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Fo~ ut~ot—~
COMMONWEALTH OF AUSTRALIA4
A REPLY
TO THE
ADJUSTING TAXATION.. .. .. .. .. 36
PURPOSE OF THIS CHAPTER .. .. •. 36
- - -Tabi. of Contonts—continu~d.
-
PAGE.
~CHAPTER-, - VlI.—THE COMMONWEALTH BANK AND WESTERN AUSTRALIA 38
SFRWnNO TEE RISKS .. - .. .. 38
MornuzA’no~io~Got~ AND TREASURY BILL FINANGI 30
EXOITANOE RATE .. ..
39
A O1~E~x~
BANK FOIl WESTERN AUSTRALIA 39
W~sT~Ic AUSTIIALLt AND TEE ExCHANGE RATE 40
E~&lmwYFn~ANcH .. .. 40
MISCELLANIIOUS SERVICES .. ., . - 40
CHAPTER VIII.—THE TARIFF .. ,. 41
“TuE GE~&TEsTBURDEN” 41
INCThZIIOR OF TAIIIFF .. 42
“Exoas~ Cosxs” ... .. . .. . * 42
UPIORT o~T&ni~~ .. - 43
PS1OPOErrON OF REVENUE AND- PROTECTIVE DUTI-~ 44
FAIIM AND INDUSTRIAL PRICES .. 46
G~~-ra
OP COSTS AND PRICES 47
RI~uovAL op SWtORARGES AND PRORIBITIONS
PBIMAOJS REDUCTIONS - 48
LoWEuSE PREFERENTIAL DirrEls 48
LYONS AND SCULLIN TANu~is 49
LYONS U4n BRUCE-PAGE TARm~S
Au INESCAPABLE CoNcLUSIoN 60
Two INfORMATIVE GRAPES 50
AU8IuA.u Pnio~sorrEu BELoW IMPoRT PARITY 52
A CAZDrNAL ERROR IN TIlE CASE 52
EXCESS COSTS ~VEONGLYESTIMATED 53
A FIOUBE TEAT CA~NoTSTAND .. ~. .. - 56
THE “BURDEN” ON PRIMARY PRODUCTION 57
Gooos THAT iiu~ FREE ..~ .. ... 57
QALVANJZED IRON, FENCING \VIRE AND WIRE Nrl’rT~a 57
AGRICULTURAL IMPLEMENTS .. .. 58
Dowuwnrn TREND OF AUSTRALIAN PRICES 59
AUSTjw~N,ARGENTINE, Sotrrlt AFRICAN AND N~wZEAt~ND
PIllaRs 59
AtisTiuLui~INDUSTRY -BENEFITS PRODUCER 60
PEIMAXY INDUSTRIES THAT ARE PROTECTED 60
WESTEzic SECONDARY INDUSTRIES. 62
A SECESSION DILEMMA 02
CHAPTER IX.—DUT1ES ON STATE GOVERNMENT -IMPORTS 63
War FISHE ENTRY IS NOT PH1~11TTRD 64
UNJUST TO PRIVATE ENTERPRISE.. .. - - 64
WURUE Dwrizs ARE WArVED .. . 63
Tna TEN L000sto!rivEs AND TIIIRTY.T*O BOILERS 65
- PERTH POWER STATION 05
CHAPTER X.—COASTAL SHIPPING - 65
- Puiu’osis 011 TIlE NAVIGATION ACT
• 05
- - VALUE OX COASTAL MAiuuIh - 66
- - FINDINGS 011 TWO BoAS.1DS OP INQUIR! ..
Exz~rIoNsFAVOURING Nonrn.WEST 67
7
Table of Contents—continued.
PACE.
CHAPTER XI.—THE SUGAR INDUSTRY .. 67
FACTS NOT KNOWN OR Fonaoi’rHu 67
CONSEQUENCES OF WAR 65
CONFLICTING INTERESTS OF PRODUCER AND CONSUMER 68
How OVER-PRODUCTION CAME ABOUT 6,
EFFORTS TO EFFECT ADJUSTMENTS . -. 69
Two SIDES OF-A DIFFICULT PROBLEM .. 69
“WhEAT QUEENSLANDERS SHOULD FORGET AND AUSTRALIANS
I1EIIEMBEII” .. .. .. * 70
WIIAT TIlE SUGAR INDUSTRY MEANS TO “WRITE AUSTRALIA”.. 70
CHAPTER XII.—THE GOLD MINING INDUSTRY ~.. — 71
AN UNJUST INDICTMENT .. TI
COMMONWEALTh AID TO REVIVE TILE INDUSTRY 71
TIlE TRUTII ABOUT TIlE Gotn BOUNTY 72
EXE1flTION FROM INCoME TAX .. 72
CHAPTER XIII.—SOME MINOR MATTERS 73
CHAPTER XIV.—DEFENCE - .. . * .. 74
CHAPTER XV.—THE UNITY OF AUSTRALIA 74
Two EC0N0IIIO UNITS 74
“FOR Con HAS MADE lINE ONE” 75
DIFFERENCES OF ECONOMIC OUTLOOK ARE COMPATIBLE WITH
POLITICAL UNION .. .. 76
DiST~tNC1~s . . .. .. 76
TIlE CASE OF NOVA SCOTIA .. 7,
BORDER CUSTOMS hOUSES .. 77
CHAPTER XVI.—AFTER SECESSION—WHAT? .. .. 77
WhAT WESTERN AUSTRALIA WOULD LOSE . * 77
TILE SECESSION BUDGET .. 78
TILE COMMONWEALTh ESTIMATE .. . * 79
TIlE FINANCIAL REALITY—NOT A GAIN BUT A LOSS.. 51
- WESTERN AUSTRALIA’S CREDIT POSITION AS A
DOMINION - - .. .. .. 82
TIlE NEW DOMINION’S TRADING OUTLOOK 82
CHAPTER XVU.—SUMMAFIY OF WHAT THE FACTS DISCLOSE 83
CHAPTER XVUI.—SQME CLOSING WORDS .. .. .. .. - 85
APPEND ICES. -
Tahie of Contents—continued. -
Appenthces—cont-inued.
APPENDIX 7.—PRICES OF WIRE NETTING . 94
APPENDIX 8.—PRICES OF SUNSHINE HARVESTER IMPLEMENTS .. - 95
is alleged to have suffered are, in the Case, reinforced by a host of other gri~vancee
from which the authors fear that Westerii Au~t-raIia will or. may “suffer “, “ “~
in hypothetical circumstances. -
We do not attempt Its this reply to (ICily o~belittle the real disabilities from- -
which Western Australia suffers-, and to which full, consideration is given later-
on; but that secession is the only relnedy, or is a remedy at- all, we completely
disahlos~.
Looking at the Case in the light of the broadest and most vital aspects of
Commonwealth and State relationship, we remark first upon its narrow and even
parochial conception and outlook. Nowhere does it reveal an Australian
consciousness or appreciation of the national advantages which have accrued and
-
must cotitinue to accrue through the Union, nor does it reveal an awareness of th.
significance to the Stat-e of the changes that have takeii place in tile world since
Federation Was inaugurated. - -
L~stercame the crash of the Great War in which the Australians, for the first
time, fought as one under the flag of the young Commonwealth, and over 60,000
of them—of whom a full proportion went from the State of Western Australia—
consecrated with their lives the common brotherhood of Australians. Had the
Commonwealth not existed, Australian participation in that wars not only in the
fighting line but in the provision of supplies- and munitions, could not have been
co-ordinated, and would not have been t-he great and effective effort that it was; -
and in all probability the shores of Australia would not have been exempt from
hostile attack. - - - -
wrought by the Great War. The War crashed Empires and remade the map of- - -
Europe and of much of the world outside Europe. It brought into being new--
ii -
external problems of finance and trade prove tractable, and these problems can -
sphere of time international exchange of goods and sOrvices. But w~have moved
far away from the prc-depression world, and such a return to the conditions
which then obtained, however devoutly to be wished, is now practically ceitan
never to be realized. -
The old freedom of international trade is gone, perhaps for ever. Trade was
never completely free even in Great Britain, but it-s regulation was kept
“ “,
within such limits as- to allow a reasonably wide interchange -of goods between
- ii -
exclusively on the internal situation, international trade questions for the time
having been relegated to the background.
