For the first time in the history of the British Empire a Royal Commission
was appointed on which sat representatives of the United Kingdom side
by side with representatives of the self-governing Dominions.
This Commission consisted of eleven members—six representing Great
Britain and Ireland and five (one each) the Dominions of Canada, Australia,
New Zealand, the Union of South Africa, and Newfoundland. The
Commission came into being in April, 1912. It was the outcome
of a Resolution of the Imperial Conference of 1911. The members
of that Conference and of others which preceded it had warmly expressed
the opinion that the time had arrived for drawing closer the bonds of
Empire; that with the increase in facilities for communication and intercourse
there had developed a deepened sense of common aims and ideals and a
recognition of common interests and purposes; and that questions were
arising affecting not only Imperial trade and commerce but also the
many other inter-relations of the Dominions and the Mother Country which
clamantly called for closer attention and consideration. The time
at the command of the Conference was found to be too short for such
a purpose, and it was to study problems thus arising, and to make practical
recommendations that our Commission was appointed.
The individuals forming the Commission were, first and foremost,
Lord D’Abernon (then Sir Edgar Vincent). He was our Chairman,
the biggest man
of us all; ex-banker, financial expert, accomplished linguist; a sportsman
whose horse last year won the Irish St. Leger; an Admirable Crichton;
an excellent Chairman. Then came Sir Alfred Bateman, retired high
official of the Board of Trade, a master of statistics and unequalled
in experience of Commissions and Conferences. He was our Chairman
in Canada and Newfoundland and a most capable Chairman he made.
Sir Rider Haggard, novelist, ranked third; a master of fact as well
as of fiction; a high Imperialist, and versed both theoretically and
practically in agriculture and forestry. Next came Sir William
(then Mr.) Lorimer of Glasgow, a man of great business experience, an
expert authority in all matters appertaining to iron and steel and in
fact all metals and minerals. He was Chairman of the North British
Locomotive Company and of the Steel Company of Scotland, also a Director
of my old company, the Glasgow and South-Western Railway. Then
Mr. Tom Garnett (christened Tom), an expert in the textile trade of
Lancashire, owning and operating a spinning mill in Clitheroe; a good
business man as well as a student of “high politics,” a
scholar and a gentleman. Of the last and least, my humble self,
I need not speak, as with him the reader is well acquainted.
Canada’s representative was the Right Honorable Sir George
Foster, Minister of Trade and Commerce, steeped in matters of State,
experienced in affairs, a keen politician and a gifted orator.
Australia selected as her representative Mr. Donald Campbell, a clever
man, well read and of varied attainments, sometime journalist, editor,
lawyer, Member of Parliament, and I don’t know what else.
The Honorable Sir (then Mr.) J. R. Sinclair was New Zealand’s
excellent choice. A barrister and solicitor of the Supreme Court
of his country, he had retired from practice but was actively engaged
in various commercial and educational concerns and was a member of the
Legislative Council of New Zealand.
South Africa’s member was, first, Sir Richard Solomon, High
Commissioner for the Union of South Africa in London. He died
in November, 1913, when Sir Jan Langerman took his place. Sir
Jan was an expert in mining, ex-President of the Rand Chamber of Mines,
and ex-Managing Director of the Robinson Group, also a Member of the
Legislative Assembly of
South Africa. Keen and clever in business and a polished man of
the world, he was a valuable addition to the Commission.
Lastly, Newfoundland was represented by the Honorable Edgar (now
Sir Edgar) Bowring, President and Managing Director of a large firm
of steamship owners. He was experienced in the North Atlantic
trade, in seal, whale and cod fishing and other Newfoundland industries.
He was also a member of the Newfoundland Legislative Council.
Such were the members of the Commission. All endowed with sound
common sense and some gifted with imagination.
Shortly stated the main business of the Commission was to inquire
into and report upon:—
(a) The natural resources of the five self-governing Dominions and
the best means of developing these resources
(b) The trade of these parts of the Empire with the United Kingdom,
each other, and the rest of the world
(c) Their requirements, and those of the United Kingdom, in the matter
of food and raw materials, together with the available sources of supply
The Commission was also empowered to make recommendations and suggest
methods, consistent with then existing fiscal policy, by which the trade
of each of the self-governing Dominions with the others, and with the
United Kingdom, could be improved and extended.
