislative organs. tration felt confident that preparations for chartering 50. At the local level there are 117 municipalities this municipality, which would otherwise have been headed by "magistrates" who are elected by universal delayed for a long time, would begin in the relatively adult suffrage and by secret ballot. Each magistrate is near future. This development, although local in char- assisted by an elected secretary, a treasurer and a coun- acter, tends to accentuate the considerable impact which cil. During the past three years the Administration has education is making on political development through- embarked on a programme of chartering municipalities out the Territory. The Mission found among the elected throughout the Territory with a view to increasing their officials of the municipalities it visited a surprisingly political activity and introducing a greater measure oi large number of younger people who had assumed, in uniformity in their structure and functioning, in ac- varying degrees, political leadership in local communi- cordance with democratic principles. The Mission was ties without engendering any apparent resentment from informed that, before a charter could be granted to a their elders. Nevertheless, the Mission does not wish municipality, a political education team composed of to underestimate the strong traditional influences Micronesian instructors would explain to local leaders which, though gradually weakening under the impact and to the voting members of the community the aims of newly introduced concepts, continue to be exercised. and purposes of the programme. In many cases it was 52. It is also significant that, during the elections held found necessary to hold an extended series of meetings, in Ponape in November 1958, candidates for offices in requiring more time than had originally been antici- Kolonia town gathered at a meeting with the people pated. However, the time devoted to the process of of Kolonia and each expressed his desire to hold office political education is considered by the Administration and stated reasons why he should be elected. This was as well spent, since it is felt that, unless the meaning the first time that a procedure akin to political cam- of the chartering process is well understood, the grant paigning was followed in Ponape, where candidates of a charter would merely constitute an empty gesture were previously nominated and not required to caJ?- and would not result in genuine progress. The first step paign publicly. The Administration informed the Mis- in the campaign to charter a municipality called for a sion that this innovation was enthusiastically welcomed visit of the magistrate and several local leaders to the by the people, who felt that by seeing and hearing the District centre, where they could be fully briefed con- candidates they were in a better position to know cerning all aspects of the programme. This was followed who they were and what they proposed to do. The by visits of the political education team to the munici- same procedure, it is expected, will in time be adopted palities for as long as was considered necessary. The by other municipalities, and the Mission suggests that Mission was told that particular emphasis was placed the political education teams in all Districts should on a full understanding by the people of their constitu- make it part of their task to instruct the people in the tional rights, defined in the Code of the Trust Terri- advantages of active political campaigning by candi- tory, and to the procedures which they would follow dates for public office. under municipal charter provisions. Copies of the pro- 53. The Mission noted that considerable progress had posed charter were subsequently distributed and its pro- been made in the development of District-wide organs visions discussed and explained. Before a final request of self-government. In addition to the Palau and Truk for the charter could be made to the High Commis- District Congresses to which formal charters had been sioner, various enabling ordinances regarding election presented in previous years, the Ponape and Marshall procedures, establishment of voter registers and the Islands Districts have now received their charters, and organization of the personnel of local government had to the latter has changed its constitution. In Yap, where be passed. Upon completion of these formalities, the the Mission presented a charter to the Yap Islands final ordinance making official request for a charter Congress on behalf of the High Commissioner of the must be passed and forwarded to the High Commis- Trust Territory, particularly notable changes have taken sioner through the District Administrator. During its place. Formerly, the ten elected magistrates, as an visit to Truk, the Mission was pleased to present, on island-wide advisory council, had met at regular inter- behalf of the High Commissioner, a charter to the vals with the District Administrator to advise him on Dublon municipality. This charter, a copy of which is local affairs and to issue frequent announcements and annexed to the present report (see annex Ill), closely proclamations of public interest. Almost four years ago, resembles the charters already granted to twenty-eight on a suggestion of the Administration, the Council of other municipalities throughout the Territory. During Magistrates began to conduct its meetings without the the time of the Mission's visit several municipalities presence of Administration officials unless they were were preparing draft charters for submission to the specifically requested to be present by the Council.. This High Commissioner, while others had decided to delay was at first questioned by some of the Council members requests for charters as they required additional time who had been accustomed to Administration direction for political preparation. of their meetings, but before long, the Council began 51. A notable step toward the replacement of chiefs to demonstrate its ability to proceed independently and by. elected magistrates was taken recently in the Ponape to transmit its decisions and actions to the District District where on Kapingamarangi, owing to the dis- Administrator. To begin with, the Council had con- ability of the King, the people elected a graduate of the sidered problems only as they arose, but it soon began Pacific Islands Central School who is now an elemen- longer-range planning in such fields as finance, public tary-school teacher, as chief magistrate. Although him- works and education, and has been responsible for self a son of the King, the present chief magistrate re- the initiation of numerous projects and improvements quested that, in accordance with the practices estab- on the island. The Administration told the Mission lished elsewhere in the Territory, Kapingamarangi that the most outstanding characteristic of the Council, should form a municipal council to assist him, but ques- of its advisory board and its committees and of the tions concerning the council's size and the procedure Yapese people, has been the desire and willingness to to be followed for its election were still under dis- initiate and plan their own programmes of improve- 9 merit and to support these programmes with labour town municipality. However, the Mission was informed materials and funds. ' by Administration officials that this question is more 54. The Mission was also told that the Council of complicated than it appears on the surface and cannot be settled until a local dispute between the municipality Magistrates ha~. reviewed and discussed over the past two years mumctpal charter programmes for other dis- of Kolonia town and Net municipality can be settled. tricts. The Council subsequently decided aa-ainst charter- The Mission was told that Kolonia, which is still con- sidered to be part of the larger political division of ing munic!~alit~e.s on Yap Island on th~ ground that these mumctpahtles first prepared for chartering would Net municipality, shares with the latter its tax revenues and has one representative on the Net Council. Aside most likely be those which were traditionally dominant from this relationship, Kolonia has its own town gov- over th~ others, and that chartering at the present ernment with a mayor, a secretary and six councilmen. stage mtght bolster existing traditional caste distinc- When it was first proposed that Kolonia town should tiot;s. Instead, it recommended that its existing organi- be chartered, the suggestion was strenuously opposed zatwn be charte~ed, and it est~bli~hed a special commit- by the Net officials, but as a result of several compro- tee for chartenng an orgamzatwn to make specific mises, agreement was reached by the people of Kolonia rec?mn;endations for th_e establishment of a separate and Net on a charter for Kolonia town which was sub- legtslahve organ. Immedtately following the grant of the sequently approved by the High Commissioner. How- charter, plans were initiated for the election of con- ever, the people of Kolonia now feel that they are gressmen. during April 1959 in order that the new poorly represented, since their sole representative on c;ong~ess might be able to hold its organizational ses- the Net Municipal Council speaks for a population swn m May. The Administration believes that the equal to that of the remainder of Net municipality. On functioning of th~ new Cong_ress in its relationship to the other hand, the people of Kolonia resent the fact the already estabhshed Counctl, as the executive branch i~ that some of their own municipal officials are favour- will require time if it is to become effective, but it able to the interests of the Net municipality since they confident _that in view of their demonstrated ability and are elected under a provision of the town charter which self-suffictency, the Yapese people will be able to make permits the people of Net to vote in the election of the desired adjustment. Kolonia town officials. Negotiations between the two _SS .. Am?ng the major developments on the level of municipalities to resolve the existing difficulties have Dtstnct-wt.de . congresses was the chartering of the been started and it is hoped that Kolonia will be granted Ponape Dtstnct Congress late in 1958. Prior to this representation on the Net Municipal Council in pro- e.vent, a bicameral Ponape Island Congress had func- portion to its population. In that event, the Adminis- tioned for many years in an advisory capacity only. Its tration is prepared to turn over the funds now collected members,. elected from the five municipalities of Ponape by it to the municipalities. In the meantime, it will con- Island, dtd, however, give advice from time to time tinue to collect rentals in accordance with a decision on matters affecting the entire District. Consequently reached some years ago by the Land Advisory Board, the municipalities on the outer islands had becom~ whose Micronesian members unanimously had ap- !ncreasingly resentft;l of the powers exercised by the proved the present arrangements. 1sland congress whtch, for its part, was desirous of expanding into a District-wide congress. But, its two 57. In the Marshall Islands a charter was granted by chambers, the hereditary house and the elected People's the High Commissioner on 9 December 1958 to a new House, were in constant disagreement over any and all unicameral District-wide Marshall Islands Congress. plans for ~he future organization of a District congress. Previously, the Marshall Islands Congress consisted of The qu~stwn was finally settled by a decision to call a the House of lroij, composed of hereditary nobles, and co.nv~ntwn of representatives of each municipality of the of the House of Assembly, whose representatives were Dtstnct to undertake the drafting of a charter. This con- elected by universal adult suffrage. During the last ses- vention met in May 1958 and decided to establish a sion of the Congress in August and September of 1958, unicameral congress whose representatives would be the two Houses agreed upon a new constitution estab- elec~ed by universal suffrage. The charter was approved lishing a unicameral body. The new Congress is the ?urmg the same year by the High Commissioner and, result of a compromise. The iroijlaplap ( nobles), while m September 1958, the new Ponape District Congress willing to abolish the separate House of Iroij, were not willing to sit without vote in the Congress as is the case ~eld its .firs~ session. !'-- special feature of the Congress 1s a legtslatlve committee which employs a permanent of hereditary leaders in Palau. The result is that the staff member. All bills submitted by members of the new Congress will be made up of approximately twelve Congress pass automatically to that committee where iroijlaplap and some thirty-eight elected representatives, they are drafted i~to proper form and where they re- each of whom will have one vote. In contrast to the matr: betwe:n sesswns. Should the Congress decide to previous Congress, the iroijlaplap cannot, as formerly, const~er a b!ll at the ~am: session, a two-thirds-majority delegate alternates to sit for them and cast their vote. If vote 1s requued to bnng 1t out of the committee. At this an iroijlaplap is not present, his seat cannot be taken stage, the Congress is in the process of establishing its by anyone else. In the event of the death of the iroij- pr_ocedures and of rewriting District orders into Dis- laplap his seat may pass to his legitimate successor upon tnct laws so that they can be applied uniformly through- approval of the Congress. out the District. A second session of the Congress was 58. Aside from these recent developments and the scheduled to be convened during March 1959. fact that chartered District congresses already exist 56. One of the matters which is of concern to the in Palau and Truk, it remains only for Yap, Saipan and Congress and which it discussed with the Mission is Rota to establish similar organs in the future. As a the collection of money by the Trust Territory govern- result of the Administering Authority's decision not ment on residential and business rentals in Kolonia to incorporate Rota into the Saipan District when that town on Ponape Island. The Congress feels that these area was placed under the jurisdiction of the United funds should be collected by the treasury of the Kolonia States Navy in 1953, a single island, artificially sep- 10 arated from the Saipan District, with whose people 62. A question of major interest to the Mission was it enjoys close ethnic, cultural and historical ties, is the continued division of the administration of the Ter- being developed into a political entity unto itself. As ritory between the civil and naval authorities of the a result, normal political development which the peoples United States Government. It will be recalled that, fol- in other Districts can expect to unite them eventually, lowing the transfer in 1951 of responsibility for the is being denied, for reasons of administrative conveni- administration of the Territory from the Secretary of ence, to the people of Rota and of Saipan. In order to the Navy to the Secretary of the Interior, an executive remove this obstacle, as well as for reasons stated below order was issued on 10 November 1952, whereby, for (see paras. 62-65), the Mission recommends that the security reasons, an area including the islands of Saipan Administering Authority should give its urgent con- and Tinian was returned to Navy administration as from sideration to associating the people of Rota with those 1 January 1953. The order did not, however, include of the Saipan District. the island of Rota, lying between Guam and the area returned to Navy control. Having been administered ADMINISTRATION OF THE TERRITORY until 1953 as an integral part of the Saipan District, Rota was consequently left to itself without any ap- 59. The question of transferring the headquarters of parent District administration of its own, until in 1955 the Trust Territory Government to a site within the it was made the seventh District of the Trust Territory. Territory, which has been discussed on numerous occa- It is also recalled that the previous Visiting Mission sions by the Trusteeship Council, was again raised had received a request from the people of Rota de- by the Mission during its discussions with the High manding the "union" of all the people of the Marianas Commissioner of the Trust Territory. which the Mission had considered as evidence of the problems created by the administrative division of the 60. The High Commissioner felt that for the fore- Marianas.4 They had pointed out that prior to their seeable future the interests of the people of Micronesia separation from the Saipan District they had been able would best be served by the retention of the Territory's to visit Saipan, Tinian and the other islands, except headquarters at Guam. Owing to its central location Guam, without the necessity of obtaining travel docu- and well-developed installations, it could render far ments. They had, moreover, enjoyed greater economic, better logistic, financial and other services to the Terri- social and educational cohesion, since the Saipan ad- tory than would be available from any area within it. ministration had provided uniform services to all islands He felt that the best headquarters site available within of the District. The 1956 Mission had also reported the Territory was on Dublon Island in the Truk Dis- that the disadvantages of the prevailing situation had trict. However, the establishment of such a site would apparently been partially offset by the co-ordination that require over $3 million for the building of docks, land- had been established between the Saipan District and ing strips, air and shipping service facilities, housing, the headquarters of the Territory, and that travel docu- roads, utilities, etc., and on completion, it would still mentation for Guam was required to keep out known not provide as good a service or as ready an .accessi- criminals and undesirable persons. Such documentation bility to all Districts as was at present provided by had rarely been denied and permission to enter was gen- Guam. In addition, it would be just as far removed erally granted without delay. from several Districts as the present headquarters. 63. The people of Rota, in the course of a public 61. He pointed out that he would also have t? take meeting, again requested the Mission to recommend into consideration the desires of the people m the that consideration should be given to the unification of creation of a "capital" within the Territory. At the all the peoples of the Marianas. Although they were present stage, there was no demand by Micronesians still debating the various aspects of the question among for the transfer of the Territory's headquarters to a themselves, particularly the question of a future rela- site within one of the Districts and no evidence of tionship between Rota, Guam and the Saipan District, solidified, uniform thinking among Microne~ians with they appeared generally to agree that a union of the respect to the ultimate form of government which should entire area was desirable from their point of view, prevail in the Territory. When Micronesians developed since free and unimpeded travel throughout the Mari- common desires with regard to the question of head- anas for purposes of education, trade and visits to rela- quarters, the Administration would be fully pr~pared tives and friends would be of advantage to all the in- to give its full consideration to the matter. He did not habitants. They stated that their desire to see the cre- rule out the possibility that in the future the Micro- ation of greater unity in the Marianas chain had been nesians might lean toward Guam as a unifying point. further strengthened as a result of resolutions addressed He stated that, in any event, in the near future a much to the Congress of the United States and calling for the smaller group of American officials would be involved unification of the Marianas, which had been adopted by in Micronesian government and administration and that the Guam Legislature over the past three years. They this would result in a different approach to the develop- said that they had considered a variety of suggestions ment of headquarters facilities in any closer area. He and proposals without reaching a clear solution, and stressed that any headquarters move should be designed they thought that, before any decision could be reached, to benefit the people of Micronesia and should not be the- logical step to take was to send one of their own undertaken to serve any other purpose. The Mission people to Guam to discuss the implications of the reso- appreciate's the reasons which have persuaded the Ad- lutions adopted by the Guam Legislature with its ministration to retain the headquarters of the Territory representatives. Only then could they consider the ques- in Guam. However, it would suggest that the matter tion in the light of the explanations made by the people should be kept under constant review and that, to this of Guam and reach a solution one way or the other. end, the Administration should take full advantag-e of The Mission was told by Administration officials that, the annual meetings of the Inter-District Advisory although this question had been of concern to the people Committee to the High Commissioner to discuss this question from time to time with it. • Ibid., paras. 302-306. 11 of Rota, the people in the Saipan District had not dis- Department of the Interior. As a consequence of this cussed the matter. practice, the Adminis~ration ex~erience~ a constant turnover in personnel m the Terntory, wtt? the result 64. Later, the High Commissioner informed the Mis- that the achievement of continuity of servtce was ex- sion that considerable thought had been given to the Uni~e? suggestion of placing the entire Territory under the tremely difficult. As from 1 April .1956, Sta.tes citizens employed in the Trust Terntory Admtmstratwn civilian authority of the High Commissioner, but that were included in the Civil Service and personnel em- this was a matter requiring a decision by the United ployed since that time have been recruited through t~e States Departments of the Interior and of Defense. United States Civil Service Commission, although m Those Departments did not consider it necessary or the case of posts for which the Commissio? cannot pro- advisable for the current status of the two Districts vide suitable candidates, the Trust Terntory govern- to be changed. The interests of Rota might, however, ment continues to make direct appointments. However, be better served if the island were to become a part of persons so appointed are not considered permanent the Saipan administration. This question was also under members of the Civil Service. The principal advantage constant study, and action might be taken within the of this change is that officers with full civil service next several years looking towards combining Rota status have the opportunity of transferring to ?ther and Saipan. In the meantime, administrative matters civil service positions outside the Trust Tern~ory. continued to be co-ordinated between the High Com- Similarly, vacancies existing in the Trust Terntory missioner and the Naval Administrator for Saipan may be filled by transfer of civil service employees from through the Island Government Office of the Com- other agencies of the United States Government. mander, Naval Forces, Marianas, at Guam. He stated that there was a constant exchange of information, 67. This chanMarshallese language. Employees are permitted to use people, they serve none the less to underline a trend a portion of their work period for this purpose. The which, in the view of the Mission, is not conducive to Mission hopes that this commendable effort, if success- the desirable development of the Territory into a poli- ful, will serve as an example for the initiation of simi- tical and administrative entity. The Mission would lar projects in other Districts of the Territory. therefore suggest that urgent consideration be given 68. The gradual reduction in the number of Ameri- by the Administering Authority to combining the Rota can personnel of the Administration to less than 250 and Saipan Districts into a single administrative unit has been accompanied by a corresponding increase in and to placing the entire area of the Northern Marianas the number of Micronesian employees. Aside from the under the same civilian authority as the remainder of information contained in the annual report of the Ad- the Trust Territory. ministering Authority,6 it is expected that by the middle of 1959 a Micronesian director of public health will re- CIVIL SERVICE • Ibid., para. 311. 66. Prior to 1 April 1956 American of!Jcials in ~he 6 Eleventh Annual Report to the United Nations 01t the Administration of the Trust Territory dtd not enJOY AdministrationJ of the Trust Territory of the Pacific Islands, permanent tenure and were not members of the United Julv 1 1957 to June 30 1958. Transmitted by the United States States Civil Service. Their appointment for contract of An;erica'to the Unit~d Nations Pursuant to Article 88 of the Charter of the United Nations, Department of State Publica- periods of two years, subject to possible re-employment tion 6798 (Washington, D.C., U.S. Government Printing Of- at the expiration of that period, was made at head- fice, 1959). Transmitted to members of the Trusteeship Council quarters in Guam with the approval of the United States by a note of the Secretary-General (T/1453). 12 pl~ce _the present American doctor in charge of the Yap Plan of 1957. The numerous requests made on that D1stnct. Consequently, six out of seven Districts will subject to the Mission originated for the most part have Micronesians in charge of the public health pro- at the District centres, where a combination of inade- grammes. Similar appointments of Micronesians to po- quate housing, higher living costs and the ready avail- sitions of responsibility are expected to be made in ability of trade goods have tended to upset the living other fields of the Administration as more trained Mi- standards of those Micronesian employees who have cronesians become available. During its travels through come to prefer the attractions offered at the District the Territory, the Mission had frequent occasion to centres to life in the environment of their own people. observe the good work being performed by Micronesian The Mission considers that there is need for progressive personnel at all levels. It could not, however, help but decentralization of services at the District centres and notice that the Micronesian staff in the Districts ap- a corresponding need for increasing the number of staff peared to be largely concentrated at the centres and assigned on a permanent basis to the outer islands of that, in contrast, few, if any, trained Micronesians were the Territory, where the services of skilled Micronesian assigned to outlying islands. It also found indications and American personnel are in growing demand. It of a growing awareness of this problem among Micro- also noted that, apart from those employed in the offices nesians themselves, who, on several occasions, told the of the Administration and in the medical and educa- Mission that they preferred to see more trained Micro- tional services of the Territory, few Micronesians as nesian staff assigned to outer islands, where they could yet possess the necessary skills and experience which more usefully assist the people in solving their problems, would allow them to replace American personnel. This rather than in offices at the administrative centres. An deficiency is found to be particularly apparent in the attendant feature of this trend toward over-centraliza- field of public works and to a somewhat lesser extent tion is a growing demand among Micronesians for in the agricultural services. It reflects an urgent need wages higher than those paid under the prevailing scales for greater emphasis on the training of Micronesians as provided by the revised Micronesian Title and Pay in technical skills.