In addition to the development of planning on the grand scale, we have to
reckon with conditions in most of time coumitries of Europe which are inherited
not from the schemes of enthusiasts for planning,” but from the desperate
“
commodities will be brought into line, and how far home production will eventually
be expanded, it is as yet impossible to forecast. But the list is already impressive
enough, and the expressed imutent-ions of the British Minister for Agriculture are
strong enough, to raise very serious doubts as to the possibility of extending, or
even of maintaining, the existing British market for Australian primary produce.
12
In regard to all this we are not concerned hero with praise or blame. What
we are concerned with is the prospect for the future. Whether we like or dislike
planning, whether we think national self-sufficiency as a world policy good or bad,
is not to the point. Time inexorable facts of the situation remain, and they indicate
the continued ascendancy and probable further development of ideas of national
economic self-sufficiency, at least for some time to come.
- THE BEARING OF THESE FACTS.
Tho bearing of these considerations on the secession issue is simple and direct.
Western Australia, above all States, is dependent on export production. It is
not necessary to quote figures in support of this statenient ; it is sufficiently
acknowledged, and even emphasized, in the Case presented. Paragraph 336 is
worth repeating:
Time trade and production tables which have been furnished in this
chapter significantly disclose that Western Australia exports almost two-
thirds of her total production. On account of its small population Western
Australia is not in a position to consume locally a large proportion of its
primary products, amid has, therefore, to rely on exports overseas to (lisposo
of time surplus. Hence, in respect of wheat-growing, which is time mainstay
of the State, it will be found that an overseas market has to be found for
90 per cent, of the wheat produced. Wool is also an important product,
apd practically the whole of the total wool-clip must be marketed overseas,”
The remarks in this paragraph come 4o the heart of the matter, for they portray
vividly the problem which Western Australia has to face in the future. If, as
claimed in the Case, Western Australia’s voice, as a State in the Commonwealth,
is small, how much smaller would that voice be, if raised by her, as an isolated
community, in world-bargaining for export markets!
It is impossible to read the future at all clearly, but it is certain that Western
Australia, as a predominantly exporting State, ‘is far more likely to be successful
in the struggle for markets if it faces a potenti~llyhostilC world with the backing
of Australia’s full national strength. If the markets that can be offered for
-
imported goods prove sufficient to provide an outlet for Australian exports, then
a population of 6,600,000 has more to offer than a population of 440,000. In the
outlets already provided Western Australia has now more titan her proportionate
~harc. If, as is possible, even reciprocal agreements are not enough, Australia as
a whole has still to remit abroad something over £30,000,000 sterling per annum
to settle her interest amid dividend obligations. It is to be expected, however, that
Great Britain, as practically our sole creditor, would accept our exports at least
to this amount, and there is no reason why Western Australia should not secure
a proportionate and possibly a larger share of the markets so provided.
Consider the position in which Western Australia would fimid herself if events
should prove these fears for the future of our export markets well founded. The
present plight of the wheat industry affords a good example of what might easily
happen on a magnified scale, not only in wheat, but in the case of many other
important export commodities. It is no longer sufficient to produce good wheat,
nor even to produce good wheat cheaply. It is necessary to find an outlet for
-
it, however cheap it may be. Low prices no longer necessarily provide atm entry
into international markets. It is indeed- a paradox of the present situation that
~-
wheat has been shut out of various European countries because of its very
cheapness. -,
Should the wheat situation be aggravated, and the same difficulties confront
other export commodities, it is ~rtain that Australia will have to plan a
-
as to its capacity to fulfil the supreme national functions in the time to come,
a State’s desire to withdraw from its place in the national framework would be
understandable even though its proposal fell, as now, in tho midst of world
confusion and uncertainty. But the authors of the “Case in their pro-occupa-
“,
tion with grievances which arise mainly not from the pact of Union, but from the
14
CHAPTER II. -
For light on thi~point we cannot do better than turn to the State’s statistical
records and particularly to that most interesting pamphlet Cne hundred and
Four Year’s P-roqress compiled by the State Statistician and published by the
Governmnent of Western Australia in 1033. It was first prepared as a centenary
documnment when the State in 1029 was extending cordial invitations to all outside
its borders to conic and acquaint themselves with what had been accomplished
imi time first 100 years, and what the State bad to oiler to investors and new
home-makers in tIme years to come. Neither in this nor other of the abundant
~officialpropagamida can any reference be founèl to the “gravcimmjustice, great
hardship amid severo distress “ or other conditions endangering the whole
“
economic structure and social fabric of the State “—phrases whelm abound in the
Case. -
- 241,000, a figure very much greater than the total populationshe had accumulated in
15
the first 70 years of her existence. There was thums in 30 years of Federation an
increase of nearly 134 per cent. in the population, representing an annual rate of
increase throughout of 2.87 per cent. This rate of. increase was not equalled or
even approached in the same period by any other Australian State. For
Australia as a whole time annual rate of increase for this period was only 1 ~82per
cent. It is thus evident that whatever effects Federation may have had on
We-ste-rim Australia, it did not prevent that State from adding to it-s population
at a rate much in excess of that experienced by the rest of Australia. In the
absence of specific evidence to the contrary, such a growth in population must
be accepted as evidence of relative prosperity. -
facility with which Western Australia transferred from the role of a gold
producer to that of an agricultural amid pastoral State is prothinent. -
At the date of Federation, gold production was by far the most important
industry. At that tune the are-mm under wheat in the whole of Western Australia
was below 75,000 acres, yielding less of this grain titan was required for food and
seed. Western Australia was then drawing at least a third of luer bread
requirements from time Eastern States. By 1920 the area under wheat bad increased
to 1,276,000 acres, amid by 1930 to no less titan 3,950,000 acres. There has been
some decline during the depression, but the phenomenal increase in the period
1920—1930 will be found to have few parallels elsewhere. It was accompanied
also by a substantial rise in the average yield per acre. -
Progress has also been rapid in pastoral pursuits. Horses increased from
68,000 in 1900 to nearly 160,000 in 1932; cattle from 339,000 in 1900 to 857,000
in 1932; and sheep from 2,434,000 in 1000 to 6,533,000 in 1920 and 10,405,000 in
1932. These increases were accompanied by corresponding increases in such
pastoral products as wool, tallow, hides amid skins. Time production of wool alone
rose from 15,305,000 lb. in 1901 to 48,681,000 lb. in 1920, and as much as
51,308,000 lb. in 1932. . - -
nevertheless the value of the output which Was £4,478,990 in 1908 bad grown te
£12,353,353 in 1932. - - - - - - -
- 16 - -
- CHAPTER HI.
~2) The State has been reduced tó a subservient position through the
whittling down of the essential Federal principle of~thcConstitution
- by High Court decisions and dirCct amendment.
(3) The State is left without adequate revenues for the conduct of its
services through the entry of the Federal Authority upon the fields
-
of direct taxation. - -
(4) The State’s primary industries have been burdened by the Federal
policy of protection, and its secondary industries retarded by the
- - - constitutional requirements of interstate free-trade.
- (5) -The State representation in the Federal Parliament is too small to
- influeneethe policy of Federal Governments which is dictated by the
majority in the more populous States. - -
(6) The State is so isolated from the rest of the Commonwealth by distance
and by the physical characteristics of the Continent as to be
-
We shall examine these contentions to see whether all or any of them justify
Secession, and in doing so we shalt have-to refer to the various disabilities specifically
alleged, bearing in mind, however, that the Commonwealth Grants Commission
is also inquiring minutely into these disabifities with a view- to their measurement
and rc~nc~1y, - --~ - — - - -
17
- CHAPTER IV. -
How remote the above -statement-s arc from time facts can be conclusively
shown.
- - HIGH COURT DECISIONS.