Mr. E. J. Harding, C.M.G., was our Secretary. An Oxford man
of distinction, a member of the permanent staff of the Colonial Office,
studious, enthusiastic, energetic, of rare temper, tact and patience,
he was all such a Commission could desire. He and three or four
assistants, with local officers selected by the Governments in each
of the Dominions, one and all most capable men, formed a Secretariat
that served us well.
The Commission started operations by taking evidence in London in
the autumn of 1912, but its main work lay in the Dominions, and on the
10th of January, 1913, we sailed for Australia and New Zealand, touching
at Fremantle (Western Australia), Adelaide (South Australia), Melbourne
(Victoria), and Hobart (Tasmania) on our way.
In
New Zealand we travelled through the island from south to north, staying
in that beautiful country for nearly a month, and holding sittings in
the principal cities. One sitting we held in the train—a
record surely for a Royal Commission. Easter intervening, we indulged
in a few days’ holiday in the wonderful Rotorua district, where
we enjoyed its hot springs, its geysers, its rivers, its lakes and its
Maori villages. Returning to Sydney, we travelled northwards to
Queensland and there entered seriously upon our Australian duties, holding
sittings at Brisbane, Sydney, Melbourne, Adelaide, Hobart and Perth.
In Queensland we penetrated north as far as Bundaberg, Gladstone, Rockhampton
and Mount Morgan. In the other States tours were made through
the irrigation areas of New South Wales and Victoria, and visits paid
to the mines at Broken Hill (New South Wales), the Zeehan district and
Mount Lyall (Tasmania); Iron Knob (South Australia), and Kalgoorlie
(Western Australia). Some of our party penetrated to remoter parts
of Australia such as Cairns (Northern Queensland), Condobolin (west
of New South Wales), and Oodnadatta (Central Australia), still the furthest
point of railway extension toward the great Northern Territory.
To Tasmania we were able to devote a few days, taking evidence and
enjoying its wonderful beauty.
Finally, we left Australia on the 9th of June, four months after
our first landing on its sunny shores.
On arriving home it was determined that for the remainder of the
year 1913 we should remain in England and take further evidence in London.
We resumed our travels in January, 1914, when we left for South Africa.
There we held a number of sittings, taking evidence at Capetown, Oudtshoorn,
Port Elizabeth, East London, Kimberley, Bloemfontein, Durban, Pietermaritzburg,
Pretoria and Johannesburg. Our journeys to these various places
were so planned as to involve our travelling over most of the principal
railway lines of the Union, so that we were able to see a considerable
portion of its beautiful scenery as well as its great mining and pastoral
industries. Our work finished, most of us returned direct to England,
but some were able to penetrate northwards into Rhodesia, and return
by way of the East Coast of Africa.
It was our intention, after taking further evidence in London, to
proceed to
Canada and Newfoundland, and to return home before the winter began,
when we looked forward to making our Final Report. This intention
we partially fulfilled, as in July, 1914, we sailed from Liverpool,
and after exchanging steamers at Rimouski, landed at St. John’s,
Newfoundland. There we stayed for a few days whilst the crisis
in Europe deepened. We then travelled through the island by railway
and crossed to the Maritime Provinces of Canada. On that fatal
day in August on which war broke out we were in Nova Scotia. A
few days after, the British Government, considering that under such
conditions we could not finish our work in Canada, called us home.
In common with many of our countrymen we indulged in the hope that the
duration of the war would be a matter of months and not of years, and
that we should be able to resume our work in Canada in the autumn of
1915. But this was not to be. However, in 1916, the Governments
represented on the Commission came to the conclusion that the completion
of our work ought not to be longer delayed, and accordingly, in August,
1916, we sailed again to Canada.
In the Maritime Provinces of Canada, in 1914, we visited Sydney,
Cape Breton, Halifax, the Annapolis Valley and Digby in Nova Scotia;
St. John, Fredericton and Moncton in New Brunswick, and Charlottetown
in Prince Edward Island.
In 1916 the resumption of our Canadian work began at Montreal.