CHAPTER III ECONOMIC ADVANCEMENT

GENERAL but the islands were of such strategic value to the Administering Authority that it should increase its 69. The economic life of the Territory is based pri- appropriations, so that the development of the Territory marily on subsistence agriculture and fishing, with cash would not be hampered. income obtained through the production of copra, the harvesting of trochus, government employment and the 70. The Mission is fully aware of the tremendous dif- sale of vegetable products and small quantities of ficulties which the Administration must face in develop- handiwork. Subsistence crop production predominates ing the economy of the Territory. The geographical throughout the Territory, and except for copra, which dispersion of the islands and their relative isolation is produced in all Districts, and vegetables from the from world markets are in themselves obstacles to eco- Rota and Saipan Districts, only a negligible portion of nomic development, even if the Territory possessed any the entire crop production is marketed. In view of the kind of valuable resources. The Mission also appreci- meagre economic resources of the Territory and the ates the fact that contact with foreign administrations insufficient revenues that can be raised locally to pay over many decades has inevitably produced changes in for the high cost of administrative and other services, the economic life of the people of the Territory, whose the people of the Territory continue to depend on the needs in former times had been fully met out of a sub- Administering Authority for substantial financial assis- sistence economy. The introduction of industries, par- tance. The Administering Authority estimates that the ticularly in Japanese times, and the attendant introduc- total "national" cash income of the Territory amounted duction of cash and trade goods into the local economy to approximately $3,720,000 in 1958. During the same have contributed to an increasing dependence of Micro- period local revenues derived from local and excise nesians on outside sources to meet their needs. taxes and from transportation fees amounted to 71. The Mission wishes to recall that, in contrast to $1,867,140 and the Administering Authority made an previous administrations, the economic policy of the appropriation of $5,681,715 to cover the deficit in the Administering Authority in the Trust Territory is Territory's budget of $7,548,855 for 1958. It will be directed toward the goal of maximum possible self- recalled that the 1956 Visiting Mission noted a tenden- sufficiency. The Administering Authority has stated cy on the part of the Administration to emphasize the that to achieve this goal the economy should be devel- need for reducing the heavy deficit of the Trust Terri- oped: (a) to suit the needs and resources of the area; tory, and the Mission felt that such a reduction, unless (b) to provide adequately for the food and monetary achieved by increasing local revenues, could only be needs of the population; (c) to provide a firm founda- brought about by reducing the current amount of ap- tion for self-government; and (d) to be so implemented propriations; to do so would have the adverse effect as to reserve to the Micronesians both land and, to of limiting the scope of the Territory's development by the greatest extent possible, the development of the depriving it of the personnel and material assistance it natural resources and commercial opportunities of the required.7 The 1956 Visiting Mission also took the view Territory. that the natural resources of the Territory were limited, 72. The High Commissioner informed the Mission 7 See Official Records of the Trusteeship Council, Eighteenth that the Administration was attempting to develop Session, Supplement No. 3, para. 316. the limited resources of the Territory by concen- 13 trating initially on· the improvement of agriculture number of young educated Micronesians might not be and the establishment of a fishing industry. He also able to find sufficient outlets for productive and useful stated that at this stage of its development there was participation in public and private life unless corre- no known want or need in the Territory, although there sponding efforts are made by the Administration toward was a major desire for more cash. He preferred to take a more rapid development of the economy. The Missio? the slow approach in the development of the economy feels that this effort must, of necessity, be the responsi- rather than a fast approach to meet a desire that was bility of the Administration and not of the local com- not absolutely imperative at this time. He also stressed munities, which do not as yet possess the necessary the fact that there were no known mining or industrial means, knowledge, and experience to plan and to im- resources in the Territory which could be developed plement such programmes. The Mission recommends into an industry. that the Administration should, at the earliest possible 73. Demands for greater economic development time, undertake a comprehensive survey of the econo~y which the people of the Territory see as the onlv source of the Territory with a view to formulating spec1fic that might provide them with a cash income were pre- plans for economic development in all fields, taking into sented to the Mission in every District of the Territory. account available markets both within and outside the They included numerous requests for the re-establish- Territory. In this connexion, the Administration might ment of industries such as the sugar, pineapple canning avail itself of the services of the specialized agencies of and fibre industries which had been developed under the the United Nations and other international bodies. It former Japanese administration and which had been also recommends that the Administration should pro- destroyed during the last war. In other instances re- vide such additional funds as will ensure not only the quests were made for the development of fisheries and maintenance of adequate services in the Territory, but for the improvement of the copra industry. This grow- also a vigorous start of more ambitious economic de- ing demand for economic development is also reflected velopment plans. The Mission also suggests that, in in the debates of the various District congresses and of view of the need for technical skills in the Territory, the Inter-District Advisory Committee to the High increased attention should be given by the Administra- Commissioner. tion to the training of greater numbers of Micronesians 74. The Mission found that the most important fac- in technical skills than at present and that for this pur- tor in the relatively slow development of the Territory's pose more specialized personnel should be recruited economy is lack of adequate funds. For example, the from abroad to supplement the present staff. In this Mission was told by many officials of the Territory that connexion, the Mission would suggest that instruction practically every programme in the educational, social in community development should be given particular and economic fields had to be curtailed or postponed attention. for lack of funds. Many of the school, hospital and ad- ministration buildings are in urgent need of replace- THE coPRA INDUSTRY; THE CoPRA STABILizATION ment, and repair costs constitute a constant drain on BoARD AND FUND; COPRA PRODUCTION the budget. Although roughly ~900,000 was spent in 1958 on the replacement of old structures and the ac- 76. Copra, the chief export and mainstay of the Ter- . quisition of new equipment, the Mission was told that ritory's economy, has since 1954 been marketed bJ: a it will require ten years, with an outlay of ~1 million private American firm operating under contract w1th to replace all existing buildings which are in varying the Copra Stabilization Board, which manages the degrees of disrepair. It also found that, while the ex- Copra Stabilization Fund. Under the existing market- penditures on the maintenance of the regular services- ing system, the contractor is allowed $2.40 per short e.g. shipping, communications, administration, educa- ton for administrative expenses and the marketing of tion and health-have not been appreciably increased the copra, and is further guaranteed 2 per cent of the in recent years, costs for materials and equipment have gross sale price as an incentive to obtain the best price. constantly risen over the past years. Economic develop- The copra is collected at five island centres in Koror, ment programmes continue to be supported out of the Yap, Ponape, Truk and Majuro, from authorized local regular budg:~ of the Territory. In reply to a question trading companies which purchase the copra from the whether additiOnal funds would be made available for indigenous producers at prices prescribed by the Board. economic development, the Mission was told by the The copra is stored at Majuro, the largest collection High Commissioner that the Administration had not centre and one of the principal ports of the Territory. prepared a ten-year programme as in the case of re- Trans-Pacific vessels call at this port approximately construction, and he stressed the difference between every two months to load between 1,500 and 3,000 short what he felt was the true need for economic develop- tons of copra for delivery to the most favourable mar- ment and the expression of desires on the part of the kets, chiefly Japan and the United States. To facilitate p~ol?le. ~everthe!ess, during the coming year, the Ad- the collection, the contractor is authorized to advance mmistratwn planned to employ an economic develop- to local companies funds up to 100 per cent of the value ment officer whose task it would be to investigate all of the copra held in their warehouses. The contractor phases of the economy and to make recommendations is required to sell the collected copra within three for specific projects. months in order to avoid speculation. Upon completion 75. While the Mission appreciates the fact that the of each sale, the contractor pays these companies the Administration is already contributing four-fifths of difference between the amount advanced and the ware- the Territory's budget to cover the deficit, it considers house value of the copra, together with a stipulated that the Adminis~ration still fails to provide adequate amount for collecting, grading and warehousing. funds for the mamtenance of present services and for 77. During 1958, the total export of copra amounted the purposes of economic development. In view of the to 13,259 short tons, a drop of 329 short tons from 1957. fact that _Political ~nd educati~mal progress is beginning In this period the prices paid to producers for various to make Itself felt m the Terntory, there exists a danger grades remained constant, ram!ing from $90 to $110 ·that Micronesian political institutions and the growing per short ton. The purchase of' c~pra by trading com- 14 panies at a maximum of $10 per short ton less than the tricts of Rota, Truk, Ponape and the Marshall Islands. prescribed price was permitted in the outlying areas. During the next fiscal year, the Districts of Palau and At the end of the fiscal year 1958, the Copra Stabiliza- Rota may order selected coco-nut seed from Yap for tion Fund showed reserves of approximately $770,000 propagation, but the Districts of Truk, Ponape and the (exclusive of the Saipan District), a sum slightly high- Marshall Islands will be required to select their own er than the balance normally maintained by the Board mother palms, gather the required seed, and furnish the as a reserve. In addition to this, the Saipan Stabiliza- needed selected seedlings for their coco-nut develop- tion Fund showed net assets of about $46,000. ment programmes. 78. In 1958, a Micronesian was appointed for the 81. A principal factor affecting the possibilities of first time as a member of the Copra Stabilization Board, improving the quality of copra is the utilization of the a development which the Trusteeship Council has fol- proper processing method by the producers. On the lowed with interest. During its visit, the Mission learned low coral atolls copra is primarily sun-dried because that this member was elected by the people of the Mar- of the long periods of sunlight available and the sim- shall Islands District, which leads the Territory in plicity of the operation. On the high islands where producing copra. The Micronesian member was ex- rainfall is greater, the producers have resorted increas- pected to serve for a period of one year and then to be ingly to the use of artificial driers. For the most part, replaced by a representative from the Ponape District, their driers are simple in design, consisting of excess the second largest producer. With regard to the pos- fuel-oil drums and local thatch material. Since the dif- sibility of associating additional Micronesian representa- ference between the world market price for copra pro- tives with the work of the Board, to which the Council duced in driers and that for the sun-dried copra is has attached importance, the Mission was informed that small, producers are reluctant to construct expensive at the present time the major hindrance to appointing copra driers such as the one in operation at the Mado- more Micronesians to the Board was the problem of lenihmw plantation in Ponape. The Mission was in- transportation to bring them to Guam for Board meet- formed that, on the basis of the recommendations made ings and to return them to their home District. The by the former Director of Coco-nut Operations, the Mission also noted the view expressed by the Adminis- Ceylon-type copra driers were introduced successfully tration that the system of rotating the Micronesian in 1957 in the Yap District, where producers built some membership each year to an elected representative from sixty of these copra driers during the first six months the copra-producing Districts was the most workable of 1958. Aside from the fact that construction of the approach possible under the present circumstances. The driers involves little money and labour, they can be Mission believes that more Micronesians should be of- erected in the villages and provide drying facilities in fered the opportunity of playing an active part in the any weather. The Mission hopes that the improved framing and execution of the policies of the Board method for copra processing will be increasingly adopted which directly affect the development of the most im- by producers in other Districts. portant industry of the Territory, copra production, and 82. The Administration believes that substantial ex- the economic welfare of a very large number of the pansion of copra production cannot be achieved unless indigenous population. The Mission therefore hopes the producers are assured of a fair and stable price. that the Administering Authority will spare no effort The Mission welcomes the measures taken by the to overcome the difficulties at present encountered by it. Copra Stabilization Board for the maintenance of an 79. As noted earlier, there was only a slight decrease adequate field price. As a result of a drop in world in the exports of copra between 1957 and 1958. But market prices, the Board found it necessary earlier the recent typhoons caused a sharp drop in production. in 1958 to withdraw approximately $50,000 from the During the same years, total production fell from more Fund in order to maintain prices paid to the producers than 14,000 to less than 10,000 short tons. On the basis at the established rates of $90, $100 and $110 a ton of the Administration's estimate, the 1959 production for the three grades of copra, respectively. However, will be further reduced. In the Marshall Islands alone, during recent months sharp rises in world market a 20 per cent decrease is anticipated, amounting to ap- prices have enabled the Board to increase the payments proximately 1,000 short tons. The Mission is satisfied to producers by $10 a ton for the various grades of that the Administration has sought to alleviate the copra. The price increase will, at least in a small mea- economic hardship of the producers by completely re- sure, compensate for the loss of cash income suffered placing the shattered coco-nut palms in the devastated by the producers in connexion with the serious damage areas. Elsewhere in the Territory the programmes of caused by the recent typhoons. Nevertheless, it is a coco-nut rehabilitation are continuing. Attempts will be matter of deep regret that the people in the ty~hoon­ made in 1959 to increase copra production in those stricken areas will have little or no opportumty to areas that were not affected by the typhoons. The Ad- benefit from this rise in producer prices because of the ministration believes that production should slowly rise extensive destruction of coco-nut palms. again, perhaps reaching a maximum in ten to fifteen 83. The Mission was disturbed at the apparent in- years, after all the stricken areas have been replanted. frequency of visits by field-trip. ships to some .of the Should the people turn the entire crop into copra total outlying islands where processed copra was occaswnally production might rise to as high as 30,000 short tons left to spoil for lack of available shipping to coll~ct it. a year. This, in turn, may have contributed to a lack of m~en­ 80. The Mission was pleased to note that the Ad- tive on the part of the islanders to produce potentially ministration has continued its efforts to improve the greater quantities of copra. In view of the expres~ed yie!d and q1;1ali~y of coc~-nut palms through the appli- wishes of Micronesians to expand copra productiOn catiOn of scientific techmques, such as the selection of as a means of increasing their cash income, the Mission better seed-nuts, improved planting and proper process- recommends that the Administration should take all ing methods. In 1959 approximately 220,000 selected necessary steps to eliminate present deficiencies with se~d-?uts a:e expec~ed to be shipped from the Yap a view to placing copra pyoduc~ion on th~ ?utlying D1stnct, wh1ch prov1des the best seedlings, to the Dis- ·islands on a more systematic bas1s. The M1ss1on also 15 feels that more frequent VISits of agricultural officers ally in use, while unusued land w~s vested in t~e. Dis- to outlying islands for the purpose of instructing the trict or the community. Under the Japanese admmistra- people m improved methods of planting, harvesting and tion, however, land to which no title existed was de- the processing of copra would contribute greatly to their clared public domain, from which long-term leases were economic well-being. granted to Japanese interests. During the war, more- LAND over, land was acquired under