i islwids (certain)    .91/. Z89 .
S3
the status and use of those Pacific Islands the
sovereignty over which is in dispute, has been
considered carefully and the following observations
are now offered*
British and the American interest in these islands.
The British interest is partly to be able to utilize
them for purposes of aviation, both civil and military;
but also to use them for purposes of colonisation by
the inhabitants of other British islands in the
Pacific,   The advance of civilisation and of hygiene
has brought about a problem of over-population the
nature of which was explained in documents communicated
to the United States Ambassador in London in May, 1938.
The problem is now very acute, giving serious concern
to the British authorities, and remedial measures
cannot brook delay*    Among these the most promising
is the transfer of inhabitants from the over-populated
to suitable uninhabited islands and schemes for
effooting this are being ae$lmLy pursued.
3. On the other hand, if the position is
understood correctly the American interest is not
concerned with the acquisition of mere territory as
such, nor with questions of re-Bettlement* American
desires are* it is believed, confined to the
acquisition of certain outposts fplt aviation, perhaps
A certain contrast exists between the
both/
both elyil and military.   The American objectives
have not however Hitherto been defined and this fact
ssaxt necessarily inject an element of uncertainty
into the suggestions which follow.
4* We should not be averse to discussing the
status and the use of the islands in relation to a
general system of air navigation* but it is only
right to state in advance that although la the case
of some ielands the British claim to sovereignty
may not he unassailable, over others, to some of
wh&eh we think (although we have no certainty) that
the United States government may desire to lay claim*
we consider our title so indisputable that we cannot
hold out the hope that our view would be changed by
discussion.
5* In such a ease arbitration naturally
springs to the mind and we should ordinarily be glad
to seek an arbitral award which would decide the
issue of sovereignty beyond possibility of question;
But in the present ease we should be reluctant to
follow this procedure;   It would necessarily be
accompanied by the drawback of calling international
attention to the existence of differences on colonial
questions between the two governments;    It might well
result in attempts by other lowers to assert claims to
the islands in question*   And it might even start a
general movement on the part of other Powers to
appropriate islands in the Pacific;   Nevertheless; if
the United States Government should strongly desire to
have/
60
-8-
,have recourse to ^^mto^ we should be prepared to
acquiesce*   - £*g tbs -olosost $os/a.'lfe3.&-h^jvaja^ j&ffe '
§• a<g}|pujd the United states Government however
•hare this reluctance to go to arbitration*£j£nd should
they be willing to discuss the whole question of Pacific
aviation in its widest aspects, then J^t is our jb^uef
that we might find it easier to examine and discuss
%he common needs of both governments with a view to
seeing whether their attainment could be facilitated*
?• As regards the use of the islands of the
Western pacific for civil aviation, we would suggest
the formal adoption of the broad principle that each
party should make Its Islands available for purposes
of civil aviation to the aircraft of the other.
#• It is the development of aviation in the
Pacific which alone has lent international importance
to the questions discussed above*   The United Kingdom*
Australia« and Nov Zealand are no less concerned than
the United States in securing though rights for their
aircraft.   Hone of the parties ean attain its desire
without the cooperation of the others which should be
granted willingly and on a basis of complete reciprocity.
WO therefore desire to repeat and to urge the United
States Government to accept an invitation to enter
into a conference with His Majesty*s Governments in the
United Kingdom, la the Commonwealth of Australia, and
la How Zealand for the discussion of trans-Pacific
Aviation,   fho Agenda for such a conference should
include the conditions on whleh landing rights may be
granted both in intermediate islands and in terminal
territories.
9* All of His Majesty's Governments concerned
desire to work la the closest possible harmony with
the Government of the United States and in this
spirit the hope is earnestly expressed that the
United States Government will agree to partieipate
la the proposed four party conference at the earliest
date that may he practicable*
BRITISH EJSM0S3-:,
April 6th, 1939.