Thereafter, the great mining districts of Northern Ontario engaged our
attention, where, amongst other valuable products of the earth, nickel,
silver and gold abound. From Ontario we travelled westward to
Prince Rupert on the British Columbian coast, holding sittings at Saskatoon,
Edmonton and Prince Rupert. We then proceeded by steamer, through
glorious scenery, southward to Victoria, Vancouver Island. At
Victoria and also at Vancouver we took evidence. From Vancouver
we journeyed eastwards by the Canadian Pacific Railway over the Rockies,
breaking our journey and holding sittings at Vernon, in the Okanagan
Valley, at Calgary, Regina, Winnipeg, Toronto, Ottawa, Montreal and
Quebec, devoting several days each to many of these places. Whilst
in British Columbia we also visited the lower part of the Okanagan Valley,
and whilst in the prairie provinces stopped at Medicine Hat (where the
gas lamps burn day and night because it would cost more in wages
than the cost of the gas to employ a man to turn them out). In
Ontario we visited North Bay, Fort William, Port Arthur, Guelph and
Niagara Falls. In addition some of us travelled through the mining
districts of British Columbia, and also inspected the asbestos mines
at Thetford, in the Province of Quebec.
This is the bald outline of our long and interesting journeys, which
by land and sea comprehended some 70,000 miles. How bald it is
I keenly feel, and it would afford me more pleasure than I can tell
to give some account of our wonderful experiences—of the delight
of sailing in southern seas; of the vast regions of the mainland of
Australia; of the marvels of its tropical parts; of the entrancing beauty
of New Zealand and Tasmania; of the wonders of Canada, the variety of
its natural productions, its magnificent wheat-growing areas; of the
charm of South Africa with its glorious climate and its beautiful rolling
veldt. What a memory it all is! Tranquil seas, starlit nights,
the Southern Cross, noble forests, glorious mountains, mighty rivers,
boundless plains; young vigorous communities under sunny skies, with
limitless space in which to expand. I should love to enlarge on
these things, but a sense of proportion and propriety restrains my pen.
In all the Dominions we were received with the warmest of welcomes
and most generous hospitality—governments, municipalities and
corporations vieing with each other in doing us honor, whilst private
individuals loaded us with kindness. It was clear that our mission
was popular, and clear too that affection for the old country was warm
and lively. I cannot attempt to narrate all that was done for
us—banquets, receptions, excursions, garden parties, concerts—time
and space will not allow. But I cannot be altogether silent about
the splendid special train which the South African Government placed
at our disposal from the time we left Capetown until we reached Johannesburg,
which (taking evidence at the various places on the way) occupied several
weeks. This sumptuous train consisted of dining car, sleeping
cars and parlour car, was liberally staffed and provisioned; with a
skilful chef, polite and attentive waiters and attendants.
It was practically our hotel during those forty days or more.
In Australia and New Zealand, more than once, the various governments
provided us with special cars or special trains to visit their remoter
districts with
the greatest possible comfort. The same was the case in Newfoundland,
whilst the Canadian Government lent to us a steamer—the Earl
Grey—for our journey from Rimouski to Newfoundland, which
since has done good service for the Allied cause in the war.
In Canada we travelled from Montreal to Prince Rupert, some 3,000
miles, in a handsome and most commodious car kindly lent to us by Sir
Daniel Mann, one of the founders of the Canadian Northern Railway.
It, too, was our home and hotel during the ten days which that journey
occupied. The longest passenger vehicle I had ever seen, it had
ample kitchen, dining room, sitting room, sleeping and “observation”
accommodation for us all, with an excellent bathroom and the luxury
of a shower bath.
On all our journeys to and from the Dominions, and in all our expeditions
by sea or by land, my wife accompanied me. She was an excellent
traveller. There is considerable difference in our years; but,
as Dickens has said: “There can be no disparity in marriage save
unsuitability of mind and purpose.” The only lady who accompanied
the Commission everywhere, she was sometimes called “The Lady
Commissioner.” One must not praise one’s own, but
this much I may say: Her Irish wit and bright unselfish ways made her,
everywhere and always, a welcome addition to the Commission party.
After November, 1916, we held no more public sittings, took no further
evidence, but sat down at Spencer House (one of the many stately London
residences lent by their owners to the Government during the war) and
there, in its ballroom, industriously worked out our Final Report.
This, of course, reviewed the whole subject of our inquiry and embodied
our final conclusions and recommendations. To the credit of the
Commission be it said, these conclusions and recommendations were entirely
unanimous, as also were those in each of our Interim Reports, published
in connection with the Dominions separately.
In this Final Report the subject of railways was not included.