pressure by the Japan- ese from individuals at inadequate prices and in some 84. In most islands land tenure and utilization prac- instances without compensation. Under the present Ad- tices have been undergoing change for many years due ministration, efforts have been made to settle the to the influence of the various administrations and to numerous land claims of indigenous inhabitants, which increasing contact with other cultures. Under the tra- centre around three principal issues : ditional systems still prevailing in the Caroline and (a) The public domain with respect to which claims Marshall Islands, paramount chiefs have titular own- exist for lands alienated by the Japanese; ership over land in some areas. In other areas, clans (b) Claims arising out of the use or deterioration of own the land, and lesser chiefs and sub-clans have the lands as the result of war activities; and power to supervise and distribute local lands. At the same time households, safeguarded by further tradi- (c) The use of some lands for current Trust Terri- tional rules of tenure, are actually occupying sections tory administrative installations. of such lands in order to use the gardens and fruit 89. Under the Code of the Trust Territory, all l ' • Saipan District the Northern Marianas Development company, on outer islands. In the main, the compames Company carried out operations similar to those of the have been unable to make a success of branch opera- Island Trading Company. It is also recalled that from tions because of the distances involved and the conse- the outset it had been made clear that the Island Trad- quent poor supervision. At the present time only the ing Company of Micronesia should withdraw progress- Western Carolines Trading Company in Palau con- ively from operations as indigenous enterprises became tinues to operate branch stores on Babelthuap Island capable of supplanting it, and that the Congress of the just north of the island of Koror. United States decided in 1953 that the Company's 135. During the past three years only one of t~e operations should cease on 31 December of that year. chartered trading companies has suffered a loss m However, by a later decision, the life of the Company operating capital. Due to over-expansion and poor was extended for one year and it was formally liquidated management, this company dissipated its liquid assets on 31 December 1954. In view of the important func- to the point where the Administration was required to tions which the Island Trading Company had carried step in to save the company from bankruptcy. The man- out in practically every phase of the Territory's econ- ager was subsequently remove.d a~d the n~w manage- omy, the United Nations Visiting Mission to Trust ment has been making great stndes m restonng the com- Territories in the Pacific, 1953, and the Trusteeship pany to a firm financial basis. Council expressed concern regarding the ultimate effect 136. Upon the dissolution of the Island Trading of the company's cessation on the life of the Territory Company, a portion of that company's profi!s was made and found it difficult to envisage the effective transfer available by the United States Congress m the form of its primary and ancillary functions to locally oper- of a loan fund for the locally-owned trading companies ated companies. Subsequently, the 1956 Visiting Mis- of the Trust Territory. This fund has been used exten- sion found that these apprehensions were unfounded and sively by the majority of the trading con:panies . to that the successor companies were operating success- fully.9 finance long-term capital improvements, bmld up I?-- ventories, purchase ships, and on a short-ter~ basis, 132. At the present time, there are twenty trading purchase trochus shell. Several attempts to mterest companies located throughout the Territory, of which foreign commercial banking companies in making money seven, one in each District, have the exclusive right to available to local trading companies have proved un- handle copra (see paras. 76-79). With the exception successful. Each of the trading companies has stock of two firms which are in the hands of Belgian nation- available for sale to the indigenous population of the als who have resided and operated their trading es- Trust Territory. The Administration, as a matter of tablishments in the Territory for many decades, all policy, insists that all trading companies having exclu- trading companies are joint-stock companies chartered sive rights in the export of copra from their District under the laws of the Trust Territory and shareholding shall always have sufficient numbers of shares avail- · is restricted to Micronesians, who elect a Micronesian able for purchase by the copra producers, who must board of directors to supervise and control the operation sell their product to that particular company. In this of each company. Some of the larger companies are manner the producer is able to share in any profits the managed by Americans, who are employed under terms company might make in the handling of his product. established by the Micronesian board of directors. 137. The various trading companies within the Dis- 133. Since 1955 three trading companies have been tricts are organized as limited liability stock companies chartered by the Administration to transact business and differ from true co-operatives principally in matters within the Territory. The Nama Trading Company in of voting and in the distribution of profits. Under the Truk was originally established for the primary purpose present arrangements, each share of stock is voted in- of purchasing yard-goods and manufacturing men's dividually, in contrast with true co-operatives in which shirts for sale in the outer islands. As this company each individual has only one vote regardless of the grew it branched out into general lines of merchandise number of shares of stock held. The local trading com- and has moved its headquarters from Nama Island panies make distribution of profits only to stockholders to Moen within the Truk Atoll. This company became in accordance with the amount of stock held in the the first competitor of the Truk Trading Company, company as against profit-sharing on a patronage basis which was until then the only wholesale importing in co-operatives. Aside from these differences, the trad- organization in the District. The Truk Co-operative Company has since established its trading headquarters ing companies tend to follow co-operative practices. on Moen Island and has recently completed a large Any person becoming a stockholder is restricted to a limited number of shares. store and warehouse. The Administration considers the 138. Local trading companies are engaged in eco- • Ibid., paras. 328-330. nomic development projects in various fields. In one 22 District, a company has purchased a 108-foot motor South-East Asia and Japan, it was informed by the vessel and operates an inter-island shipping service. Administration that the major portion of ready-made Companies in other Districts operate 40- and SO-foot clothing was imported from the United States and that boats between islands to transport passengers and Micronesians considered it superior to all others. The freight. The Nama Trading Company received its start Administration also stated that to a large extent ready- by hiring a number of women on N ama Island in the made clothing was purchased in off-season sales in the Truk District to manufacture men's shirts out of im- United States and that the prices paid for it were com- ported material. Trading companies are spending some parable to those in Japan. During its discussions with time on the development of local handicraft articles several of the managers of local trading companies, the acceptable on the world market and are exporting these Mission was told that the establishment of local manu- items in limited amounts. In the Palaus, trochus shell facturing, initially on a small scale, might be attempted and tortoise shell jewelry is being manufactured and and that expenditures for acquiring equipment might marketed through the local trading company. The be relatively low. The Mission feels that the potential Administration feels that the local trading companies savings to be derived from such a scheme and the at- are adequate to meet the basic needs of the areas which tendant benefits to inhabitants from additionally earned they serve. income might justify the initiation of clothing manu- 139. There can be no doubt that the trading com- facture on a small-scale experimental basis. panies in the Territory have demonstrated a remark- 141. The Mission was informed that trochus pro- able ability to maintain and even widen markets for their duction during 1958 had remained at about the same products. More important still is the fact that over the level as in 1957 and that the net return to the trading years these companies, capable of gaining business ex- companies which market the trochus had also remained perience and of accumulating sums of surplus funds, steady. During 1958, sales of trochus amounted to could form the backbone of greater economic develop- 389,988 pounds, valued at $144,347. The trochus har- ment of local industries in the future. In this connex- vesting season, which is limited to a period of two ion, the Mission noted that according to present prac- weeks during each year, between the months of May tices trading companies were paying relatively high and September, has been established as a conservation dividends, varying between 10 and 20 per cent on the measure and is enforced under the provisions of the par value of the stocks to their stockholders. Although Code of the Trust Territory. As a result of more than the Mission was told that the par value of the shares two years of research conducted by the marine biologist was generally far below their actual book value, it is of the Territory, consideration is being given by the nevertheless a fact that Micronesians do not buy shares Administration to the possibility of abolishing the two- on the basis of fluctuating or book values but at par. week limit. The High Commissioner informed the Mis- Consequently, shareholders have come to accept the sion that it is contemplated to establish at least a trial high dividend returns as a matter of course. One such period of open season on trochus limiting the size of case was noted by the Mission in Palau where in 1958 trochus that can be harvested, but that no definite de- the Western Carolines Trading Company, owing to cision had been reached. The establishment of an open changes in management, business policies and reduced season, if it is found to be feasible, would permit the commercial activity, was forced to incur exceptionally inhabitants to gain a steady income from this product high expenses and found it difficult to pay the usual throughout the year and the Mission was pleased to dividends out of current earnings. The president of the note that the development of the trochus industry company told the Mission that shareholder demands was receiving constant attention. In an effort to widen for the regular dividend were so insistent that, if the the base of cash crops from the Territory, the Adminis- board of directors were to approve the payments, the tration has been developing a programme of trans- Company would be forced to use accumulated cash re- planting live trochus onto all the reefs where trochus serves to meet them. While the Mission feels that the can grow and thrive, and trochus sanctuaries have re- circumstances in this case were rather unusual, it be- cently been established in several Districts of the Terri- lieves that it demonstrates the need for more conserva- tory. A great deal of time has also been devoted to tive policies to be adopted by the trading companies. teaching Micronesians the ecology of trochus and meth- Since these companies provide the main opportunities ods of transplanting live shells from one reef to an- for the investment of local indigenous capital and may other. Nevertheless, it should be noted that the button from time to time be called upon to finance local eco- industry, which is a major user of trochus, has made nomic development, the Mission believes it would be steady progress in improving plastic materials, the use advisable for the companies, in co-operation with local of which has resulted in a drop of demand for trochus. government bodies and members of the Administration, The long-range prospects for trochus shells on the to persuade the people to accept lower dividend rates world market are therefore a matter of conjecture. The on their investments in the interests of conserving funds Administration pointed out that, while there would still for long-range economic expansion and development. be a small demand for trochus in the manufacture of 140. The Mission feels that one area where local ornamental jewellery, the button industry, which in the trading companies might play an increasing role in past has purchased the major portion of the production, stimulating local industry and at the same time help would ultimately decide the fate of the trochus industry. to reduce the prevailing unfavourable balance of trade 142. The Mission received a number of requests for of the Territory is that of ready-made clothing. During the establishment of banking facilities within the Terri- 1957, the Territory's importation of textiles accounted tory. During 1957, the Bank of America made a survey for nearly 10 per cent of the total amount of all im- of banking possibilities within the Territory at the ported goods, with $317,000 coming from the United request of the High Commissioner. On the basis of the States, $102,000 from Japan and $10,000 from all other report made on this survey the Administration did not areas. In reply to the Mission's inquiry whether ex- believe, in view of the limited resources of the area penditures on importation of textiles could not be re- and the lack of liquid capital, that the establishment of duced if similar quality goods were to be purchased in bank branches was feasible. At present, most banking 23 in the Territory is done by mail through the Guam mitted to it, it has urged the peopl: ~o submi~ all cer- branch of the Bank of America. Even if a bank branch tificates as soon as possible. The Misswn was mformed were to be established at any one of the District centres, that 1,461 claims involving a total of $2,332 had been the major portion of banking. vyould. still require t~e settled and that in nearly all cases very small sums, use of the mails, and the Admmistratwn feels that this few exceeding $50, had been involved. can be better accomplished through continuing present 144. A matter which continues to be of deep conc.ern practices which are m?r~ economical. The High Com- to the people of the Territory is the q.~estion of claims missioner told the Misswn that the present problem against the Japanese Government ansmg fron: losses is essentially one of providing safekeeping facilities. they had suffered in lives and property du~mg !he Banking needs are partially satisfied through the post Second World War. During its visit, the Misswn, ltke offices where people can buy money orders for trans- its predecessors received numerous requests from the fer of 'cash, and partially through the District adminis- people for the ~arly settlement of damages which had trations. The trading companies could possibly set up been inflicted on them (see annex IV, sect. (a), reso- a savings system, but the High Commissioner had some lution 3). The Mission wishes to recall that. the 1956 misgivings on that account. The people had ample op- Visiting Mission had already noted that this matter portunity to purchase shar~s in these trading compani~s was of deep concern to the people, who were reluctant with excess funds on which they could expect a fair to accept further delays of the settlef!Ient of t~eir .claims interest return. At any rate the Administration was or to renounce them outright, particularly m view of ready to continue to assist the inhabitants in m~k~ng the fact that during the past decade no clear indica- bank deposits at Guam and elsewhere. The Misswn tion had been given them that their cla_ims wo~tld not w~ich i~ ~f appreciates the difficulties stand the way be met.10 The Mission felt that these claims, whtch had developing an adequate bankmg system m the Tern- been pending for a long period, warr~~ted urgent con- tory, but it would suggest that further consideration sideration by the competent authonttes. It also re- should be given to improving banking facilities for the called that before the Territory had been placed under inhabitants of the outlying islands who, by reason of the Trust;eship System, the people of Micronesia had their remoteness from the District centres, are in need been administered under Japanese Mandate and ~ad of better and more frequent banking facilities than are been guaranteed protection of their welfare by the n~­ now available to them. ternational community. The claims arise out of condi- tions over which they had no control and as a. result JAPANESE POSTAL SAVINGS AND BONDS; of which they had suffered considerable hardship, a~d WAR DAMAGE CLAIMS the status of their Territory under the Trusteeship 143. The Mission was gratified to learn that the System did not enable them to negotiate on their own behalf any claims arising out of the war. For these question of claims for t?e redemption of Ja~anese postal savings and bonds, which had been the subJect of many reasons the 1956 Mission felt strongly that every effort complaints in the past, is now in the final stages of should be made by the Administering Authority to settlement. It wiil be recalled that, in 1957, funds for reach a settlement of this problem at the earliest po~­ this purpose had been .set. aside b:y .the Administeri_ng sible moment. The present Mission noted that this Authority and the Distnct admimstrators were m- question remained unresolved, and was informed. by t~e structed t~ request the people to submit to them all High Commissioner that this matter was outside his securities for settlement. As of 31 December 1958, competence to resolve. In view of the continue1 concern it was estimated that 95 per cent of all outstanding over this question by the people of the .Terntory, t.he claims had been paid, at the rate of 360 yen to $1. It Mission strongly urges the Administermg Aut~wrt!Y was anticipated that by 30 June 1959 the remaining to take a prompt and definite decision on its poh~y m claims, totalling approximately $250, will have been this matter and inform the people of the Terntory redeemed. Although the Administration has not set a accordingly. time limit within which claims would have to be sub- 10 Ibid., para. 324.