First for a few figures. There may have been -four-score judicial interpreta-
tions of the Constitution; but only a smnttil proportion of them have been concerned
with the distribution of power between Commonwealth and States. And they
have been by no means one-sided. In eighteen cases, -the whole or part of a
Commonwealth Act has been held to be invalid, as not coming within any specific
subject-matter of Commonwealth legislative power. - - -
Very seldom, in time High Court, has the validity of a State enactment been
successfully challenged on Constitutional grbuiids. Time-re are only eleven sue-u
cases altogether. Of these, four were cases of State- laws inconsistent with Federal
legislation on a Federal matter, and these, of course, were only declared invalid!
to the extent of the inconsistency. The other seven wore all bredchCs of section 92
~ the Constitution, as interfering with interstate free- trade-, or breacbe~of- section
90, as encroaching on the exclusive power of the Commonwealth to impose duties
of customs and excise. So far as We-ste-rim Australia is concerned, only one section
of one Western Australian Act has ever be-en declared invalid-by the High Coumi-t-~--.
and that was an Act passed long before Federation, which discriminatcd,~ihrcspcót
- 18 -
of Colonial wine lice-noes, between Western Australian wine and wine from other
parts of Australia ; and was clearly, after Federation, in conflict with section 92
of the Constitution providing for interstate free trade (Fox v. Robbins,
8 C.L.R. 115). So that the picture drawn in paragraph 154 of time Case, of the
-
DiSTRIBUTION OF POWERS.
The basis of the distribution of legislative powers between Commonwealth
and State-s is shortly this :-‘---The Commonwealth Parliament is give-tm power to
make laws with respect to a certain number of specified subjects—most of thorn
contained in the 39 paragraphs of section 51 of the Constitution. As to a few
subjects (such as the power to impose duties of customs and excise, to raise naval
or military forces, and to coin money), the power of time Commonwealth Parliament
is made exclusive ; as to the other subjects, on which the Federal l’arliament
has power to legislate, the States continue to have concurrent power; that is, they
can still pass any laws they like as to those subjects, provided they are not incon-
sistent with Commonwealth laws. And as to all matters not included in any of
the specific subject-matters of Commonwealth power, time- Stat-es retain exclusive
power to pass laws (except for certain express prohibitions contained in the Con-
stitution), and the Commonwealth cannot interfere. -
exclusively (so that the States retain- power to pass laws not
conflicting with Commonwealth legislation).
(3) The general residue of legislative power not comprised in the specific
matters given to the- Commonwealth, and therefore- remaining with
the States-(except for a few express prohibitions).
Out of the whole list of the- subject-matters of Federal legislation (except for
section 105k of the Constitution which will be dealt with separately) it is only
necessary, in this connexion, to refer to the following :—
Section- 51. The Commonwealth Parliament has power to make- laws for
the peace, order and good government of the Commonwealth with respect to—
(i) Trade and Commerce with other countries, and among the States;
(ii) Taxation; but so as not to discriminate between States or parts
- of States;
- - - - -
For instance, time Australian Industries Preservation Act 1906 was an Act,
p~5SC(l under the Comnmonwealth power to make laws in respect of “ trade with
other countries and! among tIme- States forbidding monopolies and unfair corn-
“,
petition in external and interstate trade. For time most part, it did not apply
to trade within a State—wlmmcli is not included in time specific legislative powers
of tIme Conmnionwcalth. But as time Commonwealth imas power to make laws with
respect to foreigmi corporations, and trading amid finamicial corporations formed
“
within a State ‘‘,provisions were irmserted in the Act to forbid monopolies and
uimfair comnpetition by such corporations in trade generally—-without a limitation
to external and interstate- trade. Time high Court held that this was invalid
that a law regulating the belmaviour of companies iii trade was not a law with
respect to companies, but a law with respect to trade, and not being limited to
external and interstate trade was beyond time power of the Commonwealth
Parliament (Iluddart Parker v. Moorelmcad, 8 C.L.R. 266).
Again time Commmmonwcc-lth Conciliation and Arbitration Act 190-i purported to
give time Commmmnonwealth Court, in ulealing with an industrial dispute, power to -
industry its a whole. Time Court held that, under the specific power given to the
Comrmionwealtlm Parlianient, time Parliament had mmo imower to deal with industrial
disputes except by way of “conciliation and arbitration and that time declaration
“,
of a common rule was not conciliation or arbitration, bumt time legislative regulation
of industry, as to which the Commonwealth Parliament had no power (Boot Trade
Case, 11 C.L.R. 311). - -
to indicate that tIme articles to which it is applied are time production of that worker
or of members of that Association. The Court hçid that this was not a trade mark
in time ordinary sense of time term, and was not covered by the power of the Common-
wealth Parliament to make laws with respect to “trade marks” (Union Labet
Case, 6 C.L.R. 469).
Timese illustrations are sufficient to indicate that the High Court has
consistently held that Commonwealth legislation must be strictly confined to the
specific subject-matters assigned t~ the Conmmonweàlth, and Imas declined to
sanction any extended interpretation of those subject-matters beyond their-
natural meaning. -
20
THE DOCTRINE OF MUTUAL NON-INTERFERENCE.
Apart from section 105A of the Constitution—the Financial Agreement
amendment, which will be dealt with later—the wimole charge that the Constitution
has by judicial interpretation been twisted against the- States re-ally seems to be
based upon the Engineers’ Case, 28 C.L.R. 129. That case is referred to, in the
Case for Secession, paragraphs 135, 136, in a very misleading way. It 15
described as “a revolution in the Constitution “, giving the federal powers an
unimagined range, and destroying the definite distribution of powers between
Commonwealth and States. A short explanation will show how fanciful and
unfounded this view is.
The story begins with the- celebrated case of d’Enmde-n v. Pedder, 1 C.L.R. 91.
Mr. d’Enrmdcn, a Commonwealth official in Tasmania, signed a receipt for hmi~salary
as the Audit Act of time Commonwealth required hum to mb. lie was convicted
in a State police court for not having affixed a twopenny State revenue stamp to
the receipt, in accordance with the State Stamp Duties Act. From such small
causes do great events spring! The ease- came on appeal be-fore- the High Court,
which quashed time conviction on two independent grounds. The first ground
(which is so obviously right that it has never been questioned) was that a State
-law purporting to impose a tax on the performance of an Act required by Common-
- wealth law to be- performed (in this case time signing of a receipt) was inconsistent
with the Commonwealth law requiring the receipt to be given. The second
ground—which is what all this trouble is about—is what is known as the rule or
doctrine of “ mutual non-interferenco “ as between Cominonwealtim and States,
namely, that it~is an implied term of the Constitution—nowlmere expressed in
words, but deducible fronm time whole instrument—thmat any attempt by a State
to interfere- with a Commonwealth agency or instrumentality in time performance
- of a Federal duty, and any attempt by the Commonwealth to interfere with a
State agency in time performance of a State duty, is unconstitutional and invalid.
Now the first timing to be noticed about this rule- of imiterpretation is that it
cuts both ways. It purported to protect the Commonwealth from State
interference, as well as to protecb the State from Commonwealth interference. In
this very case of d’Emden v. Pedder, it. was re-lied on by time Oonnmnonwealth as
a bulwark of federal power, and challenged by time- State as a subversion of State
rights. And now, in time strange whirligig of time, the reversal by the High Côtmrt
of this doctrine of mutual non-interference is denounced as destructive of State
rights, and an immeasurable extension of the power of tho Commonwealth I
The next thing to be noticed is that this rule of mutual mien-interference was
definitely disapproved by the Privy Council. It had bee-mm applied again by the
High Court to exempt the salaries of Commonweahth officials from State income
tax ; and the Privy Council held! that no such rule of interpretation could be -
deduced from the- Constitution (Webb v. O-uttrim, 1907, AO.81 ; 4 O.L.R. 3~5). -
The High Court, however, which is not bound by the Pt-ivy Council in
questions of distribution of power between Commonwealth amid States, continued
for a time to apply this rule of interpretation, but soon found that it led into great
difficulties. -
In the Railway Servants’ Case, 4 C.L.R. 488, the High Court held that State
Railway Commissioners were an instrumentality of the State Government and
therefore that the conditions of employment of State railway servamits could not -
Court held, of necessity, that the States and their instrumentalities could not
claim - asa constitutional right, exemption from the payment of Customs duty.