Railways of course formed part of our inquiry, but they were dealt with
in our Interim Reports.
To a large extent railways were more a matter of domestic than of
Imperial concern, but as the development of the resources of the Dominions
depended
greatly upon the adequacy of railway transit, the subject came within
the province of our inquiry. I will not trouble the reader with
statistics (which can be readily obtained elsewhere) beyond the following
statement which represented, at the time we made our investigations,
the railway mileage and the population in each Dominion compared with
the United Kingdom:—
Miles of Population. Number of
Railway. Inhabitants
per Mile of
Railway.
Canada 35,600 8,075,000 280
Australia 18,000 4,500,000 250
South Africa 8,800 1,300,000{207a} 150{207b}
New Zealand 2,900 1,052,000 370
Newfoundland 800 250,000 320
United Kingdom 23,500 46,000,000 1,950
It is clear that railway construction has not been neglected in the
Dominions, and that, measured by population, the mileage is considerable.
Speaking generally, the Dominion railways are highly efficient and serve
their purpose well. Extensions were being projected and many were
in course of construction for the further development of natural resources
and of trade and commerce.
In Australia the railways, with the exception of certain lines belonging
to the Commonwealth, are owned and worked by the several States.
We found them paying full interest on the cost of construction, and
sound assets of the country. The cost of working was, however,
greatly increasing, due mainly to increase of salaries and wages.
How this stands since the war I do not know; but that expenses have
further advanced goes without saying. An important railway witness
whom we examined expressed the opinion that increased expenditure could
be recouped by increased rates. Perhaps that is still true.
If it is, the railways of Australia are happier than most of the railways
in Ireland.
The
railways of New Zealand belong to and are worked by the Government.
For many years the Government, looking upon the railways as an adjunct
to the settlement and development of the country, only expected them
to return 3 per cent. interest on the capital expended. In 1909
this policy, however, was modified, 3¾ to 4 per cent. being then
regarded as a proper result, and this result was accomplished.
Water power in New Zealand is so abundant that the adoption of electricity
for railway working has been engaging the attention of the Government.
Many, well qualified to judge, were satisfied that it would prove more
economical than steam locomotion.
In both Australia and New Zealand, borrowing for railway construction
had been by means of general loans raised for all kinds of Government
expenditure. We came to the conclusion that if loans for reproductive
works, such as railways, had been segregated from others, it would have
helped the raising of capital, and probably secured easier terms.
The construction of railways in Canada has, in recent years, proceeded
at a rapid pace. We found that the mileage had doubled since the
beginning of the present century, due, to a large extent, to the construction
of two new Trans-Continental lines. The grain-growing districts
of the prairie provinces, south of latitude 54 degrees, are now covered
with a network of railways, and British Columbia has three through routes
to Eastern Canada.
The enterprise of the principal Canadian railway companies is remarkable.
They own and operate not only railways, but also hotels, ferry services,
grain elevators, lake and coast steamers, as well as Trans-Atlantic
and Trans-Pacific steamers. One company also has irrigation works,
and ready-made farms for settlers in the prairie provinces. But
Canada lies so near to us, and in the British Press its railways receive
such constant attention, that I need not descant further upon them.
In South Africa, with the exception of about 500 miles mainly in
the Cape Province, the railways are all Government owned, and are worked
as one unified system. The Act of Union (1909) prescribed that
the railways and the harbours (which are also Government owned and worked)
were to be administered on business principles, and that the total earnings
should not exceed the necessary expenditure for working and for interest
on capital. Whenever they did, reductions in the rates, or the
provision of greater
facilities, were to restore the balance. This provision also had
the effect of preventing the imposition of taxation upon the community
by means of railway rates. The Act contained another practical
clause, designed to block the construction of lines from political considerations.
Any line constructed contrary to the advice of the Railway Board, if
it resulted in loss, the loss was to be a charge, not upon the general
railway revenue, but upon the Consolidated Fund—a useful “brake,”
which I have no doubt has often pulled up hasty and impetuous politicians.
South African railways enjoy one great advantage—cheap coal
for their engines. In 1913 the average cost at the pit’s
mouth was 4s. 11½d. per ton.
The railways of Newfoundland have had a chequered history.