CHAPTER IV SOCIAL ADVANCEMENT

MEDICAL AND HEALTH SERVICES 146. A hospital rebuilding programme, begun nearly four years ago, is so designed as eventually to .r~place 145. Aside from nine well-equipped hospitals, vary- all the existing quonset-type structures ongmally ing in size from 10 to 169 beds, which serve the seven erected by the United States Navy shortly after ~he Districts of the Territory, the Administration also war. At Rota, Yap and Ponape, hospital reconstructiOn maintains approximately 125 dispensaries on the outer has been completed, and at Truk and Palau the con- islands of which a few have facilities for the care of struction of additional buildings is under way. In the two or three in-patients. The Department of Public Marshall Islands, the badly needed replacement of ex- Health is responsible for the administration of these isting District hospital facilities has been held up for installations as well as for the supervision of all public lack of funds, and the Mission hopes that such fun~s health and sanitation activities and the training of medi- can be made available in the very near future. Until cal, dental, sanitation and nursing staff. ~uring the recently, a medical field-trip ship, the Frela, provided fiscal year 1959, over $730,000, representmg 10 per year-round services in the Marshall Islands District, cent of the total budget of the Territory, was expended but, owing to its poor condition, it became necessary on public health activities. to withdraw it from service. The Mission was told that 24 the ship could not be reconditioned and that conse- with BCG vaccine, while positive cases. must undergo quently it had been put up for sale. extensive treatment at the District hospitals. Once the disease has been arrested, patients are released ~rOJ? 147. The medical services of the Territory are super- the hospital to return home, but mt;st have perw.dic P~blic vised by an American Director of Health and follow-up checks of their health. Smce ~h~ housmg p~ragraph his American deputy. As was stated m 68, habits of Micronesians facilitate the transmisswn of t~e except for Saipan and Yap, where At;Jen~an doct~rs disease constant efforts are being made by the pubhc are in charge of the public health services m the Dis- health ~ervices to improve existing conditions through tricts all American doctors in the Rota, Palau, Truk, health education programmes which stress the need Ponape and Marshall Islands Districts .have been re- for greater personal care and provide instructions for placed by Micronesian directors of pubhc health, who the taking of preventive measures as regards not only are accorded the same authority as that granted to tuberculosis but also other communicable diseases. The American medical personnel in the other Districts of past year saw the outbreak. of .a num?er of epidemics the Territory. In addition, one American dental officer in the Truk and Ponape Distncts which have greatly supervises the work of the Micronesian .de?tal pra~ti­ taxed the local medical services and, in some cases, tioners throughout the Territory. The Misswn was m- required the assistance of medical practitioners from formed by the Director of Public Health that he ex- other Districts. Whooping cough and measles outbreaks, pected the repl.acem~nt of the Am~rican doctor at Yap first at Truk and later at Ponape, were soon brought by a Micronesian director of pubhc health toward the under control and inoculations were administered to all middle of 1959, and that the American Director of children in the affected areas. A number of children died Dental Services, whose retirement was expected in the of whooping cough in both Districts, and medical officers very near future, had. recommended that, it;~ view. of informed the Mission that in most of those cases the the high degree of skill demonstrated by Micronesian children could have been saved if the parents had in- dental practitioners, he should be replaced by one of formed the medical authorities in time. their number. 151. The Mission had an opportunity to discuss pub- 148. In addition to providing medical services with- lic health activities with the Director of Public Health, out distinction to all Micronesians as well as to Ameri- who maintains his headquarters at Majuro in the Mar- cans living in the various Districts, the hospitals also shall Islands. He told the Mission that the replacement serve to supervise the work of the medical dispensaries of American doctors by qualified Micronesian medical on outlying islands which are normally staffed by health practitioners had in no way reduced the effectiv~ness aides. Every three months medical and dental teams of the services rendered to the people of the Terntory from the District centres accompany field-trip ships on and that the replacement programme had fully demon- visits to the outer islands. Radio transmitters enable strated the competence of Micronesian personnel. Simi- health aides to call for emergency help from the Dis- lar replacements in the dental and nursing services had trict centres. proved to be equally succ~ssful. To supplem~~t the present staff of fifty-one medical and dental pra.ctltwn~rs 149. The Mission was told that continuous teaching and assistants, six Micronesians were undergomg tram- and training programmes designed to improve the quali- ing at the Central Medical School at Suva, Fiji Islands, ty and competence of health aides in the dispensaries where the former four-year curriculum had recently are conducted at all District hospitals. Training courses been expanded into a five-year course, and during the are held at the hospitals where supplies of clinical next year an additional four would be sent there .for material are readily available, and further instr~ction training. Upon graduation from the Central Medical is given at the three health centres of the Terntory, School, prospective practitioners are required to r~t~rn which normally provide protective as well as curative to the Territory to undergo a two-year period of chmcal care for Micronesians. Such instruction is chiefly a training, at the end of which they must pass a number public health function concerned with tuberculosis con- of written, oral and clinical examinations, given by a trol and follow-up care in tuberculosis cases, home ob- medical board of the Trust Territory, before they can stetrics and the care of new-born babies. Public health receive their licenses as medical practitioners. They and vital statistics, as well as tuberculosis registers, are then sent for an additional year of post-graduate are maintained and analysed by the Department of training to Hawaii, and on their return to the Terri- ,Public Health on the basis of information furnished tory are assigned to positions in the medical service. to it by the various District hospitals. The Department The Director of Public Health stated that it was the also maintains registers on vital statistics and the M~s­ policy of the Administration to assign an increasing sion was informed that, although reports from the Dis- number of Micronesians who had undergone the full tricts did not include actual totals of births and deaths, course of training to the outer islands and to supple- improvements had been made which were aimed at ob- ment their services by trained sanitarians. During 1958, taining completely accurate statistics. Hospital reports thirty-two Micronesians had been sent to Guam for also furnish data for other statistical analyses designed training in sanitation and it was intended to send simi- to enable the Department to compile information re- lar groups to Guam in 1960. garding the effectiveness of medical and dental services. Such analyses are produced every three months and 152. In view of the considerable efforts being made cover all in- and out-patient hospital and dental services. to send additional Micronesians for medical training to Suva, the Mission inquired whether it might not in- 150. Tuberculosis continues to be the most serious stead be possible to send Micronesian students for disease in the Territory. Under a plan initiated in 1956, training as fully qualified medical doctors to medical the Administration has embarked on a programme to schools in the United States or elsewhere. It also desired control and reduce the incidence of tuberculosis. All to know whether it might not be possible to enable persons in the Territory are being examined and tested some of the Micronesian medical practitioners to obtain for the presence of sensitivity to tuberculosis bacteria. full medical degrees through additional training in Individuals showing negative reactions are vaccinated medical schools abroad. The Director of Public Health· 25 told the Mission t~at the financi~l aspect of this problem Pacific Islands Central School, the Mission sees no could be solved With funds which were available from rea~on for the dela~ in selecting a number of 11icro- a _medical scholarship fund especially established for nes~ans for full medical studies abroad. this ~urp~s~. ~he Admi~istration had asked a number of ~mvemties .m the Umted States, the Philippines and 154. The Director of Public Health also informed India to permit a select number of medical practition- the Mission that plans had been prepared calling for ers to c~mp!ete. their studies, but unfortunately, none ten small field hospitals to be built on outer islands of th.ese mstttutwns was prepared to lower its entrance throughout the Territory. The hospitals are designed reqmremen~s to ac~ommodate the candidates. To quali- to provide the same medical service as that given at f:y for admittance mto medical school for the standard the District centres. The advantage of the field hospi- eight- to twelve~year study period leading to a medical tals lies in the fact that patients from outer islands will de_gree, t~e c<~:ndi?ates :vould. first nee? to make up cer- have easier access to hospital facilities, that consider- tam _deficienCies _m their basic educatiOn. This was not able savings will be made by reducing transportation considered practical by the Administration in view of costs, and that the present pressure on the District t?e average ag~ of the already certified medical practi- hospitals will be relieved. The Director of Public Health twners. ~he DI~ector stated, however, that one or two also requested three new medical ships to be placed in young Micronesians were prospective candidates for an service in the Marshall Islands, Truk and Yap Dis- award of a medical scholarship, but he pointed out that tricts which would augment existing facilities, and he g_reat care had to be exercised in selecting a student was confident that funds would be made available for smce he _was expected to spend twelve years away from both these projects. The Mission noted that there was the Terntory; there was always a danger that he might need for expanding the medical facilities on the outer not return upon th~ completion of his training. Another islands, which had to rely largely on the services pro- factor _to b~ taken mto account was the fact that higher vided by the District centres. To ensure the regularity of ed~cabon m the Territory had only recently been such services, adequate transportation facilities were rais~d. to meet t~e stan~ards required by leading uni- essential. The Mission heard a number of complaints yersiti~s for studi~s leadmg to a medical degree. Thus, that medical field-trip visits to the outer islands had m earlier years, _It had n_ot been possible to consider been delayed for lack of adequate funds for transporta- students for medical studies at a medical school other tion, particularly during the past year. While the Mis- tha~ the Central Medical School at Suva which was sion appreciates the problems occasioned by last year's desi~ned to meet the immediate medical ~eeds of the typhoons and the resulting strain on all the services of Pacific area. It was unfortunate that the Central Medi- the Territory, it feels, nevertheless, that the implemen- ca! Sc~ool could not provide full medical degrees at tation of the present plans, particularly the provision of !his pomt, but he hoped that the time would come when three medical field-trip ships, would lessen the depend- 1t co~ld meet this requirement. In the meantime the ence of the outer-islanders on regular transportation ~~rntory would have to rely on the services of its prac- and other services at the District centres and assure titioners, w~o were fully equipped and competent to them of adequate medical attention. The Mission hopes, perform their tasks. therefore, that the Administration will make every ef- 153. The Mission fully appreciates the reasons which fort to give early effect to its present plans. have pr_?mpted t~e. Administration to train Micronesians 155. The Mission also discussed with the Director as medical practitiOners who are now doing commend- of Public Health a problem which had been brought ab~e ;vork th~oughout the Territory. Nevertheless, the to its attention by a number of Micronesians. All medi- ~Isswn re:eived several requests from Micronesians cal and dental services are provided at a nominal fee, m the Terntory that ~merican or other fully qualified but inability to pay does not prevent anyone from ob- doct?rs shol!ld be _assigned to the Districts until fully taining the necessary care. The Mission received sev- quah?ed Micronesmn doctors could take their place. eral complaints charging that medical and dental fees I~ view of the fact that at the end of 1959 only the were too high or had been collected from people who Dire~tor and Deputy Director of Public Health will had claimed financial hardship. In one case, the clerk remam as fully qualified doctors in the Territory and of a municipality in Ponape was accused of having read tha~ they are e:cp~cted to exercise essentially supervisory out at a public ceremony a list of individuals who had duti_e~, the Mis.swn feels that the assistance of several defaulted in their payments, causing considerable em- add_Itlonal qt;ahfied physicians might still be required barrassment to the persons concerned. According to s~ch until time as fully trained Micronesian doctors the information given to the Mission, medical and dental ea?. reheye them of their responsibilities. As the Ad- mmistratwn has found it difficult to recruit suitable .fees vary somewhat from District to District and are doctors from the United States or abroad, the Mission determined on the basis of income. Local officials ~ould suggest. ~h.at the Ad~~nistering Authority con- usually decide whether an exemption should be granted. sider the possibility of obtammg the services of a few In no circumstances are officials empowered to make doctors from the Medical Corps of the United States public announcements on this subject. The Mission NavJ: to augment the present medical services of the was told that the nominal fees charged for medical and Terntory through periodic visits to the various Dis- dental services were not intended to provide a major tricts. In this connexion, the Mission wishes to point source of revenue, but were rather an educational out that there are examples in many parts of the world measure, designed to reduce the abuse of medical where students, under conditions not dissimilar to those facilities and to create a sense of responsibility among prevailin% in the Trust Territory, have been sent for the people. However, the Mission believes that, unless full medical studies to universities abroad. In view of existing fees and methods of collecting them are stand- the fact th.at. the present training at Suva and the subse- ardized, they are likely to have little, if any, educational quent ~rammg extended to Micronesians requires at value. It suggests therefore that the Administration least eight years of study and practical training and might consider abolishing medical and dental fees unless that adequate preparation is now provided by the a more equitable system can be put into effect. 26 156. The Mission was greatly impressed by the at- dates for nurses' training are rapidly being overcome tention devoted to the improvement of the sanitation as a greater number of pupils are graduated from the services. The Department of Sanitation, a division of Pacific Islands Central School with the equivalent of the Department of Public Health, is directed by an a full high school education. In 1958, a Palauan nurse American sanitation officer who is stationed at Truk. was appointed Dean of the Nursing School and two All Districts are headed by Micronesian District sani- other Palauan nurses, who had received graduate train- tarians, who are graduates of the Pacific Islands Cen- ing in Hawaii, have been added to the staff as nurse- tral School and most of whom have had advanced training specialists. The school at present provides a training in sanitary science abroad. The Department basic nurses' training course lasting approximately maintains an in-service training programme and its twenty months, following which nurses are assigned to field work is directed to encourage Micronesians to District hospitals for further training and, if qualified, accept modern methods of disease prevention through may later be sent to Hawaii for graduate training. sanitation. The Mission was informed that the Depart- ment had placed major emphasis on educational ap- ENTRY OF }APANESE NATIONALS proaches to improving health conditions rather than relying on police power. To test educational techniques 158. During its visit to the Palau District the Mis- in improving sanitation on the outer islands a pilot sion received a request from the people of Peleliu that project was first established in 1958 on the island of permission should be granted to a Palauan woman who Puluwat in the Truk District, which subsequently be- had married a Japanese and was now living with him came a model for similar projects elsewhere. The Mis- and their seven children in Japan to return to Palau. sion visited one of the villages where work designed to The Mission was told that the request for her return improve environmental sanitation had recently been was made through the District Administrator of Palau started. The Mission was told that, over a period of to the High Commissioner. The request had been turned several months, numerous visits of several days' dura- down on the grounds that Japanese nationals were not tion had been made to the village by members of a permitted to immigrate into the Trust Territory, but health team. Through lectures, visual aids and demon- it had been suggested that the persons in question might stration, instruction was given to the villagers in per- be permitted to visit the Territory for a limited period sonal hygiene, methods of construction and use of sani- during which they could apply for Trust Territory tary facilities. Subsequently, they improved and pro- citizenship. The people of Peleliu were prepared to tected their water wells with locally available materials pay for the woman's fare to the Territory, as she had and constructed garbage disposal pits, bath houses and no funds of her own, but for their part they wished to other sanitary facilities. The results of the village health be assured that she could obtain permanent residence programme were quite apparent. The village was clean as they were unable to spend the money merely for a and presentable and villagers pointed with pride to their visit. They stated that a number of similar cases were accomplishment. The Mission was told that adjacent also pending. villages had followed the example set by the first. Simi- 159. It will be recalled that previous Missions had lar projects are now being carried out in other Districts received similar requests for the return of Japanese of the Territory. nationals to the Territory and that under existing pro- 157. The Mission was also impressed by the work cedures requests of this nature were being forwarded done at the Trust Territory School of Nursing at Koror by District Administrators to the Government for se- in the Palau District. The school, which is located in a curity clearance. During the early years of the present modern, well-equipped building, has at present four full- Administration, negative decisions had been given and time instructors and medical practitioners and the phar- no permits had been granted. During recent years, how- macologist from the Palau hospital provides part-time ever, several requests had been considered and in some instruction. The school has at present a total of eighteen cases permission had in fact been granted for the return student nurses from Palau, Yap, Truk and Ponape, of the persons in question. In the present case, the four of whom are expected to be graduated next year. Mission suggested to the people of Peleliu that they The Mission was told that, since the inception of the should again discuss the details concerning the woman's school in 1953, it has graduated thirty nurses, of whom return with the District Administrator of Palau, who twenty-one were also graduates of the Pacific Islands stated that he was prepared to give the matter further Central School. Past difficulties in finding suitable candi- attention.