- - 21
- Many other difficulties arose, and at l~stthey all came to a head in time
Engineers’ Case (28 C.L.It. 129). Time State of Western Australia had establmsbe-d
certain trading concerns—factories and mills which were- owned by the State, but
otimcrwise were ordinary trading ventures. And time State-, under time doctrine
of mutual non-immterference-, claimed immunity for the-se enterprises from the
Commonwealtim Arbitration Act. Timis claim, the Court foummcl it impossible to
concede. Time position was analogous to that in time- Steel Rails Case ; to allow
the- claim would lmavc empowered the States, by extending time field of State
employment-, to wimittie away to notiming time- Commonwealth Arbitration power.
Time- Steel Rails Case and time Railway Servants’ Case were found to be- irrecommcilable.
Time Court could not differentiate time Western Australian trading concerns from
the New South Waies Railways, a-nd was forced to time- conclusion that the
Railway Servants’ Case had be-en wrongly decided, and that time attempt to read
into the Constitution an implied prohibition of mutual interference was a
mistaken one. They camne back time-re-fore to time view taken by time Privy Council,
that time Constitution must be read according to time plain sense of its words. The
State- Railways mmml time- State trading cone-eu-mis ~veroindumstrial enterprises, and
disputes between time-rn and time-jr employees were “industrial disputes within“
interstate trade among the exclusive powers, and debarred time States from making
any laws for the regulation of- irmter-State- trade, even where the field had been left
clear by the Commonwealth Parliamne-nt.
Bimt there are many kinds of laws wimich, thoumghm not framed with the purpose
of hindering inter-State trade, may incidentally have that effect; e.g., laws for
regulating road traffic, and laws regulating time- competition between road amid rail
transport. The I-high Court has hel~Iin more than one- case that legislation of that
kind is within the comnpetence of time State- Parlinument. (Willard v. Re-u-son,
-
48 C.L.R. 316; Rex v. Vizzard, A.L.R. 1934, page- 16). It may be mentioned that
in the latter case, time Comnmmionwealth Gove-rnnmemmt immtervened for the pumrpose
-
of supporting time validity of time- State Act—an eloquent commentary upon the
charge made in time Case that time- Comnmnonwealtim consistently strives to enlarge -
AN IMPARTIAL ARBITER.
From what has be-en said a-hove, it must be plain to every unbiased mimI
that the High- Court 1mm not been a one-sided arbiter of the Constitution. On
the contrary, it hums performed its difficult taskwithm skill, wisdom, and impartiality.
Its Judges were and are imunian, auni not infallible; they have differed amongst
themselves, and occasionally time- whole court has changed its view. But that is
only additional evidence-, if sue-h be needed, of their desire to imold an even balance,
to interpret—sometimne-s by trial and error—time- spirit of a Federal Constitumtion
which distributes the sum-total of political power between a central Govern-
ment and local Governments. - - -
It can readily be- shown that this statement is a violent exaggeration and
distortion of the facts. -
In 1027 a Financial Agreement was made between the Commonwealth and the
States. It provided for a vast cpe-ration—the- taking over by time- Comiumonwealth
of the public debts of time States ; a-nd it provided also for time adjustment of the
financial relations of the Commonwealth and States in respect of those debts,
and the control by a Loan Council of future Commonwealth and State
borrowing. This agreement was afterwards approved by time- Parliament of the
Commonwealth and the Parliament of each State-.
It was recognized, however, that time agreement as a whole was outside the
powers of the Commonwealth, and wa-s unenforceable. Consequently it was a
term of the agreement that the Commonweahtlm would takô action to submit to
Parliament and to -time electors a specified amendment of time Constitution (which
now stands in the Constitution in the exact form in which it imas been agreed to by
all the governments and Parliaments as Section 105A), and, that time mmtin provisions
of the Agreement would not come into force unless the amendment of time
Constitution were made. The amendment was passed by the- Commonwealth
Parliament, accepted by the electors of each State, and received the Governor-
General’s assent on 13th February, 1929. - -
It also empowers time- Parliament to make laws for validating time Financial
Agre-e-nment already made-, and “for time carrying out by time parties thereto of any
such agi-cemnent “. Time Financial Agree-me-nt already made between time
Comnmonwealtlm and tIme State-s was duly vaiid~ted accordingly by the- Financial
Agreement Validation ilct 1929.
Section 10~Aalso declared thmat every such agreement “ simall be binding upon
the Comnmommweimlth and time States parties time-re-to, notwithst-andirmg ammytiming in
this Constitumtion or time Constitution of the several States or in ammy law of the
Parliament of the Conmmonwealth or of any State-.”
Subsequently New South \Vaics in breach of time- agree-me-nt defaulted seriously
and continumomumiy in time payments of interest due- to creditors overseas. This
default went to tii~root of the Financial Agreement, upon time carrying omit of
wine-li depended time financial stability and credit of time Commonwealth and of
each of time State-s. -
undermmm~ncs time constitutional rights of time States. It might just as well he said
“
that time policeman on his be-at attacks arid uumdcrmine-s tIe liberty of time
“ “
citizen. lilt tlmat is put forward jim the- Case in this connexiorm amounts to rio
more timan a vague and formless fear of some-timing timat may possibly happen,
but wimicim never would happen except in extraordinary circunmstances.
It may be- mentioned that in time United State-s time question of time power to
compel a dcfaultiimg State- to fulfil its obligations has arisen, and time Supreme
Court has he-ft it in no doubt tlma-t power e-xi~f~ in tIme United States Constitution
to take-time necessary measures against a Stat.e\ Time State of West Virginia was
for maumy years in defamult to the- State of Virgini~to time extent of many millions
of dollars, in respect of a debt due under an agreement made by time former State
upon its separation from time latter. No actual e-nforcemen~ was eventually
necessary, -because, at time threat of enforceme-nt,.West Virginia provided for time
payment; but the- existence of the- power of enforcement is shown by the- following
comment by Willougimby (Constitution of time- U.S., 2nd Edition, p. 1440) upon time
Case of Virginia v. IVest Virginia, 246 U.S. 565 :— -
from bein~unprecedented, it imims its precede-mit iii the United States, from the
CommsLitutioui of which many of the primmciplcs of our Constitution have bce-ui taken.
As to timis interpretation of the Cormstitution being ‘‘ tmnexpected “, it was only
mmexpcrit-ed iii the sense that no one expected that circumstances ,n-ouiml arise -
whelm would call for the exercise- of this power.
Poe-s Western Australia seriously smuggest that the action taken against New
Soumtli \Vahes, to compel timuit State to imemforimi its obligations endnmmgers tho
iimdependence of Western Australia. amid makes it urgently necessary for \Vestern
A mustra!ia to “ cut time- painter.” -
It isnmtatcd in the Case that “ time Western Australian State Government did
not approve of the action of time Governmmment of New South \Vaies “. But no
anmiount of disapproval, not bmmckcd by effective action, would have secure-mi the
carrying outof time Agreement.
- Time outstanding imnportane-e of time Financial Agreement is dealt with in--
another paragraph. - -
- INDUSTRIAL ARBITRATION.
The power of-time Commonwealth to make laws with respect to “conciliation
and arbitration for the prevention or settlement of industrial disputes extending
beyond time limits of any one State- “is (if we- except the defence power) practically
tue only instance of a power whelm has bee-mi give-mm a much wider interpretation
than was apparently contemplated by the framimers. And time- reason, in time case
of both tbe industrial power and time defence power, is the same—the increased
scope and extent developed by industrial as by international warfare.
The Great War became a test of all the resources—military, financial, social
and economic—of the warring nations ; so timat the High Court found itself mutable
to declare that the fixing of time price of bread miglmt not comitribute in some way
to the winning of the war. In the same way, the marshalling of the forces of
employees and employers in national federations developed a new techrmiqmme in
industrial warfare, arid gave to the piiraso “industrial disputes extending beyond
time limnits of any one State a wider umieamiimig.