Now they are Government property, worked by a private company under
a 50 years’ lease, which dates from 1901, and under that lease
no rent is paid. As the capital expenditure (about £3,000,000)
averages less than £4,000 per mile, it may be conceived that the
railway system of Newfoundland is not of an extravagant character, and
in my humble opinion, the country deserves something much better.
In our fourth report (on Newfoundland) we stated: “It must also
be said that the state of the permanent way does not conduce to speedy
or comfortable travelling.”
The gauges of the Dominions’ railways are very varied.
In Australia there are three—5ft. 3in., 4ft. 8½in. and
3ft. 6in., with some 300 miles or so of less than 3ft. 6in. The
Commonwealth has for some time been considering the conversion of the
lines into one standard gauge, the British gauge of 4ft. 8½in.
being favoured. The cost of this conversion naturally increases
the longer action is deferred, and in any case would be very great.
It was officially estimated at the time of our visit at £37,000,000.
New Zealand, Canada, South Africa and Newfoundland are each the happy
possessor of one gauge only. In Canada it is the British gauge
of 4ft. 8½in., and in New Zealand, South Africa and Newfoundland,
3ft. 6in.
Our Final Report was signed on the 21st of February, 1917, and published
as a Blue Book in the usual way, but, what is rarely done with any Blue
Book, it was also published in handy book-form, bound in cloth, at the
popular price of 1s. 6d. Blue Books do sometimes contain matter
of general interest, are sometimes well written and readable, and would
be more
read if presented to the public in a handy form such as we succeeded
in publishing.
The main purposes of the Commission I have already briefly stated.
They embraced many subjects for inquiry and study, of which the following
are the most important, and regarding each of which it may be appropriate
to say a word or two:—
We ascertained and compiled in detail, tables of the Imports and
Exports, distinguishing Trade with (a) the United Kingdom, (b)
the other parts of the Empire, and (c) with foreign countries.
The figures showed the need there was for an Imperial trade policy,
which should lead to British manufacturers and merchants cultivating
more the Dominion markets, and utilising more the vast resources of
raw materials which the Dominions possess. We found that a detailed
examination of existing conditions, and practical and definite proposals
for the removal of difficulties, were required.
In regard to agricultural matters we gathered and published much
information, finding that in one part or other of the Dominions all
animals and almost every crop flourished that are needed by man, that
if the products of the more tropical parts of the Empire were taken
into account, the Empire could meet more than its own needs; and that
if men existed in sufficient numbers in our Dominions, there was scarcely
any limit to the external trade they could do. In this part of
our Inquiry we found to what a considerable extent people concentrated
in large cities to the detriment of the country districts. “Back
to the land” is a question there of as much if not greater moment
than in the Mother Country. The mineral resources of the Dominions,
like the agricultural, provided us with a big subject. In every
Province or State, by oral evidence, by official statistics, by discussion
with Government geologists, officials of the Mines Departments and others,
we gathered a large amount of valuable information. The volumes
of printed evidence give full particulars of this and other subjects.
The mineral deposits of Canada especially are varied in character and
large in respect both of quantity and value—gold, silver, copper,
lead, zinc, nickel, coal, iron,
asbestos, natural gas, petroleum, peat, gypsum—all are found in
unstinted quantity. Nor are the other Dominions deficient.
The goldfields of Australia are historic, and the silver, lead and zinc
mines of Broken Hill deserve particular mention. In South Africa
gold and diamonds are plentiful; and Newfoundland has wonderful deposits
of iron ore.
In forests and fish the Dominions abound, and possess enormous possibilities
of extended trade.
This subject received our earnest attention. We considered
that the various Governments of the Empire should take steps to secure
the development and utilisation of their natural wealth on a well considered
scheme, and that to do this, a preliminary survey was needed of the
relation between Empire production and Empire requirements. No
such survey, as far as we knew, had yet been undertaken, but in the
Memorandum and Tables relating to the Food and Raw Material Requirements
of the United Kingdom, which we submitted to His Majesty in 1915,
the Commission had made an effort, not without some measure of success,
in this direction. We regarded it as vital that the Empire’s
supplies of raw material and commodities essential to its safety should
be, as far as possible, independent of outside control, and made suggestions
which aimed at effecting this object. We recommended that the
survey mentioned above should be made by an Imperial Development Board,
which should be entrusted with the whole subject.
We dwelt on the importance of securing to all parts of the Empire
adequate facilities for scientific research in connection with the development
of their natural resources; and, in connection with this, made certain
recommendations as regards the Imperial Institute, for the purpose of
increasing its efficiency and usefulness.