CHAPTER V EDUCATIONAL ADVANCEMENT

GENERAL making skills; (d) to stimulate people's self-expression 160. The educational system of the Territory is de- in their indigenous arts and crafts; (e) to promote bet- scribed at length in the annual reports of the Adminis- ter health education through personal and community tering Authority and the Mission intends to note only hygiene; (f) to impart more knowledge and better un- the more general aspects of education in the Territory. derstanding of the physical environment and natural The main objectives of the educational policy of the processes (science, geography) and of the human en- Administration are: (a) to develop skill in reading, vironment (economic and social organization, law and writing, speaking, listening, discussing and calculating; government); (g) to impart knowledge about other (b) to develop the vocational skills necessary for the areas of the world and the people who live in them; economic progress of the people; (c) to improve home- (h) to develop qualities to fit the people to live in the 27 modern world (civic responsibility, understanding of be faced by the Department of Education. Since there human rights, respect of other people's views, personal were no professional agencies which produced such integrity, the meaning and exercise of freedom and its materials for the Territory, it was necessary to develop, relation to the general welfare, etc.) ; and ( i) to develop produce and print such materials locally. The Adminis- spiritual values and ethical ideals by promoting under- tration pointed out that, despite budget limitations and standing between peoples, by the development of a sense lack of adequate equipment, progress had been made of social responsibility and individual self-discipline, and during the past year in supplying the ever-increasing by encouraging respect for the good features of the tra- needs of the educational systems of the various Dis- ditional beliefs and customs of the people. tricts. The Mission agrees with its predecessor that 161. To promote these aims, the Administration has finding a happy mean between flexibility and standard- recognized the necessity of rooting the school system ization in applying any educational policy is perhaps in the community where it could respond adequately one of the most difficult tasks confronting the educator, to the needs of the people. But, owing to considerations but it is one which, when achieved at the elementary of. dive:sity of cultural and linguistic backgrounds, vari- level, facilitates the development of sound secondary atiOns m degrees of advancement of the people and dif- education. To achieve this objective the educator must ferences of standards of the Micronesian teaching staff also depend on the Administration's supplying adequate t?e Administration was required to delegate a substan~ funds. The Mission considers that the conspicuous ab- tral degree of autonomy to the District Directors of sence of standardized texts at the levels of elementary ~ducation in the. implementation of its educational poli- and secondary education and an inadequacy of funds Cles. I~ d~velopmg the educational system in accord- to develop and produce them are in some measure re- ance wtth tts stated principles, the Administration was sponsible for the lack of uniformity in the achievement faced with two chief problems. One of these was the of knowledge of the students in the different Districts, need for developing among the peoples of the Terri- concerning which it heard numerous comments both tory a sense of responsibility for education which the at the Pacific Islands Central School and in Hawaii. previous Administration had failed to impart to them. 164. The need for achieving uniformity is also ap- The second, and equally important, problem was that parent in other phases of the educational system. .As of training as rapidly as possible Micronesian teachers the municipalities have full responsibility for paymg who could staff the schools of the Territory. the salaries of elementary school teachers, it has been found that teachers' salaries tend to vary from District 16~. There is evi<;fence that the first of these prob- lems ts gradually bemg overcome. Local municipalities to District, and even within the Districts themselves, which are responsible for the maintenance of elemen- depending on the financial circumstances of local gov- tary schools and for paying the salaries of local school ernments. The Mission was informed that in Ponape, teachers have taken increasing initiative for building for example, teachers' salaries were lower than com- new schools, for raising teachers' salaries and for de- parable Trust Territory positions and that the payment manding higher standards of teacher training. The of salaries was very sporadic; in some of t?e other Districts minimum salaries had been estabhshed by Mission noted that many new elementary schools had District congresses. The Mission drew the attention of recently been built by local communities with the assist- the Administration to the fact that the previous 1\Iis- ance of funds provided by the Administration under its sion and the Trusteeship Council had cautioned against grant-in-aid programme for matching local expendi- placing too great a strain on the financial capacities of tures. The Mission was told that in a number of cases the municipalities. It was informed that the Adminis- particularly in Yap and Peleliu, municipalities had ac~ tration had given consideration to these suggestions tually begun the buildir:g of new schools without prior but, with the exception of grants-in-aid for new elemen- requests for .f~nds, .whtch subsequent!~ were supplied tary-school buildings, subsidies and assistance to mu- by the Admtmstratwn when the mumcipalities asked nicipalities for the maintenance and operation of ele- for them. Everywhere it went, the Mission received mentary schools had not been increased. The Adminis- · requests for better trained teachers, more scholarships tration felt that the payment of teachers' salaries by and more education in every field. Such demands came the municipalities and the furnishing of supervision not only from the younger people of the community and supplies to elementary schools by the Administra- but also from ?lder persons, w~~ stated that they tion was a fair division of the costs for elementary regarded education as a prereqmstte to the ultimate education and that Micronesian communities should improvement of the community. assume as much of the cost of education as they could 163. To operate all phases of its educational pro- afford. The Administration also stated that it had gramme, the Administration spent a total of $596,000 found little evidence that too great a strain had been in 1958, a sum which the Mission found to be too placed on the financial resources of local governments modest to meet the needs of the educational establish- to support their schools. Whenever such evidence was ment. District Directors of Education everywhere re- found, as in the case of typhoon-devastated areas, the peatedly told the Mission that present programmes Trust Territory Administration had loaned local gov- suffered from an inadequacy of funds and that improvi- ernments funds with which to pay teachers' salaries. sation was needed to meet the most urgent local re- The Mission appreciates the considerations which have quirements. Replacement of secondary school build- prompted the Administration to associate the local ings in whole or in part is urgently required in Palau, communities in the operation of their schools and to Truk, Ponape and the Marshall Islands, where exist- delegate to them increasing financial responsibilities ing structures were found by the Mission to be in an for their maintenance. But the Mission found sufficient advanced state of disrepair. Similarly, the Mission noted evidence to indicate that the ability of many communi- that curriculum materials were largely produced at the ties to meet their financial obligations might be ex- District level. It was informed that work on curriculum cessively strained at the present stage of their eco- development and the production of curriculum mate- nomic development and might require, until they are rials were some of the greatest problems that had to fully capable of providing them, additional funds from 28 the Administration if the desired standards of uni- Such deficiencies have, in turn, contributed in some formity are to be achieved. The Mission also considers measure to the prevailing lower standards of achieve- that the Administration should provide a larger measure ment among students on outer islands, where the Mis- of financial support to the educational system as a sion heard a number of complaints that lack of ade- whole in order to enable it to make the much needed quate preparation prevented students from qualifying improvements in school buildings and their equipment for intermediate education at the District centres. These and to achieve greater uniformity in educational stand- views were also shared by a number of American ards throughout the Territory. teachers at the District centres. The result is that outer- 165. The problem of training more and better quali- islanders, not having received their fair share of edu- fied teachers has received considerable attention during cation, cannot compete on equal terms with pupils at the past few years. The Administration informed the the District centres. Yet the Mission was told that Mission that each District had spent much time and outer-islanders were just as capable of absorbing edu- effort in training Micronesian teachers for elementary cation, developing their local organs of self-govern- and intermediate schools, but they were still hampered ment and initiating programmes for self help, as any by problems of transportation, budget, lack of person- other people in the Territory. A contributing problem nel, books and instructional aids and physical plant is lack of adequate financial support for the mainte- facilities. During 1958, each District offered similar nance of local educational establishments, except in courses, lasting from six weeks to six months, for the token form. The fact that the Administration has con- training of teachers in subject matters and teaching stantly stressed the need for rooting the educational techniques. During each of these sessions, new curricu- system in the community leads the Mission to conclude lum material was developed through the joint efforts that the outer-island communities will require greater of the student teachers and the American teacher train- material and supervisory assistance from the Adminis- ers. In the Marshall Islands all elementary school teach- tration than they now receive if young Micronesians ers in the district were brought to Majuro for a six- are to receive the preparation and training which will month intensive teacher's training session. Formal enable them to compete on equal terms with other classes were held in language, arts, science, arithmetic, students of the Territory for any educational opportuni- principles of education and social studies. At the end ties that may be open to them. of these sessions, at least four weeks of practice teach- 167. The best hope for removing the apparent lack ing was given in three different areas of the Marshall of uniformity in academic standards of achievement Islands under the direction of an American teacher is offered by the Pacific Islands Central School, the trainer. In Truk, a special teacher training session de- only public school to provide full secondary education signed to improve skills of elementary school teachers in the Territory. It is here that the greatest emphasis was conducted at a model school where they received has been placed on preparing more and better qualified instruction in various subjects and participated in prac- Micronesians to participate in the development of their tice sessions. The Administration feels that owing to communities and of the Territory as a whole. For the the lack of American personnel and to budget limita- past three years, students with superior qualifications, tions, which makes the training of teachers a very slow together with a small number of graduates of earlier process, a partial answer lies in the hiring of qualified years, have been given a third year of post-graduate Micronesians as teacher trainers. During 1958, the first studies. During the present year no graduation pro- Micronesian received a full college degree and returned gramme was planned, as all successful second-year to Palau, where he was immediately employed in train- students continued for a third year, which has since ing elementary school teachers and was placed in charge been added as a regular part of the school's programme. of developing a model school as Koror to aid the ele- Henceforth, all students, upon graduation, will have mentary teaching programme. As more Micronesians completed a twelve-year course of education, and the can qualify for such positions, teacher training will in- Administration hopes that the Pacific Islands Central crease at a much quicker pace. The Mission was also School will obtain full accreditation as a high school told that American teacher trainers together with comparable to similar schools in the United States. In Micronesian assistants have spent considerable time that event, Micronesian students will be able to enter during the past year visiting and working with elemen- American universities on equal terms with American tary school teachers in outlying communities away from high school students. It is also planned to transfer the the District centres. The Administration feels that, al- Pacific Islands Central School to Ponape during the though this programme is expensive and can reach only middle of 1959. The Mission had an opportunity to a limited number of teachers, it is well worth the ex- visit the new site of the school and was greatly im- pense since it is designed to reinforce the field efforts. pressed by the spacious new buildings, dormitories and 166. To exercise greater supervision over outer other facilities. The buildings, which are of cement con- island elementary education, the Department of Educa- struction, were nearly completed and it remained only tion has sent American teachers more frequently and to complete minor installations and landscaping work. for longer periods of time than in the past to outer The Mission was told that the move to the new plant islands to assist local schools. These efforts, the Mission would also permit the students to operate their own feels, should be accelerated. During its own visits to school kitchen and dining room under the supervision some of the outer island communities it found that the of staff members and to operate their own school store standard of local elementary school teachers did not which, it was hoped, could be organized on a co-opera- appear to be fully adequate to the task. Frequently tive basis, thus giving the students experience in the they lacked sufficient knowledge of the English lan- principles and practice of co-operative enterprise. guage, in which they were expected to instruct students 168. During a meeting with the students of the beginning with the fourth year of elementary educa- Pacific Islands Central School at Truk, the Mission tion. It also noted that the standards of Micronesian received a petition (see annex IV, sect. ( b)) asking for teachers in the schools at the District centres were the extension of the present two-year scholarships, generally higher than those of the outer-island teachers. which are granted to Micronesian students for studies 29 outside the Trust Territory, to a four-year course which the Trust Territory Government, but at the time of the would enable qualified Micronesians to obtain a full Mission's visit, it was still too early to assess the re- university degree. They also requested that the number sults of the experiment. The Mission was also told of scholarships should be increased. A similar petition that the Advisory Committee had made a number of (see annex IV, sect. (a), resolution 2) was submitted to other recommendations, including the establishment of the Mission by the Saipan Congress, and other requests minimum requirements which Micronesian students to that effect were made to it by many persons in the would have to meet before they could enter the accel~r­ Territory and by Micronesian students at the Univer- ated teacher training programme; student selectiOn sity of Hawaii. based not only on academic performance, but als<;> on 169. At present, a total of 235 students from all the student's maturity, facility in English and ad]~St­ parts of the Trust Territory are studying outside the ment to basic culture· the use of written evaluatiOnS Territory under scholarships provided by the Trust of the student's perfor~ance to be taken into considera- Territory Government, the District administration, tion together with the examination grades; ar:d pro- trading companies and other agencies within or out- vision for six-week orientation courses to be glVen to side the Territory. During 1958, eighteen students were all new students coming to Hawaii. awarded scholarships and in addition scholarships lead- ing to a full degree were granted to four additional 173. Although they recognized that the Tru~t. Terri- Micronesians during that year. As the number of quali- tory Government had given them opportumtres_ for fied Micronesian graduates from the Pacific Islands study which were far beyond the means of most 1vhcro- Central School increases, the Administration expects nesians to support, several of the students f~lt that. the to be able to extend the length of scholarships, which present two-year programme of stu~y w.as msufficu:nt will enable Micronesians to obtain full university de- to their needs. They suggested that tt mt?"ht ~e advis- grees abroad. able to decrease the number of scholarshtps, tf neces- sary, but to increase the period ?f study to. fou~ years 170. While in Honolulu, the Mission had an oppor- in order to enable them to recetve full umversrty de- tunity to meet not only the sixty-three Micronesians grees. The Mission feels that this suggestion has cer- enrolled in the University of Hawaii under scholarships tain merits, particularly as the time h.as now come when granted by the Trust Territory Government and two Micronesian graduates. from the Pac.tfic I.slands Central students who attended the University under fellow- School will have received the qualificatiOns ~ec~ssa~y ships granted by the United Nations Technical Assist- for entrance into universities abroad. The MissiOn IS ance Administration, but also their student counsellor confident that the Administration is alive to this ques- and members of the Advisory Committee on the tion and will make every effort to ~ake ~he necessary Hawaii Training Programme. improvements in the light of changmg circumstances. 171. The Mission was informed that, since the 174. The Mission also found two aspects of education Hawaii Training Programme was a remote and de- which it considers require urgent att~ntion. One ?f these tached segment of the Administration of the Trust is the need for the improved teachmg of E~~hsh, the Territory, its sole representative being the student other the need for accelerated vocational trammg. The counsellor, an advisory committee, composed of mem- Mission has already noted that many of the teachers, bers of the faculty of the University and of community who were expected to teach English at the elem~ntary representatives was established in 1957, to assist in school level, were poorly equipped to do so. Thrs ?e- the development of administrative policy for the pro- ficiency has had serious effects O? students entenng gramme. The Advisory Committee, which was formed intermediate schools and the Pacific Islands Cen~ral with the approval of the Trust Territory's Director of School where additional efforts must be made to bnng Education, is headed by the Dean of the College of their knowledge of English up to the required stand- Education of the University of Hawaii. Many of its ards. It has been found, as was shown in the ~ase of members have intimate acquaintance with the Terri- Micronesian students attending the University of tory and its problems. The Committee meets on call Hawaii that even further instruction is frequently re- by its Chairman, usually three or four times during a quired to enable students to participate fully in school school year. programmes abroad. The Administration was aware of 172. The Mission was told that a fundamental prob- this problem, but pointed out that the clat_nour for m~re lem in training Micronesian students in Hawaii was and better English instruction was so voc~ferous that Its that of fitting them into American schools, which were importance to the majority of Micronesmns had often not designed to serve their specific needs. These stu- been thrown out of perspective in relation to other sub- dents, coming from a very different cultural background jects. In 1958, with a view to meeting the deman_ds and inadequately prepared for higher education, were made upon it, the Administration adopt~d. the Fnes required to work exclusively in English, a language technique and used texts which had ongmallJ: been which was essentially foreign to them. These difficul- developed for use in Puerto Rico for the teachmg of ties could only be overcome in time. It was also pointed English as a second language. The system was f<;>Und out that Micronesian cultures were oral cultures and to be most satisfactory. All Districts of the T~r.ntory that the lack of extensive reading habits was a consid- have now adopted the Fries method for the trammg of erable handicap to Micronesian students. It would be teachers. In 1959, the method was also introduced in years before students were able to read the numerous all intermediate schools of the Territory and in the fifth and varied books which formed the normal background and sixth a-rades of the elementary schools in Palau and of American students. Lack of reading skills had also the Marshall Islands. The results achieved to date hampered the Micronesian students in their progress. through the use of the Fries texts and techniqu~s have One of the programmes which had been promoted by been so encouraging that the Administration mten~s the Advisory Committee called for an experimental to utilize them in all elementary schools of the Te;n- course devoted to speed reading. This course was be- tory. The Mission welcomes these developments whtch, gun in 1958 with the approval of and a subsidy from it hopes, will help remove existing deficiencies. 30 175. As regards vocational training, the Mission was formed by the religious missions-Catholic and Protes- told that a special commission had been appointed in tant alike-in the field of primary and secondary edu- 1958 to study the educational programme at the Pacific cation. Islands Central School, with special emphasis on the DISSEMINATION OF INFORMATION vocational aspects of its programme. The Commission, ON THE UNITED NATIONS which made its report to the High Commissioner in September 1958, was generally agreed that during the 178. The Mission was greatly impressed by the ef- first year a modest but firm start should be made toward forts made by the Administration to disseminate in- strengthening the vocational aspects of the school's formation on the United Nations. The Mission noted curriculum. Vocational subjects should be designed to that booklets and posters describing the purposes and reach as many students as possible during the first year, functions of the United Nations and its specialized but vocational education should not be made mandatory agencies were widely distributed in the schools and before the second year. The Commission was of the public buildings of the Trust Territory and that teach- opinion that the vocational subjects to be offered dur- ing about the United Nations forms a regular part of ing the first year should include business education, the curriculum of the educational system of the Terri- agriculture, home nursing, carpentry, motor mechanics tory. The flag of the United Nations is flown through- and electricity. These courses in vocational training out the year from all public buildings in every Dis- should be added to the present curriculum without trict, and United Nations Day is one of the two public eliminating any part of the curriculum at present of- holidays observed in the Territory. The Mission was fered at the Pacific Islands Central School. told that the observance of United Nations Day in 1958 was marked by even greater celebrations than in pre- 176. Some vocational training continues to be pro- vious years. In all Districts plans and preparations for vided through work shops at the intermediate school the celebrations were largely in the hands of the Micro- level, particular emphasis being placed on agriculture nesians, with financial and other material assistance and carpentry, and some in-service training is provided provided by the Administration. The Mission saw sev- in such fields as communications, agriculture, meteor- eral films of the celebrations held in Palau showing ology, business and government. In view of the many parades- of children wearing the costumes of various requests it received from Micronesians and the increas- nations and carrying the flags of all the Member States ing needs of the Territory for better-trained personnel, of the United Nations, flag-raising ceremonies and the Mission feels that the Administration should give speeches. Athletic events marked the observance of the ur_gent consideration to increasing the vocational train- day by the people of Koror, and large numbers of ing facilities throughout the Territory. In particular, it school children had been brought to Koror from out- recommends that consideration should be given to the lying islands. The Mission was told that United Nations establishment of an agricultural school in the Terri- Day celebrations had not only become increasingly tory, possibly at Ponape, as part of the new Pacific popular, but were accompanied by a spirit of competi- Islands Central School. This School is located in the tion among the Districts, which endeavoured to surpass immediate vicinity of a large agricultural station and each other in their efforts. At meetings held through- could serve as a convenient training area for its stu- out the Territory, the Mission encountered great in- dents. It also suggests that the Administration should terest in the activities of the United Nations and on make every effort to recruit qualified personnel from more than ·one occasion was asked questions concern- abroad to train Micronesians in specialized skills. ing the significance of various phases of its work. The 177. The Mission feels that any review of the edu- Mission feels that the Administering Authority is to cational conditions in the Territory would not be com- be commended for its efforts in the dissemination of in- plete without a mention of the commendable work per- formation on the United Nations.