“
At time outset, time Court showed a tendency to try to limit the words “industrial
dispute “,and time words extending beyond time limits of any one State-
“ “,to
correspond with the industrial conditions existing in time nineties when the -
Constitution was framed. Bmuti time world refused to stay still, and the change in
conditiomis was too strong for time Commrt, and eventually forced it to an interpretation -
corresponding to the new order of things.
To be-gin with, objection was taken by employers to time registration, as an
organization of employees under time Federal Act, of the Victorian Coal-Miners’
Association, on time ground that a one-State organization could not be concerned
in a two-or-more-State di~pnte, It was contended that no dispute could come
before time Court unless both time employers amid the employees concerned were
in more than one- State. But the Court did not ne-ce-lit this himnitation, and upheld
time registration. Jumbunna Coal Mine v. Victorian Coal Miners’ Assoc~atmon,
6 C.L.R., 309. - -
Next, the Court made an attempt to limit the meaning of the words” industrial
dispute- by defining the criteria or requisites of a gemmuine dispute. A muajority
“
(Griffith C.J. and Barton J.) Imeld that time-re must be a real amid substantial dispute,
having some element for permanency, and that a dispute could not be created by a
mere formal demand and refusal of a new bog. Isaacs J., in,a dissenting judgment
that became-the basis of the later decisions of time Court, held that, while there
must be in fact a realdispute, it was impossible to lay down’any permanent criteria
of a dispute; the words “industria-l dispute must be read in time-jr natural sense,
“
withoumt limitation, a-nd- if a real dispute arose, it was immaterial how it had
originated. Exp. Allen Taylor, 15 (J.L.R. 586. -
- Finally, in- a series of cases, it. was laid down that a real dispute might arise
-
It was also commtenlcd. iim time 0mm-nv ve:mrs, that a two-or-nmore S~atesdispute
- could not arise in such an imid nstry as time bui ding trade, wlmere time prodmmets could
not be the subject of imit-er State competition, a-rid the- conditions of the industry
were local. Btmt time Court imeld, by a- mimnjority,thmat time-re- commld be a two-or—immure
States dispute in stmcim an industry ; t-lmat time required unity of time rhispute was not
a commercial unity affecting ‘eimiimlmmvem-s ommiy, but aim indmistrimml immut affecting
employers ntn(1 eimmployees alike. If the dispute itself was an Australian
dispute, It did not matter that an individual employer or ermmpiove-e operated in
one State only. Builders Labourers’ Case, 18 C.L.It. 224.
Time-sc decisiomms (mvithm time decision in the- Engineers’ case, already referred to,
that time Commonwealth Act binds a State wheim it is an employer in an industry)
have certainly give-mm the constitutionn-1 power waler scope tlmamm most-, at least, of
the framers probably contemplated. But it iS imy no means clear that time
electorates in Austrcha, or in Western Australia, tiismmpprove of this result. If
they do disappear. time Commmmmmommwealtlm po~vermay be curtailed by aim murmenmlzmment
of the- Constitution or the exercise of time power may be- curtailed by- law. But
whether they disapprove or mmot, time mmmmmttcr affords imo argummuelit for secession.
It is one which has lie-en time ~rihject of much political discussion throtmghmout
Australia, and a variety of legislative propo:$mmls ; a-nd if re-forum is necmied, reform
can be effected, either by ammiendmrmermt of time law or by ammmeuclmmmemmt of time
Constitution. - - - - -
Ome of the reckless mid unfounded stuitemnents made in time Case (paragraph 100)
is that the separate existence and corporate- life of the States is tlmreatcmmed by
judicial interpretation of time- Constitution particularly iii relation to time taxing
powers and the spending powers of time States “.
It. may surprise readers of time Case to learn timat time-re has bee-n no judicial
interpretation at all as to time extent of time spending po%vers of time- Comnmonwe-alth
and tlmat time only de~isionas to time- extent of its taxing powers is one- against time
Conimommwealth, being a decision that time Conumumonwealtim Parliunmenmt has no
power to regulate, by penalties nmasqmierading under time cloak of taxation,
matters within time exclusive province of time States (I?. v. Barger, referred to
above). -. - - --
It has always bee-ri knowmi. and is clear on time face of time Commstitution, that
the taxing power of time- Commonwealth is unlimnitmmd as to subject-matter.
Complaint has of course- been made tlmmmt time Commommwenltim, in time exercise of
that power, has entered fields of taxmmtiomm which, it limm~ been suggested, ought to
have- he-en left free to the States—sue-it as imicome tax amid estate duty ta~r. As
to that, it is enorigim to reply tlmnt time Commommweaith did not enter either of these
fields until compelled to do so by time financial obligations entailed on it by the
Great War. Time Estate Duty Act was passed in December, 1914, and the tirst -
Incommue Tax Act in 1915. It -was for such emerge-mime-s mis timis th:mt it was
universally recognized by the framers of the Constitutioum that all fields of taxation
must be available to the Conmmonweaith. -
The suggestion (in paragraph 136 of the Case) thmat time- Financial Emergency
(State Legislation) Act 1932 indicates a probable extension of time Comnmimmonwenith’s
taxing powers -to- cover control of State taxatiom~ is quite groundless. The
preamble to that Act makes it clear tima-t it is founded upon time necessity, in “
“protect time revenues and credit, and the financial and economic stability of the
Commonwealth, by temporary inca-sure-s ~of an exceptiomual character Time
“.
particular danger that the Act was designed to meet passed away within 24 imours,
so that the Act never took effect, and the-high Court was never-called upon to
pronounce upon its validity. There is no reason to believe timat it could have
been supported by t}me-taxatioupower. It is true that, after the fashionof legal
pleading, the title of the Act calls in aid everytimimmg that could be thought of,
-
26
20 C.L.R.- 54) in wimich it purported to exercise its judicial power, the High Court
held that the Parliament had no power to make time interstate Commission a Court,
or to give it judicial power. This left it as practically nothing but a standing
-
Royal Commission; and on the expiration of the seven-year term of office- of-- its
first members the Conmmonwealth Government did mmot make any further
appointments, and the Commission therefore lapsed.
It could be brought into being again by the appointment of Commissioners;
but of course the decision of the high Court that it cannot be given judicial power
still holds good, and under the Constitution as it stands time Commission could be
little more than an immvcstigating body, without effective power to deal with ammy
abuses that migimt be disclosed.
The Constitution, however, is capable- of amendment. If a clear expression
of opinion came from one or more States for sue-hi an amendment as would enable
the- Commonwealth Parliament to give the- Interstate- Commission the necessary
power, there is no reason to believe that such an amendmnent might not be made.
A matter sue-li as this clearly affords no ground for secession—especialiy as the
State hums not yet explored the remedies available within the Constitution.
AMENDMENT OF THE CONSTITUTION.
The Case summarily rejected the idea of any amendment of the Constitution
as an alternative- to Secession (paragraphs 572—577). -
The authors do not seem to deny the practicability of the Constitution being
amended; indeed, it would be hard to do so in view of the fact that it has already
been amended three times. But they allege that the Constitution cannot be
amended so as to remove- Western Australia’s disabilities; and they try to prove
this by a series of ingenious arguments, ‘which, however, are vitiated by ma-ny
fallacies, and which we proceed to examine.
They divide the disabilities suffered by Western Australia under Federation
into two c1asSe9~— -
Class 1, they say “-has arisen out of the unlimited and unrestricted exercise by
the Commonwealth of its taxing powers and spending powers. “As the Common-
wealth Government has always opposed any interference- with these powers, and
as an amendment has to be initiated by the Commonwealth Parliament, “it is
obvious that in practice any proposed amendment of the Constitution which is
resisted by the Commonwealth Government has no prospect of be-coining law.”
Now let us look at a few of the fallacies involved in this strangely confused
argument.
In the first place-, the alleged disabilities of the States are not said to arise
from the existence of the Commonwealth powers, but from their exercise by the
Commonwealth. It does not appear therefore that the ne-ed for amendment of
the Constitution necessarily arises, if the Commonwealth Parliament can be made
to limit its exercise of the powers.