To this important matter we devoted much time and thought, not only
in London, but in each of the Dominions as well, obtaining much valuable
evidence
and personally examining the circumstances and conditions that prevailed.
No Imperial question, we considered, could be of greater importance
than this. We made many recommendations, some of which have already
been adopted, whilst the remainder are coming into great prominence
now that the war is over. In the past we found no effort had been
made to regulate emigration from the United Kingdom, and we proposed
the establishment of a Central Emigration Authority. The surplus
of females in the United Kingdom, increased unfortunately by the war,
will probably result in many young women seeking their fortune overseas,
and we urged increased facilities and better regulations for their migration,
showing how best we considered they could be given.
To this subject, which embraced sea transport, harbours, waterways,
mail communications, postal rates, freight rates, etc., we devoted considerable
time, calling attention in particular to an aspect of the question never,
so far as I know, investigated before, viz., the urgency of constructing
deep harbours suited for the deep draught vessels which alone can carry
on cheap and rapid transport. We made recommendations as to the
improvements immediately necessary on the great trade routes, and urged
that future schemes should be submitted to an Imperial Development Board.
In the far distant Dominions, cable communication is a matter of
great importance to the community; and increased facilities and cheaper
rates are much desired. Some of the recommendations we made to
this end have since been adopted.
This presented a large field for inquiry; and, after much investigation,
we made recommendations on Trade Intelligence; Trade Commissioners and
Correspondents; Consular Service; Improvements in Statistics; Conference
of United Kingdom and Dominion Statisticians; and other matters, all
of which we considered were of practical necessity.
Lastly, the need of creating an Imperial Development Board
engaged our serious
attention. Early in our Inquiry we had been impressed with the
necessity for the appointment of some board or body whose constant duty
it should be to consider questions affecting Imperial trade and development,
from the point of view of the interests of the whole Empire. We
took some evidence on the subject, discussed it with leading men in
the Dominions, gave the question much thought, and finally recommended
the establishment of a new Imperial Development Board, which should
include not only representatives of the United Kingdom and all the Dominions,
but also of India, the Crown Colonies and the Protectorates. In
the course of our work we had been much impressed with the inadequacy
of existing organisations to deal promptly and efficiently with such
matters as the following:—
Telegraphic, cable and shipping communications between the various
portions of the Empire
Inter-Imperial mail services and postal rates
The development of harbours and waterways on the great routes of
commerce to meet Imperial requirements
Migration as a factor in Empire development and trade
Legislation affecting the mechanism of trade, such as that on patents,
companies, copyright, weights and measures, etc.
The application and better utilisation of capital raised in the United
Kingdom and other parts of the Empire, towards promoting the development
of the Empire’s resources
The systematic dissemination throughout the Empire of news bearing
upon Imperial questions and interests
The preparation and publication of Imperial statistics
Better organisation for handling and for disposal of the produce
of various parts of the Empire
These, and subjects of a similar nature, we considered should be
assigned to the proposed Board as its ordinary work; and to the duty
of advising the Governments on these matters would be added that of
collecting the necessary particulars bearing upon them, involving research
not only into the conditions prevailing in the Empire, but into the
methods of rival trading countries.
To a large Board we were opposed. We suggested that members
should be
required to give their whole time to the work, and that representation
of the various parts of the Empire might be as follows:—
United Kingdom, India, Crown Colonies and Protectorates 7
Canada 1
Australia 1
New Zealand 1
South Africa 1
Newfoundland 1
___
12
___
Such is a brief summary of our Mission, our Report, and our Recommendations.
Whilst we were impressed by the vast extent and infinite variety
of the Empire domain we were also touched by the sentiment which held
together its widely scattered parts. Without this sentiment, and
without loyalty to the Crown and Mother Country, what, we often thought,
would happen?
The war has taught us much as to the unity of the Empire. Peace,
we may be sure, will bring its own lessons, perhaps its own dangers,
in its train. To strengthen the bonds so loosely yet so finely
drawn must henceforth be the constant duty of the Statesmen of the Empire.
The governing machinery requires overhauling, demands adjustment to
the needs of the various sections of the Empire, and to the throbbing
anxiety of each to share in the duties and responsibilities of Empire
Government and Development.