ANNEXES ANNEX I Summary of the four-year survey concerning the condition of the Rongelap people·conducted by the Medical aud Scientific Team of the United States Atomic Energy Commission 1. The medical survey of the Rongelap people in March 1958, the exposed women, [a finding] based on comparative studies four years after their exposure to accidental fall-out radiation, of the levels of peripheral blood elements. The suggestive inci- was carried out at Rongelap Island, to which these people had dence, previously reported, of slight Jag in growth and develop- been returned in July 1957 after the radiation level of the ment of the irradiated children at two and three years after' island was declared safe for habitation. They were adjusting exposure, based on height, weight, and bone age studies, needs satisfactorily to life in their newly reconstructed village. re-evaluation in the light of the finding that the ages of some 2. No apparent acute or subacute effects were found at this of the children were not as firmly established as previously time related to the gamma dose of 175 roentgens received, thought. History and physical examinations revealed no clini- with the possible exception of haemopoietic findings indicating cal evidence of any illnesses or findings during the past year a persisting lag in complete recovery of platelet levels of the or at the ·time of the present survey which could be related peripheral blood. In the males these mean levels were 11 to to whole-body exposure. Two deaths occurred in the exposed 16 per cent, and in the females 9 per cent, below the correspond- and one in the unexposed group since the last survey. The ing mean levels of .the comparison population. The lympho- deaths in the exposed group did not appear -to be related to cytes had recovered to a level about the same as in the latter radiation exposure. Diseases, infectious and non-infectious, group. The stn~ss of child-bearing and menstruation did not were as common in the exposed as in the unexposed people .. appear to be reflected in

ANNEX II Charter of the Yap Islands Congress

PREAMBLE after, elections will be held at two-year intervals to elect suc- Whereas the people of Yap, Western Caroline Islands, cessors to the congressmen from the respective municipalities through their duly elected representatives, have expressed their whose terms of office are due to expire. desire for greater representation in the government of their Section 2. Any vacancy in the membership of Congress shall islands in accordance with the principles proclaimed in the be filled by election held in the municipality concerned to elect Trusteeship Council and under the laws of the Trust Territory a congressman to serve the unexpired portion of the term of of the Pacific Islands, and office vacant, provided that, if less than three months of such Whereas their elected and entrusted representatives have met term remain unexpired, Congress may determine that the together to draft a charter for the establishment of an island position shall remain vacant until the next regular election of congress, and congressmen. Whereas we have confidence in the demonstrated ability of ARTICLE III these people to discharge certain responsibilities of govern- Section 1. Any person who is a citizen of the Trust Terri- ment under our laws and the provisions of this charter, tory, not less than twenty-five years of age, resident for not Now therefore, I, Delmas H. Nucker, High Commissioner of less than three years in the municipality in which he or she is the Trust Territory of the Pacific Islands, pursuant to authority nominated, has never been convicted of a felony, has not been vested in me, do hereby charter the people of Yap, Western legally adjudged mentally incompetent, and does not hold office Caroline Islands, to assemble a Congress of their elected repre- in a municipal government at the time of elections, may be sentatives to be known as the YAP IsLANDS CoNGRESS to assist elected a representative to Congress. in the government of their islands in accordance with the laws Section 2. Any congressman who retains the qualifications of the Trust Territory and the provisions of this charter. stated herein may succeed himself in office if duly re-elected ARTICLE I by the electorate of his municipality. Section 3. Any member of Congress may be impeached and Section 1. The legislative powers within Yap, Caroline removed from office by resolution of Congress for cause deter- Islands, herein granted by the High Commissioner of the mined by a hearing before Congress meeting in closed session Trust Territory of the Pacific Islands shall be vested in a at which the impeached and all parties who are witnesses there- unicameral assembly to be known as the Yap Islands Congress. to shall be heard. An affirmative vote of three-fourths of the total membership of Congress shall be required for removal ARTICLE II from office. Section 1. The Yap Islands Congress, hereinafter referred to ARTICLE IV as Congress, shall be composed of two representatives, who shall be known as congressmen, from each municipality on Section 1. Qualifications of electors shall be as Congress Yap, chosen by the electors within each municipality to serve shall establish by law, provided that no person otherwise quali- for a term of four years, except that in the first election of fied shall be denied the right of suffrage because of sex, race, congressmen, to be held within sixty days after granting of or religious creed, and provided that qualifications of electors this Charter, one congressman from each municipality shall be which prevail in the municipalities of Yap at the time of elected for a term of two years and one congressman from each granting this Charter shall prevail in the first election of con- municipality shall be elected for a term of four years. There- gressmen hereunder. 32 ARTICLE V ARTICLE X Section 1. As the first order of business at the first session Section 1. At any regular or special session of Congress, of Congress following regular elections of members, Congress each member shall have one vote on any resolution or repre- shall elect from among its members an officer to serve as sentation introduced. Three-fourths of the membership of Con- President of Congress for a term of two years, provided that, gress shall constitute a quorum at any regular or special at the first session of Congress after granting of this Charter, session. An affirmative vote of two-thirds of the members the District Administrator shall convene the Congress and present at any regular or special session shall be required to preside until the election of a President as the first order of pass a resolution of Congress unless otherwise specified herein. business. Section 2. Congress shall, by a majority vote of its total Section 2. Following the election of President of Congress members, establish its rules of procedure not otherwise speci- in accordance with Section 1, next above, Congress shall elect fied herein. from among its members an officer to serve as Vice-President Section 3. Any member of Congress may introduce a bill. of Congress for a term of two years. Each bill introduced shall be read in its entirety before Con- Section 3. The President shall appoint, and Congress shall gress, and Congress shall determine by a vote of the majority confirm by majority vote of the members present, an officer to of the members present whether to accept it for deliberation serve as Secretary of Congress for a term of two years or or reject it. Each bill accepted shall pass to a Legislative Com- such shorter period as Congress may determine. mittee for drafting and shall be submitted to Congress at its ne;xt regular session for consideration. By an affirmative two- Section 4. When a vacancy occurs in the Presidency or Vice- thirds vote of the members present. Congress may determine Presidency of Congress, Congress shall elect from among its to consider a bill during the session in which it was intro- members, at the next regular or special session, an officer to duced or at any subsequent special session prior to the next ~erve the unexpired portion of the term of office vacant. regular session. Section 5. Duties of officers shall be as determined by Con- . Section 4. Upon passage of a bill by Congress, it shall be gress, and shall include: s1gned by the Pres1dent and the Secretary and forwarded to (a) That the President shall preside at all regular and spe- the. District Administrator as a Yap Islands Congress reso- cial sessions of Congress, except that, in the absence of the lutwn. President, the Vice-President shall preside, and in the absence of the President and Vice-President, the Secretary shall pre- Section 5. Any resolution not approved by the District Ad- side; ministrator sh~ll be returned to Congress, together with a statement of h1s reasons for disapproval and recommendation (b) That the Secretary shall make and maintain or cause for reconsideration by the Congress, copies of which shall also to be made and maintained records of all sessions of Congress; be f?rward~d to the High Commissioner. At any regular or (c) That the officers of Congress shall comprise an Execu- spec1al sesswn, Congress may, by an affirmative vote of three- tive Committee whose function it shall be to prepare and pub- fourths o_f its total membership, confirm such resolution and lish before the convening of each regular session of Congress forwar~ .1t through the District Administrator to the High an agenda of business for the forthcoming session. Comm1ss10ner.