Now the Commonwealth Government is dependent on time support of time
Commonwealth Parliament; and the Commonwealth Parliament is elected by
the people of the several States, and is dependent on their support. If, therefore,
the people of the States, or enough of the-rn to elect a majority in either House
of the Commonwealth Parliament, really want to limit the exercise of time-se powers
by the Commonwealth Parliament, nothing is more certain than that the
Parliament will limit that exercise, and wifl defeat any attempt by the Common-
wealth Government to extend it.
But, for the sake of argument, let us assume that there is—need for amendment
of the Constitution to limit the taxing or spending powers of the Commonwealth.
The Case assumes that because the Commonwealth Government has in the pa-st
28 -
of high protection suits time Eastern States, which comprise a majority of the
“
Time authors of time Case assume flint Western Australia wants, and will continue
to wamit, a free-trade tariff; and timat the est of Australia wants, and will continue
1
to want, a higim protectionist tarifi.
Unless botlm of these propositions arc f-rue, their main argument for Secession
- breaks down entirely. And neitimer proposition has been established.
COMMONWEALTH STATES AND PEOPLE.
The Case is fnll of smiggestions of opposition between Commonwealth arid
States, as if the Comnmonweiultlm were a foreign country, and powers surrendered
to time- Cornmommwealtli were lost to time People- of tIme State-s.
It cannot be too frequently insisted that time-re is no such opposition. There
may be- opposition between - time Governummont of the Commonwealth and the
Gove-rnme-mut of a State-; but to a citizen of a State, who is also a citizen of the
Commonwealth, Commonwealth and States are- not in opposition, they are the two
halves that make up the whole of the- political rights of an Australian citizen.
At the Federal Conventio~iof 1897, a resolution passed at the outset of the
proceedings declared that the- purpose of Federation was “to enlarge the powe~
of se-if-government of time- people of Australia.” Sir Edmund Barton, in moving
the resolutions, said— -
separate unit by itself—to fe-nec itself out from the- remainder of a continent to
- which at present it has free economic access.
Time Case states, on time autimority of Professor Slmann, that the leaders of
Western Australia were- “pushed and cajoled” into Federation “by two forces
of external origin “. -
So strange an assertion needs some ovidence to support it; and the authors
essay to supply the evidence.
The of external origin” was the people of the Western Australian
first “force
gold-fields, who were overwhelmingly for Federation; and so strongly so that
the gold-fields slogan was “separate or fe-derjmte “. The only reason for calling
these people- a force- of external origin is that—like so many other good Western
Australians—many of time-rn had originally come from the Eastern States. But
~ they had thrown in their lot with We-stern Australia, they were engaged in one
- of the most productive industries of the colony, they paid taxes and had votes;
-~ and it is hard t-o see- a reason for regarding time-rn as outlanders in this connexion.
~ They voted for Federation as citizens of We-stern Australia. The petrol in the
tank of a motor car is of external origin
“ “, but time force that drives the car
ij internal combustion. The people- of the gold-fields were as “internal” to
-: 5Western Australia—were as much part of Western Australia—as the people of
Perth. Moreover, one- fact seems to have- escaped the- notice of the- authors, though it
stare-s them in time face in-the pages of the- Case itself; the figures of the referendum
of July, 1900, shmow that if the- gold-fields vote is struck out altogether, there was -
~ still a majority in the rest of the colony in favour of Federation. A small majority,
it is true ; but a majority. So that time rest of the colony was not dragged at the
heels of the gold-fields ; it merely had its verdict more- emphatically confirmed.
The second “force of external origin “, we learn, was Joseph Chamberlain,
then Secretary of State for the Colonies. When the Governnme-nt of Western
Australia was unwilling to submit the Federal Constifution to time electors,
Chamberlain, in a despatch to the Governor~gave some fatherly advice :—
“I would now urge your responsible- advisers to consider earnestly
whether, in the best interests- of the colony as well as of Australia, they
should not make a resolute effort to bring the colony into federation at
once.” -
He gave some excellent reasons for this advice: That unless We-ste-rn Australia
joined as an original State, it would (on joining later) lose time temporary protection
offered by section 95 of the Constitution in the form of interstate tariff for five
years, and might not secure as large a representation in the Federal Parliament;
and there was also the agitation on the gold-fields to consider. Ho then repeated
his advice to Ministers, a-s ~fohlo~vs
:— -
and gave his reasons for advising the-rn, to submit the question of Federation to
the electors. Western Australia was a responsible colony, of ten years standing.
The Government was under no obligation to follow any advice tendered by. the
Colonial Office. We have benn told a few pages earlier in the Caso—
on the au imority of time same professor—that “ hmckily the grant of Responsible
Governmemmt freed the courage- of Jolmim Forrest from the curb of Westminster.”
And yet we- are asked to believe that J01111 Forrest was “ pushed and cajoled”
by a letter of advice from Downing-street. Is it not better, and more just to the
dead statesman, to believe that lie acted under an hone-st conviction that to
consmmlt the people- omm time qimestiomu was the might timing to do ? The events showed
that it was time right timimug and that tIme Government, in its opposition to
Federation, had been out of step with the people. -
Later on (paragrapim 153) time Case tells us that “the States—and particularly
the less populated Statcs—foummd themselves obliged to consent to the alteration
of time Constitution by time insertion of section 105A.” Why this suggestion of
coercion ? All time State Governments in conference with time- Commonwealth
agreed to the- amendment ; all the Parlianiemmts approved it ; time peoples endorsed
it. Surely the- authors of time Case ummder-estirnate time good sense of the people
of Western Aumstrahia, and their mammiimmess, wlmon they suggest that their votes
were due to coercion and duress. Time Government, time Parliament, and the
people voted for time amendment be-cause timey tlmought the amendment was
advantageoums and its acceptance wise-—a view which, as shown elsewhere, was -
abundantly justified.
We cannot refrain from observing that these suggestions of cajolery and
coercion strengthen the impression, which perusal of the whole case confirmis,
that it is written in a strongly partisan spirit, with an eye for one side of the case
only. - . -
By a curiomm~ irony, time authors arc compelled to rely, ior the material of
this elmapter, entirely upon time- writing of two gentlemen, Mr. A. P. Canaway and --
Mr. T. B. Ashwdrth, botim of whom are confirmed unifleationists. Mr. Canaway
is a unificationist of nearly 40 years standing, and predicted the failure of -
Federalism in Australia before Australia was federated. Both of them are -
strange witnesses to be put into time box in favour of disunion. The authors of -
the Case see this embarrassmg Ia-ct, and naively remark that “it is not beyond
the bounds of possibility “. that if these- two gentle-men read the “ Case” they
would concede “the desirability of two umnitary systems—one for Western -
Australia, and one for Eastern Australia “. This see-ms rather a slender hope on -
which to put into the witness-box, in support of a divided Australia, two advocates
of a unified Australia. -
The lengthy extracts from time writings of these two witnesses deal wholly
with theoretical objections to the Federal System as such : its complexity ; its
division of responsibility and vision; and point out the various ways in which -
a Federal union falls short of the perfection of a complete union. Their conclusion
is that Federation is unworkable in Australia. The answer to them is that ib
works. -
did not want unity; and they- joined in framing and accepting a Constitution
under which they would be one- for national affairs, and six for local affairs. Under
that Constitution they have known both prosperity and adversity. To prove
that Federalism has failed, critics must simow either that it has retarded prosperity,
or cnlmanced adversity. They do neither. They take- all the gains for granted,
and ignore tIme-rn. But every reverse in fortune, to whatever cause due, they
ascribe to Federation. -
Another witness from whom, in paragraph 136, they quote (not quite
correctly) an isolated sentence in slmpport of time-jr contention that judicial
interpretation is sweeping Australia towards umnification, is Professor K. II. Bailey.
But Professor Bailey’s main conclusion, in time- paper to which timey refer, is that
time Fathers of Federation succeeded in the main objects of their endeavour “.