ARTICLE VI Section 6. Resolutions approved by the District Adrninistra- to.r shall ~e. forwarded to the High Commissioner by the Dis- Secti01z 1. The President of Congress shall appoint from tnct Admm1strator and Congress shall be notified of such ac- among the members a Legislative Committee, among whose tion. Resolutions approved by the High Commissioner shall functions shall be the drafting of bills and resolutions of Con- become the law of Yap, Caroline Islands, effective thirty days gress; other functions of the Committee may be specified by thereafter, unless otherwise specified within the resolution or Congress in its rules of procedure. The Legislative Committee approval, and shall be promulgated according to law. may employ, under the provisions herein, such employees as are necessary to perform its proper functions. Section 7. Any resolution upon which the District Adminis- trator has not taken action within thirty days after the ac- Section 2. The Congress may appoint or elect from among ceptance by him of an English translation thereof shall be its members such other committees as are deemed necessary. considered as having t~e District Administrator's approval, and Advisors and consultants not members of Congress may be a copy of the resolutwn together with a translation shall be appointed to non-voting membership on such committees. forwarded by Congress through the District Administrator to ARTICLE VII the High Commissioner. Section 1. Congress shall convene in regular session twice Section 8. Any resolution upon which the High Commission- yearly, convening on the first Monday in May and the first er has not taken action within one hundred and eighty days Monday in November. from the date of acceptance by the District Administrator of an English translation thereof shall be considered as having the Section 2. Special sessions of Congress may be called by the High Commissioner's approval and shall become the law of President, the District Administrator, or by petition of a Yap, Caroline Islands, in accordance with section 6 next above. majority of members of Congress. Section 9. No resolution or enactment of Congress shall have Section 3. In any session of Congress, regular or special, the force and effect of law except as provided herein. Congress ·shall be considered continuously in session from the date convened, but no session of Congress shall exceed ten days' Section 10. No ordinance of any municipality of Yap Care- duration, excluding Saturdays, Sundays, and official holidays line Islands, which contravenes laws enacted under the pro- established by Congress by resolution. VISions of this Charter shall be accorded the force and effect of law. ARTICLE VIII Section 11. Acts of Congress constituting opinions and not Section 1. Compensation for services of members of Congress intended to have the force and effect of law may be presented shall be as Congress may determine and enact as resolutions, to the District Administrator as representations of Congress. provided that all congressmen shall be compensated equally for actual days' service in attendance at regular or special ARTICLE XI sessions of Congress. Section 1. Congress shall have the power to enact resolutions ARTICLE IX to provide for and maintain the welfare of the residents of Yap, Caroline Islands. Section 1. Congress may employ such persons as are deemed necessary to the proper conduct of its functions. Funds for Section 2. Congress shall have the power by law to levy the compensation of such employees shall be provided in an and provide for the collection of taxes and fees in conformance annual budget enacted by Congress as a resolution. with provisions of the Code of the Trust Territory, amended. 33 Section 3. Congress shall establish by law an annual budget ARTICLE XIII . to provide for the use and disbursement of revenues collected Section 1. Nothing within this Charter shall be construed as . under the authority contained herein, under the Code of the contravening the Code of the Trust Territory, amended, or Trust Territory, amended. any other laws, orders, or directives promulgated by the High Commissioner of the Trust Territory of the Pacific Islands. ARTICLE XII Section 2. No act of Congress which contravenes the laws of the Trust Territory shall be accorded the force and effect Section 1. Amendments to this Charter may be made by of law. resolution upon the affirmative vote of three-fourths of the Given under my hand and seal this 9th day of February 1959. total membership of Congress or by order of the High Com- missioner, provided that no amendment shall be made which (Signed) Delmas H. NucKER shall deprive any municipality of Yap of representation in Con- High Commissioner . gress. Trust Territory of the Pacific Islands

ANNEX Ill Charter of the Duhlon Municipality

PREAMBLE the Trust Territory and other information addressed to the Whereas, by action of Council, the people of Dublon Munici- people of the municipality; . pality have expressed their desire for representation in the (h) Maintaining or supervising the maintenance of munici- Government of their land in accordance with principles pro- pal property and funds; claimed in the Trusteeship Agreement and under the laws of (i) Notifying the District Administrator when an election the Trust Territory of the Pacific Islands, and is to be held and the results thereof and of any changes in Whereas we have confidence in the ability of these people to elected or appointed officers. He shall promptly notify the Dis- discharge certain responsibilities of government under our trict Administrator of the enactment of ordinances and forward laws and the provisions of this Charter, · copies of all written ordinances to the District Administrator. Now therefore I, Delmas H. Nucker, High Commissioner Section 2. A person or persons may be elected or appointed of the Trust Territory of the Pacific Islands, pursuant to sec- who shall be chief finance officer directly responsible to the tion 42 of the Code of the Trust Territory of the Pacific magistrate for the collection of taxes and other dues, for the Islands and the authority vested in me, do hereby charter the disbursement and custody of funds and for maintaining the people of Dublon Municipality to exercise the authority of records and preparing reports required by law. government over the areas hereinafter described in accordance Section 3. Such other officers and employees as may be with the following articles and do hereby proclaim that their necessary to exercise the functions of government. government shall be known as The Municipality of Dublon, the geographical boundaries of which are described as the en- Section 4. A council which shall act upon legislative matters of government. tire land area of Dublon Island and Eten Island, Truk Atoll, · Caroline Islands, together with all reef areas and heredita- Section 5. The initial meeting of the Council shall be con- ments thereto appertaining, as appearing on United States vened at the direction of the District Administrator promptly Hydrographic Office Chart No. 6050. upon receiving notice that a Charter has been granted by the High Commissioner, which Council shall determine its rules ARTICLE I of procedure, and by ordinance its organization and func- tions ; its membership, manner of selecting members and their This Charter and all amendments hereto constitute a part tenure; and the frequency and manner by which it will be ·of the laws of the Trust Territory of the Pacific Islands. convened.

ARTICLE II ARTICLE III Organization Qualification, selection, pay and removal of The Municipal Government shall be composed of: officers and employees Section 1. A Magistrate who shall be the chief executive Section 1. In order to qualify for election to office a candi- officer of the municipality, whose duties shall include but not date must be an elector of the municipality. Unless prohibited be limited to: by law an incumbent may be re-elected if otherwise qualified. (a) Enforcing the laws of the Trust Territory; Section 2. The Magistrate and other elected officers shall (b) Presiding as chairman of the Municipal Council; being be elected by plurality vote of the voting electorate to serve ·responsible for keeping a record of actions by it and the prom- ·for terms of not less than one year or more than four years ulgation of such enactments as may be required by law; as may be determined by ordinance. (c) Supervising the preparation of municipal tax rolls and Section 3. Appointed officers and employees shall be ap- budgets as required by law; pointed and shall serve such terms as established by ordinance. (d) Recommending to the Municipal Council, or to higher Section 4. Officers and employees may be paid salaries as legislative authority, legislation in the interests of the munici- provided by ordinance . .pality; Section 5. An officer or employee may resign at any time (e) Appointing or recommending for appointment municipal upon ten days' notice to the Magistrate, except the resignation officers as provided by law; of a Magistrate shall be submitted to the Council and shall not (f) Exercising responsibility of the work of officers and become effective until a successor can be appointed by the employees of the municipality and for convening special meet- Council to serve the remainder of the unexpired term or until ings of the Council ; a new Magistrate can be elected, provided that no officer (g) Representing and being respo.nsible to the High Com- of the municipality responsible for funds shall be relieved of missioner and the District Administrator and District legis- his ·responsibility until an audit is made of his accounts that ·lative or executive authority for promulgation of the laws of is satisfactory to the Council. Section 6. Upon the resignation of an elected officer or in case it shall become effective when promulgated as prescribed the event an elected officer is incapacitated to the extent he is by law and shall remain in effect until repealed by order of unable to discharge his duties, a successor may be designated the District Administrator or his accredited representative; to serve the remainder of the unexpired term as provided by or as otherwise provided herein. An ordinance enacted in ordinance. accordance with this section shall contain the word "emer- gency" or its equivalent in the title. Section 7. An elected officer may be removed from office for cause upon a two-thirds majority vote of the electorate and approval of the District Administrator. An appointed officer ARTICLE VI or employee may be removed for cause by the Council. Taxation Section 1 ARTICLE IV (a) Municipal taxes shall be levied by ordinance. Qualification of electors, voting and elections (b) Municipality taxes may be levied on property or per- sons only in accordance with the laws of the Trust Territory Section 1. In order to vote in a municipal election a person of the Pacific Islands. must be a citizen of the Trust Territory, of sound mind, at least eighteen years of age, and must meet such other qualifi- Section 2. Unexpended revenues shall not be accumulated cations as may be prescribed by ordinance, provided that no from year to year except for funds placed and held in a sep- person, otherwise qualified, shall be denied the right to vote arate account for a specified purpose. Such accounts shall be because of sex, race or religion. Qualifications or disqualifi- authorized by ordinance and their balances reported annually cations shall not be effective in an election unless promulgated as a part of the budget. Except for funds held in separate by ordinance at least thirty days in advance of the election. account. as authorized by this section, carry-over funds shall be apphed to the budget for the following year. Section 2. A list of qualified voters shall be compiled by the municipality at least fifteen days in advance of an election and ARTICLE VII a record thereof shall be certified by the Magistrate and for- warded promptly to the District Administrator. Budgets and the collection, disbursement and care of funds Section 3. Voting shall be by secret ballot supervised by Section 1 representatives, not candidates for election, approved by the (a) An annual budget shall be enacted as an ordinance. Council for that purpose. (b) The budget may be amended only by ordinance. Section 4. Any matter of legislation may be referred to the electorate by the Council or the Magistrate and, whe11 so re- Section 2. The budget ordinance shall be prepared in advanc~ ferred, shall be decided by majority vote of the electorate for a calendar year, or fiscal year extending from the first of voting unless otherwise prescribed by law. July t~rough the following thirtieth day of June, as may be determmed by the District Administrator and shall be pre- Section 5. Elections for municipal office shall be held prior sented for the approval of the District Administrator annually to the expiration of the term of office and shall be decided by thirty days prior to the first day of the budget year. plurality vote. Section 3. Municipal revenues shall be collected and accounted Section 6. In the event of a tie vote of the electorate on a for by the treasurer, who shall maintain a record of all reve- question or in an election, the matter shall be decided by nues collected a~d a record of all revenues due but unpaid. In majority vote of the Council. the event there ts no treasurer the Magistrate shall discharge these duties. ARTICLE V Section 4. Municipal records shall be made available to the Ordinances District Administrator or those acting under his express au- thority for audit upon demand. · Section 1. Municipal ordinances shall be enacted, amended, or repealed by majority vote of the Council and such enact- Section 5. Disbursement of municipal funds may be made ments shall become law upon the written approval of the only as provided by the annual budget. District Administrator, or his representative appointed for that purpose. ARTICLE VIII Section 2. Should a proposed ordinance be disapproved by No act of municipal government in conflict with District laws the District Administrator or his representative, the District or the Code of the Trust Territory of the Pacific Islands shall Administrator shall promptly state in writing to the Council acquire the force or effect of law. his reasons for such disapproval. Should disapproval be based upon reasons of substance, the Council may, by unanimous ARTICLE IX vote, resubmit the proposed ordinance through the District Administrator for the High Commissioner's approval, in which Amendment of Charter case the decision of the High Commissioner shall be final. Section 1. This Charter may be amended by ordinance and Section 3. An ordinance shall become effective upon being upon the written approval of the High Commissioner or by the High Commissioner on his own initiative. approved in writing by the District Administrator, or by the High Commissioner as provided in section 2 of this article, and Given under my hand and seal this 28th day of January 1959. ~hen promulgated as prescribed by law or at such later date as may be provided in the ordinance. For the High Commissioner: (Signed) ]. C. PUTNAM Section 4. An ordinance may be enacted to meet an emer- Acting High Commissioner of gency affecting the welfare of the municipality by unanimous the Trust Territory of the vote of the Council and approval of the Magistrate, in which Pacific Islands

35. ANNEX IV Written communications received hy the Visiting Mission during its visit to the Trust Territory N ate. Under rule 84, paragraph 2, of the rules of procedure of the Trustee- ship Council, the Visiting Mission decided that the following communications were intended for its own information and were not petitions to be transmitted to the Secretary-General. Comments on the substance of these communications appear in the present report as indicated in the respective footnotes; comments on resolu- tion No. 4 from the Saipan Congress have been included in this annex.