- His second coumc-lusion is
r1~lmat co’rnmunitics which establish federalism, i.e., which desire to
become one for some- purposes, but for most purposes to remain independent
—must ~neccssarily pay for that cherished independemmee- in the hard coin
of ‘ constitutional i)rObleflIS ‘—problems of rigidity, of (lemarcation, of
balance- of- aumthmority. Logically, indeed, federalism might seem to be
essentially impermanent and traditional—a ste-ge- in a transition from
complete- independence to complete- unity. Histom-ieally regarded, federalism
is seen to be a plant with a very tenacious life of its owmm. But eve-n more
than with other forms of government, that life has always to be
maintaimmed through contest.”
Professor Bailey was clearly not the right witness for time author of the Case
to cnh. S -
- — CIIAPTKR V.
- - The Secession Case rests largely on the financial argument. The impression
~M ~ought to be Create(1 that the Conunonwenith draws revenues from Western
Australia witlmommt giving the State an adequate return. It will assist towards
a just appreciation of time position if we set out the pertinent facts in the history
of Commonwealth and State relations. -
Jim 1909 tIme Commonwealth assumed responsibility for old-age and invalid
pensions thus relieving the States of that financial liability. This increase of
- Commonwealth obligation accelerated a chm~ngein the basis of allocation and
accordingly, on the expiration of the- l3raddon Clause in 1910, it was agreed
between the Cornmommwealtim and the States that; in lieu of three-fourths o time
net customs and excis~re-venue, time Comnmonwealth should pay to the State-s 25s.
- per head of population. - - -
In the first complete year of the new system time States ,received £5,824,000
as compared with £8,089,000 for the last complete year of time old system. Timis
sum was less by £2,265,000 but the- reduction was practically off-set by time
additional charge on time Commonwealthm of £2,150,000 for old-age- pemisions. Time
- 25s. per head was eormtinnme-d until 1927 although time Commonwealth bad time
power to vary paynments after 1020. -
32
WAR GBLIGATI0NS.
Dmmring the period of per enpita payments time war had happened; and- this
catastrophe drasticahlj, altered the financial position. At the end of- June,
1914, the Commonwealth debt stood at £19,000,000. At the-end-of 1922 it had
risen to £361,000,000. Of this total, £333,000,000 was on account of war; the
sharge on reve-nmme for interest, war pensions and the multifarious repatriation
services the-n approaclmiag full development, was £31,000,000.
-
In the face of sine-h humge- war obligations it is useless to talk of the financial
relations of time Commonwealth and States as tlmough the war had never-happened.
Yet the We-stern~Australianargument in the- Case practically ignores the war and
its burdens. -
FINANCIAL AGREEMENT.
The war charges were but slightly reduced when the discussions opened which
ultimately resulted in the- adoption of the now famous Financial Agreement.
Summarized, time Agreement amounted to this :—
In lie-u of paying the State-s 25s. per head :—
(a) Commonwealth assumes responsibility for State Debts.
(bi Comnmnonwealth pays State-s £76 million per year- for 58 years -
wealth to time States of about-. £984,000 a year (to Western Australia, £89,000~i.
but what is more important, it carried the-constitutional assurance of permanency..
Apart from payments imnder the Financial Agreement, regular Commonwealth
payments to time States have increased under other headings, notably, special
-
— - - - 1920—21. 1933-84.
£ £
Per capita payment .. ~. 6,600,000
Contribution for Interest- .. .. .. 7,585,000
Contribuition for Sinking Fund .. .. 1,290,000 -
- 6,840,000 .. 13,372,000
If to the payments set out in the table above we add the liabilities of invalid
and old-age pensions taken over from the States the comparison is
19Z0—2i. 1033—34.
£ £
Payments to States plus Invalid and -
or a total bf .. .. .. .. 53,300,000
All Otimer Services, including adnmimmistration of ordinary
departments ; not loss on the Post Office- and other business
undem-takings amid terrmtories; new works, bounties, and
- other charges - .. .. .. .. .. 5,200,000
When, therefore, it is complained thimt taxation is high end that the difficulties
of State finance are considerable, time ummagnitude of the Comnmonwea-lth’s
responsibility for War, Defence, Paymne-nts to States, Old-age and Invalid Pensions
and Maternity Allowatices—-which together cost £50,000,000 a ycar—should be
‘iven the weight which properly attaches to the-mn in any discuission on Common-
wealth and State relatiommships. If this is done it becoimmes easy to mnmiderst-mmnd
why the Commonwealth requires to draw large re-venues from customs and excise
and also why it has been obliged to invade fields of direct- taxation which, before
the war, were left free to time States.
SPECIAL GRANTS.
From- the beginning of Federation, Western Australia has, by reason of its
disabilities, been the subject of special financial treatment. During time- first five
years, in addition to its ordinary proportion ‘of the customs and excise revenue,
the State was allowed the proceeds of collections on imports from the otbmer States.
In 1910, when the per capita system was adopted, the special eircutmmst-ance-s of the
State were recognized by time provision of a special payment for a period of ten years,
commencing at £250,000 for the- first year and thereafter in sums dimnirmislmimmg by
£10,000, a year. In 1925—26 the grant was me-eased from £100,000 to £450,000
for that year, then fixed at £300,000 a year for the foJiowing six ye~mrs,imioreased
in 1932—33 to £500,000, and increased again in 1933—34 to £600,000. The-so grants
have aggregated over £6,000,000.
3985.—2 ‘ -
34
- OTHER GRANTS.
In addition to these special grants, aggregating £6,000,000, the Commonwealth
assisted Western Australia by payments in the following connexioums :—~ £
Towards meeting losses on Soldier Settlement .. .. 1,478,000
(On equal sharing per head with the otimer States this
- would have bee-nm £1,030,000. Western Australia, there-
fore, received an addition of £448,000). -
Total . .. .. .. .. .. 4,200,000
ROAD PAYMENTS.
But this is not all. We must also note the Commonwealth grants to Western
Australia for road improvement. Such grant-s since 1926—27 have amounted to
£3,060,000, of which about £1,800,000 was contributed by the Stated of New South
Wales and Victoria. The basis of allocation gave special consideration to the
extent of Western Australia’s territory. If the distribution had been made on m
per head basis, Western Australia’s share probably would hardly have been more
than £1,000,000 for the period, instead of the actual sum of £3,060,000.
FINANCIAL AGREEMENT.
In the first year of the Financial Agreenmermt, 1927—28, Western Australi&
reoeived under the terms of that agreement £562,000, or £89,000 more than the
£1 5a. per head paid in the previous year. In the seven years the agreement haa
operated the aggregated increase over per capita payments was £508,000.
2,375,000
Expemmditure— £
Governmental—
Education 579,000
Police .. - 198,000
Medical and Charitable 476,000
Unemployment Relief 357,000
Other 707,000
* 2,317,000
Less receipts 812,000. 1,505,000
- 3,239,000
Compared with 1927—28 this loss has increased by over £1,000,000 arisin
mainly from land settlement and State trading enterprises. The capital of Stat,1
trading enterprises (shipping, meat works, impiement works and other) at 30t1
June, 1932, amounted to £3,553,000 and ascertained losses were £1,030,000. 0~
£10,000,000 a ient on Group Settlement £7,500,000, on tho estimate given by th,
1
Chairman of -the Agricultural Bank Board at an inquiry, are regarded si
irrecoverable. “As a result of unwise spending of borrowed money said ~h “
James Mitchell in his Budget Speech (1932—33) “We are- burdened with a heavy
debt.” -
The growth of that debt is shown in the table contained in Appendix 11-
From this it will be seen that the debt doubled in thirteen years and is £188 pet
head or more than 50 per cent. above the Australian average of £122 per head,
If semi-governmental indebtedness is added it is £192 per head; average for at
States; £132 per head; Western Australia being approximately 50 per cent. abov~
the average for all the States.
It is not our function to comment upon the State’s borrowing or spendin
policy, beyond noting the growth of time debt and the extent to which losses 011
loan services account for the State’s deficit.