(a) COMMUNICATIONS FROM THE ELEVENTH SAIPAN LEGISLA- Administering Authority to extend the tenure of scholarships 11 TURE (1959-17th SPECIAL SESSION) TO THE VISITING MISSION and fellowships to interested persons in various fields for the necessary length of time to produce well-trained personnel Resolution No. 1, relative to an expression of appreciation es- who can return and assist the inhabitants to achieve the tended to the United Nations and the United States of basic objectives of the Trusteeship System. America for the benefits, assistance and guidance rendered to the people of Saipan Attested: (Signed) Olympia T. BORJA M. T. Sablan Speaker Be it resolved by the Eleventh Saipan Legislature, Trust Legislative Secretary Eleventh Saipan Legislature Territory of the Pacific Islands: Whereas the people of Saipan fully recognize and deeply appreciate all protection, benevolence and assistance rendered Resolution No. 3, relative to a request addressed to the Visit- to us by the United Nations and Administering Authority, the ing Mission to exercise its good offices in expediting the United States of America, for the development and progress processing of war damage claims towards self-government and independence of our people; Be it resolved by the Eleventh Saipan Legislature, Trust Now therefore be it resolved that this resolution do also Territory of the Pacific Islands: serve as an expression of deep gratitude and appreciation from Whereas during the year of 1944 the island of Saipan was all the people of Saipan for the continuous efforts of the invaded by the armed forces of the United States, and United Nations and the Administering Authority of the United States of America in the fulfillment of their humble inten- Whereas during the hostilities the personal property, per- tion instituted to the people of the Trust Territory of the sonal injuries, death, trees, crops and buildings belonging to Pacific Islands ; and the Saipanese were almost totally destroyed, and Be it further resolved that on behalf of the people of Saipan, Whereas claims have been submitted by individual Saipanese the basic objectives of the United Nations, and through the against the Japanese Government for the above described untiring effort of the Administering Authority, we shall con- damages, and tinue the work well accomplished in the future development of Whereas these claims were submitted by the· Naval Adminis- our good will and the aspirations of our people in appreciation trator to higher authority in January 1957, and to the effectiveness of such plans and system now truly enjoyed and never to be forgotten. Whereas none of the subject claims have been paid, (Signed) Olympio T. BORJA Now therefore be it resolved that the Eleventh Saipan Attested: Legislature does hereby on behalf of the people of Saipan re- M. T. Sablan Speaker Eleventh Saipan Legislature spectfully request and petition the United Nations Visiting Legislative Secretary Mission to exercise their good offices in expediting the process- ing of the foregoing claims. Resolution No. 2, relative to a request for the lengthening of Attested: (Signed) Olympio T. BORJA scholarship and fellowship programmes, including training M. T. Sablan Speaker on the professional level Legislative Secretary Eleventh Saipan Legislature Be it resolved by the Eleventh Saipan Legislature, Trust Territory of the Pacific Islands: Resolution No. 4, relative to the possible intercession of the Whereas the Trusteeship Agreement encourages the educa- Visiting Mission in the consideration of the transfer of mty tion of the people to the end that they may eventually attain dispensable tariff collected by the Administering Authority self-government and independence, and Be it resolved by the Eleventh Saipan 'Legislature, Tmst Whereas the people of Saipan, within their ability, are striv- Territory of the Pacific Islands: ing toward a future of self-government and independence, and Whereas cost of operation of the municipal governments Whereas education plays a most important part to this end are continuously increasing resulting in yearly deficits in to achieve this objective, and municipal administrations, and Whereas the people of Saipan fully recognize, acknowledge Whereas substantial revenues are being paid into the Dis- and sincerely appreciate scholarships and fellowships provided trict revenue accounts in the form of internal revenue, copra by the United Nations and the Administering Authority in all and trochus taxes, and -scrap royalties, and fields of education, and Whereas a transfer of all such revenues derived from such Whereas it appears that some of these scholarships and fel- taxes and royalties would enable the municipal governments lowships are too limited in time to enable the students to be- to increase their services to the people and prevent municipal deficits, come fully trained and qualified in their particular fields, Now therefore be it resolved that the Eleventh Saipan Now therefore be it resolved that the attention of the Chair- Legislature does hereby on behalf of the people of Saipan re- man and members of the United Nations Visiting Mission and spectfully request and petition the United Nations and the the Administering Authority is invited to consider the transfer of such funds from the district revenue to municipal treasuries. 11 The five undated communications were presented to the Attested: (Signed) Olympia T. BORJA Mission during its meeting with the Saipan Congress on M. T. Sablan Speaker 20 February 1959. Legislative Secretary Eleventh Saipan Legislature 36 Comments of the local authority (b) The individual Saipanese is learning more and more about the over-all administration of the government of the Taxes imposed by section 1145, Code of the Trust Terri- District as a result of work to establish a full-scale District tory-Pacific Islands, are paid into the District Revenue Fund. government, but he does not fully understand the situation Other moneys deposited in the District Revenue Fund are: as yet; (a) Fines collected by the Saipan District Court; (c) There is not yet a full understanding of the division (b) The nominal hospital fees paid by Saipanese (the hos- of responsibility between the municipality, the District and the pital is financed completely by Navy-appropriated money) ; Administering Authority; (c) :Money collected from the municipality for utilities ( wa- (d) There is an apparent feeling on the part of some mu- ter and electricity) furnished to the Saipanese by the Navy nicipal authorities that some of their powers and/or income (the production and distribution of water and electric power will be usurped by a District government. are financed from Navy-appropriated funds) ; (d) Royalties from the salvage of scrap metal in the Dis- Resolution No. 5, relative to a request for the aid of the trict. Visiting Mission in order to make possible an increase in the wage-scale for thft Saipan District To date the District Revenue Budget is prepared by the Naval Administrator and approved by the Chief of Naval Be it resolved by thft Eleventh Saipan Legislature, Trust Operations. The Naval Administrator is accountable to the Territory of the Pacific Islands: Chief of Naval Operations for expenditures from District Whereas the Saipan District within the framework of the Revenue in just the same manner as for United States-appro- Trust Territory of the Pacific Islands has considerable unbal- priated moneys. anced of the people culture, and economic, and Expenditures from District Revenue are: Whereas the economic system of the Saipan District is (a) Salaries for the Insular Constabulary and the Fire De- based primarily upon employment with limited scale of wages partment; concurrently observed together with that which is promulgated (b) Uniforms and other personal equipment for the Insu- and in effect with the other Trust Territory Island in the lar Constabulary and firemen (does not include vehicles and Pacific, and other major items which are furnished from United States- Whereas that the stability and economy of the Saipan Dis- appropriated money) ; trict lack the elements of the principal productions, such as (c) Operation and maintenance of the prison (food, clothing, copra, cocoa etc. like most extensively possible on other islands etc.); of the Trust Territory of the Pacific, and (d) A bi-weekly stipend of $7.50 to each student from other Whereas with the existent of the economic pressure sus- islands of the District attending the Intermediate School on tained upon the basic tendency of the people of the Saipan Dis- Saipan; trict, who are entirely dependent on payrolls, plus the high (e) Scholarships for medical students attending school in cost of the import commodities, and high cost of living, Suva; Now therefore be it resolved that the Eleventh Saipan Legis- (f) Procurement of seeds, fertilizers, insecticides used at lature does hereby on behalf of the people of Saipan respect- the Agricultural Experimental Station; fully request and petition the United Nations and the Adminis- (g) Procurement of parasites and insecticides to control tering Authority to reconsider the possibilities of the increase- specific insects and/or disease harmful to agricultural crops; ment of local wages at least 25 per cent to balance with the existent pressure of the unavoidable deficits derived from such (h) Special projects approved by the Chief of Naval Op- nature, in order to meet at least halfway of our duties and just erations for the direct and specific benefit of the Saipanese obligations. people and the economy of the District, i.e. the slaughter- house. Attested: (Signed) Olympio T. BoRJA The average annual expenditure equals the average annual M. T. Sablan Speaker income from all sources except scrap royalties. Scrap royal- Legislative Secretary Eleventh Saipan Legislature ties have over the past five (5) years brought in approximately $177,000, but this is no longer a source of income and there- fore cannot be figured in future plans. (b) COMMUNICATION DATED 26 FEBRUARY 1959 FROM THE PRESIDENT OF THE STUDENT BODY OF THE pACIFIC ISLANDS You will note that items for the direct benefit of the Saipan- CENTRAL SCHOOL TO THE VISITING MISSION ese, such as water, electricity, medical care (including hospi- talization) and the Saipan Intermediate School, are supported We the students of the Pacific Islands Central School have not by municipal or District funds but by United States Navy- faced some problems which we request for your consideration appropriated moneys. There are other items supported by and attention. United States Navy money that are properly chargeable to We also request for some other things which we think that local sources at such time as the income will support. For they are worthwhile and we feel that they would be included example, the salaries of the Superintendent of Elementary in your consideration. Schools, the District Judge, the Clerk of Courts and his Our problems are followed: assistant, and all expenses incident to the operation of the 1. We ask that the UN Visiting Mission would consider Court and the salary of personnel in the Saipan Immigration the fact that the PICS Budget is not appropriate to meet the Office. needs of the students. An additional factor not yet mentioned is that a chartered 2. We ask you to consider the possibility of extending the District government is not yet in being in this District. An two-year course of study, which has been given to Micronesian advisory body has been appointed with the assigned task of students to study outside the Trust Territory, to a four-year doing the work incident to establishing such a government. course of study so that a Micronesian who has the intellectual At such time as a District government is established, that abilities to complete a four-year course of study would be able government will be charged with the preparation of the Dis- to get a "bachelor degree". trict budget with such controls and supervision as is con- sidered necessary and appropriate. 3. We ask you to consider the fact that there are very few Micronesian students going outside of the Trust Territory for I think this petition was prompted by the following combi- schooling because (we feel) that the scholarships granted to nation of factors : us are very few. (a) The municipality does need more money to support the (Signed) Hans WILIANDER expanding elementary schools and other services; President of Student Body

37 ANNEX V Itinerary of the Mission

Distance covered Date Place Remarks (in statute miles) 6 February Honolulu Arrived from New York. 5,595 7 February Honolulu Courtesy call on the Commander-in-Chief of the United States Pacific Fleet. Visit to the Bernice P. Bishop Museum. 8 February Honolulu Meeting with the Advisory Committee on the Hawaii Training Programme for Micronesian Students. Meeting with forty-one Micronesian students attend- ing the University of Hawaii and other educational institutions in Hawaii under United Nations Technical Assistance fellowships and scholarships granted by the Trust Territory Government and private organizations. 9 February Honolulu Departed by air for Guam. Crossed international date-line. 3,i95 10 February Guam Arrived by air. 11 February Guam Meeting with the High Commissioner of the Trust Territory. Meeting with the Commander, Naval Forces, Marianas. 12 February Guam Meeting with the High Commissioner of the Trust Territory. 13 February Koror Arrived by air from Guam. Meeting with District Administrator and his staff. 823 (Palau) Visited Koror intermediate and elementary schools, Palau Agricultural station, hospital and the Trust Territory School of Nursing. Attended session of the District Court and the Trial Division of the High Court of the Terri- tory. 14 February Koror Visited the new subsistence fisheries installations, Palau Museum, municipal office, Ngarask \Vomen's Market, Western Carolines Trading Company and the sawmill. Meeting with members of the Palau Council, the Palau Con- gress, magistrates and other officials from the Palau District. Meeting with a number of people from Palau. Attended traditional dances performed on the occasion of the dedication of a new men's house of Ngerkesoaol hamlet near Koror. 15 February Koror Free. 16 February Peleliu Arrived by boat from Koror. Visited municipal dispensary with public elemen- 27 tary school and a new coco-nut plantation on Ngedebus Island. Attended public meeting at Peleliu. Koror Returned by boat. Attended farewell feast given by the people of Palau in 27 honour of the Visiting Mission and viewed films showing the United Nations Day celebration in 1958. 17 February Yap Arrived by air from Koror. Visited intermediate school and attended public 303 meeting during which the Chairman of the Visiting Mission presented on behalf of the High Commissioner of the Territory the charter of the Yap Congress to its President. 18 February Yap Visited the agricultural station, Grant-in-aid elementary school projects and the villages of Giliman and Kamifay. Visited the mission school, hospital and the offices of the Yap Trading Company. Attended feast given by the people of Yap in honour of the Visiting Mission. 19 February Guam Arrived by air from Yap. 523 20 February Saipan Arrived by air from Guam. Visited public elementary and intermediate schools, 132 the Catholic Mission school, Civic Centre, Saipan slaughter-house, bakery, Guerrsis farm and farmers' market. Meeting with Saipan Congress, local officials and people of Saipan. Guam Returned by air from Saipan. 132 21 February Tinian Arrived by air from Guam. Toured Tinian. Meeting with the Tinian Congress !21 and people of Tinian. Rota Arrived by air from Tinian. Toured Rota. Meeting with local officials and 66 people of Rota. Guam Returned by air from Rota. 55 22 February Guam Private meeting of the Mission. 23 February Truk Arrived by air at Moen Island from Guam. Visited Truk Trading Company 637 store and warehouses, Truk Co-operative, Nama Trading Company and agriculture station. 24 February Dublon Arrived by boat from Moen Island. Public meeting and presentation of charter 8 Island to the Dublon Municipality by the Chairman of the Visiting Mission on be- half of the High Commissioner of the Trust Territory. Fefan Island Arrived by boat from Dublon Island. Inspected Onogoch Village health 3 project. Public meeting. Moen Island Returned by boat from Fefan Island. 6 25 February To! Island Arrived by boat from Moen Island. Meeting with Tol community at Tot com- 21 munity building. Visited Protestant Mission school. Moen Island Returned by boat from Tol Island. 21

38 Distance cO'Vered Date Place Remarks (in statute miles) 26 February Moen Island Visited Pacific Islands Central School, intermediate and elementary schools, and Truk District hospital. Public meeting at Moen Community House. Meeting with Pacific Islands Central School students. 2J February Ponape Arrived by air from Truk. Meeting with District Administrator and his staff. 439 Visited hospital, Ponape Co-operative store, new site of Pacific Islands Cen- tral School, and intermediate and elementary schools. 28 February Madolenihrrtw Departed by motor boat for Madolenihmw. Visited Temwen dispensary and 45 elementary school. Meeting with local officials and council. Ponape Returned by motor launch to Ponape. Meeting with members of the Ponape 45 District Congress and with members of the judiciary. 1 March Ponape Free. 2 March Ponape Visited Catholic Mission school; Kolonia electric power plant; agricultural station and constabulary station. Meeting with public officials and people of Kolonia town. 3 March Ujelang Arrived by air from Ponape. Attended public meeting. 269 Ponape Returned by air from Ujelang. 269 4 March Mokil Arrived by motor vessel Kaselehlia from Ponape. Visited public school and 110 Mokil village. Attended public meeting. 5 March Ponape Returned by motor vessel Kaselehlia from Mokil. 110 Majuro Arrived by air from Ponape via Kwajalein. 999 6 March Majuro Visited public elementary and intermediate schools; Catholic and Protestant Mission schools and hospital. Meeting with the Director of Public Health of the Trust Territory. Attended public meeting. 7 March Imrodj, Arrived by air from Majuro. Attended public meeting. Visit typhoon-devastated 145 Jaluit areas. Majuro via Returned by air from Jaluit. Attended Marshallese Community dinner given 223 Kili by the Marshallese people in honour of the Mission. 8 March Majuro Private meeting of the Mission. 9 March Rongelap Arrived by air from Majuro. Attended public meeting. Meeting with members 420 of medical and scientific research group of the United States Atomic Energy Commission. Visited Rongelap village. Majuro Returned by air from Rongelap. 420 10 March Nauru Arrived by air from Majuro 606 10-14 March Nauru 14 March Truk. Arrived by air from Nauru. 1,183 15 March Truk Meeting with the High Commissioner of the Trust Territory. Private meet- ing of the Mission. 16 March Truk Departed by air for Momote, New Guinea. 720 16 March- New Guinea and 22 April Australia 5,626 25 April New York Arrived by air from Sydney. 10,114

TOTAL 34,038

39 ANNEX VI

145• 150• 155° 160• !65• 1700

TRUST TERRITORY OF THE PACIFIC ISLANDS STRATEGIC AREA 125' 25• ITINERARY OF THE UNITED NATIONS VISITING MISSION TO TRUST TERRITORIES IN.TH[; PACIFIC, 195.9.:

By air Burea ltinerory T erri\ori•l limit ---·--·-·--·~·-·--... District ttmi\ 20' /' -·--.....-. (Thete Unes tndicale the lerrilorial area and the districts N 0 R T H PACIFIC Dl/urisdiction, They are not~to b11 Interpreted as bound~ries) • oAGRIHAN L j-.,_ S<>~tu: ~ on rhe AdmtnlotTn!l.on' of th• Tn1.t Tnritory t>f tl.e Padffe fsl""d) t' ·-·--·- U.S. Nau11 D~artment, W.:~Jilnllllflo D.C., }IJIIJ l949, ' I "ALAIIAGANL NORTHERN i ·-...... 0 100 200 300 400 "500 . ·- ..,..,.._ ...... i ,: ldARIANAS ~ ...... _ ,.,:•t...... ~ •' ISLANDS ·-.._ SAIPAN I. TIN/AN 15' 130• 135' 140• I l.l. \. DIS::s~~ >- ·-j ·-·-· MARSH ALL ISLANDS DISTRICT I .,.. .,.... -·-·-·-·-·s ··;~ UTERIK ATOLL Ii ,...:...r-··-.. - .. -··-· «.:' .//'1 0 ·~~ / . ~ AJL.UK ATOLL • VLITHI ATOL 7" 10' /' i :-, "''.. .MEJIT I I !0• /' :YAP 1s ..., .. •FAts t y A p TOLt.,rfPTJE ATOLL. ./ I '!;"' ! / \) • PALAU IS. )f / i ·~ i WESTERN CAROLINI'; 5• i P~LO ANNA t. \ 5' tME:R1R I, i . PALAU DISTRICT \ ,.hoa~ 1. \ ·; d ...... '"""'-· ...... \ • •KAPINGAMAIW!

NAURU

l30Q 135° 140° 145• 1500 155• 160° 1659 170• MAP NO.!I69 UNITEQ.

REPORTS OF THE UNITED NATIONS VISITING MISSION TO THE TRUST TERRI- TORIES OF NAuRu, NEw GuiNEA AND THE PACIFIC IsLANDS, 1959

The Trusteeship Council, Having examined, at its twenty-fourth session, the reports of the United Nations Visiting Mission to the Trust Territories of Nauru, New Guinea and the Pacific Islands, 12 Having also examined the written observations submitted by the Govern- ment of Australia concerning the report on Nauru13 and the oral observations made by the representatives of Australia and the United States of America concerning the reports on New Guinea and the Pacific Islands, respectively, 1. Takes note of the reports of the Visiting Mission and of the observations of the Administering Authorities thereon; 2. Expresses its appreciation of the work accomplished by the Visiting Mis- sion on its behalf; 3. Draws attention to the fact that, at its twenty-fourth session, in formulating its own conclusions and recommendations on conditions in the Trust Territories concerned, the Council took into account the observations and conclusions of the Visiting Mission and the observations of the Administering Authorities thereon; 4. Decides that it will continue to take these observations and conclusions into account in future examinations of matters relating to the Trust Territories con- cerned; 5. Invites the Administering Authorities concerned to take into account the conclusions of the Visiting Mission as well as the comments made thereon by the members of the Trusteeship Council; 6. Decides, in accordance with rule 99 of its rules of procedure, that the reports of the Visiting Mission, together with the written observations submitted by the Government of Australia and the text of the present resolution, shall be printed.

12 Official !Records of the Trusteeship Council, Twenty-fourth Session, Supplement No. 4, document T /1448 and Add.l; ibid., Supplement No. 5, document T /1451; ibid., Supplement No. 3, document T /1447. "'Ibid., Supplement No. 4, document T /1460.

41 SALES AGENTS FOR UNITED NATIONS PUBLICATIONS

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Orders and inquiries from countries where sales agents have not yet been appointed may be sent to: Sales ancf Circulation Section, United Nations, New York, U.S.A.; or Sales Section, United Nations, Pa/ais c/es Nations, Geneva, Swit:z:erfancl. Printed in U.S.A. Price: $U.S. 0.40; 3/- stg.; Sw. fr. 1.50 19072-0ctober 1959-2,100 (or equivalent in other currencies)