ADJUSTING TAXATION. --
Western Australia was a party, contemplated more or less uniform sacrifices iii at
the StateM in order J;o bring income and expenditure closer together and t-o provid
relief for the unemployed. One of the sacrificial measures took the form ii
emergency taxation. In the first year of the operation of the scheme the othef
States collected between them £9,000,000 in relief taxes with rates on itmcomei
up to is. in the But Western Australia in that year imposed no emergency
£.
taxation. Next year a tax of only 4~d.in the £ was imposed, but this ws
increased in 1933 and now ranges from 4d. to 9d.
In his Budget Speech (1932—33) Sir James Mitchell said :—
“I believe it is better to have a temporary deficit and wait bett~
times than to face increased taxation Our taxatiol
is lower than that of the other States
“.
incomes from personal exertion Western Australia is taxing below the average 01
incomes of £300 and over, below the average on incomes from property in every
ease, and below the average on company incomes generally. (See Appendix ~i
PURPOSE OF TH~CHAPTER.
The purpose of this chapter has been t~bring out simply the following points :—
That during the Federation period, on public financial account, th~
Commonwealth has paid to or for Western Australia a total sum largely ii
- excess of the total amount which it has received from the State in revenuet
That the growth of State indebtedness has been at a much heavier r&ti
than that of any other State. - - -
That the budget deficits which have embarrassed the State Treasury
‘in recent years are accounted for by the heavy losses on State loan service -
CHAPTER YL
seldom that the value of a great measure of public policy has been so completely
vindicated by later events. The consolidation of Australian financial obligations
did not, of course, save Australian stocks from all the repercussions of the panic
which accompanied the onset of the depression, but it provided the fulcrum by
which one of the heaviest loads of the depression was lifted from the Australian
financial structure.
- -
Had all the debts of Auslralia been in their previous unco-ordinated condition,
the orderly conversion of all the internal obligations into a consolidated stock, -
bearing a lower rate of interest, would not have been possible, and the
recent conversions of £110,000,000 of the oversea debt, ii possible at all, could
certainly not have been accomplished with the same ease and with the same -
The Case says (paragraph 154) that financially “ the States are- tied to the
chariot wheels ci the Commonwealth It might as truly be said that the Common-
“.
wealth is tied to the chariot wheels of the States. The Commonwealth, like the
States, is bound by the Financial Agreement and the decisions of the Loan Council,
which is representative of both Commonwealth and States. The real truth ii
that Commonwealth and States, who are all travelling iii the same direction,
have wisely agreed to ride in the same chariot..
- CHAPTER VII.
The ability to rely for finance upon banks whose branches are scattered
all over Australia, gives a greater stability to Western Australian affairs than would
be possible if all finance were provided by local banks. It is true that trading
banks operating in Australia would probably have branches in Western Australia
-even if it seceded from the Commonwealth, just- as some Australian banks now have
branches in New Zealand. But, the Commonwealth Bank of “Australia, acting
-
Bank, and. the reserves which it placed at the disposal of the trading banks, the
contraction of credit in Australia would have beca so severe as to paralyse industry,
and undermine confidence in the banks themselves.
It was because of the strength and prestige of the Commonwealth Bank that
it was able to come to the assistance of the trading banks without in the least
undermining confidence, or causing panic or hysteria. Not only did the Common-
wealth Bank keel) the banking system supplied with liquid reserves, thus avoiding
a crisis in Australian banking, but it also prevented a crisis in Australian
Government finance. From November, 1930, to November, 1933, it was
impraCtieal)le for Governments to raise long term loans in Australia, During -
violently, the Commonwealth Bank agreed to purchase all funds becoming available
in London at a rate of £125 Australian per £100 sterling. Since then the rate of
exchange has remained fixed at the purchase price announced by the Common-’
wealth Bank. In the absence of the Bank’s support, there can be no doubt that.
the rate of exchange would have fluctuated violently, causing great disturbance
to Governments, primary producers, merchants, and manufacturers.
A CENTRAL BANK FOR WESTERN AUSTRALIA.
In what way has all this affected Western Australia
? Had Western Aus-
tralia not been part of the Australian Commonwealth, the services of. the Common- -
wealth Bank as a central bank would not have been available. Western Aus-
tralia might have had its own central bank, but in strength and prestige it could
not have hoped to rank with the Commonwealth Bank of Australia. It would
have suffered from the same -defect as banks in the United States of America, in -
have been very much less than the resources and strength of the Comnmonwealth
Bank of Australia. It would have been more difficult for a small central bank
to provide the trading banks with central banking reserves in which- they could
have confidence, and it would have run a greater risk of creating panic or hysteria,
Africa. - -
EMERGENCY FINANCE. -
It would be easier for the public to lose confidence in a small central bank
engaged in the task of financing Government deficits and loan expenditure, during
an emergency, by means of Treasury Bills or other central batik credit.
- 8o far as the present depression is concerned, not onl~rwould ‘the resources
and prestige of a central bank in Western Australia have been less than- those of
the Commonwealth Bank, but demands made upon it would have been greater. -
Out of the total amount’of Treasury Bills In Australia (£52,000,000) flO less
than £7,000,000 have been issued on behalf of Western Australia. One-seventh
- to one-eighth of the total of Treasury Bills has therefore been made available for
a population of only one-fifteenth of the total of Australia. -
Of the floating debts provided in London, Western Australia has also had
more than its share on a per capita basis. The Commonwealth Bank has made
available to it £3,000,000 in London, vthich is one-eleventh of the total for the
Commonwealth and all States of £33,625,000. -
which Western Australia has shared. In conjutiction with the Loan Council, it has
helped to float loans on the domestic market, ahd generally has taken action
calculated to revive confidence in Australian securities at home and abroad. It
has been successful in its efforts to reduce rates of interest, which has made it -
- —~ -,
C) - -
CHAPTER VIII.
- - - THE TARIFF. - -
The fact then that the tariff is cit-ed as supplying the main reason for
abandoning the Federal Union justifies its in examining the statements
and arguments of the Case in some detail. At the beginning it is perhaps well to
emphasize the obvious, ann point out that the tariff is a matter of political policy
which may and does vary from time to time in accordance with the expressed
will of the people and that, good or bad, it has nothing whatever to do with the
principle of Federation. Nor have we any concern with the abstract merits of
free trade and protection as such. That being so there are limitations to our
discussion of some aspects of this section of the Case, which is conceived in the SI)lrlt
of a freetrade tract, although it is permissible for us to repeat what we have said
in an earlier conriexion that free trade, whatever its merits, is no longer the working
doctrine of any country and that, whether we like it or not, we are now h-~ing
-
more important .in Western Australia than in the Eastern States. On the other -
hand, fixed investment has probably borne a relatively greater share of the burden;
in the Eastern States. Probably the gross economic costs of the tariff are not --
very much greater per head in Western Australia than elsewhere, On the othei~ -
hand, with regard to the economic benefits of the tariff, the position is admittedly
much more favourable to the Eastern States. It is important to remember, -
however, that the benefits are only partly economic, and that in large measure~
they are concerned with the fulfilment of non-economic but worthy ideas which
are cherished by East and West alike.
- “EXCESS COSTS.”
Professors Gibhin and Brigden, in giving evidence before the Royal Corn.-
mission on the Constitution, said, with reference to the excess costs of local pro-
tected production :— -
- the benefits of which are gained almost entirely in the States where they
are received .The benefits we refer to are not economic bçi~iflts~
. . .
forthis would imply that protection imposes no costs upon the eominunity.”~
They also remarked, with reference to their allocation of costs and subsidie~:
between the States -
- on account of the tariff, even if they are accurate, would not really be ~;
-
- - measure of actual gains or losses to the States, but only a rough indication
- -
43
Percent~tgsof
Tear. Free. Dutiable. Customs Duty. Duty on
- Dutiable Import~.
£ - £ £ %
1922-23 .. .. 43.7 87,9 22.6 25.7l
1923-24 .. . • 43 97.4 25.1 25.77
1924—25 .. .. 49.8 96.8 26.4 27.3
1925-25 .. .. 55.4 - 95.8 27.8 29.0 -
rates per unit of quantity naturally rises, even when the rate~of duty are unaltered.
The eftect of taking these two factors into account is illustrated in the following
table compiled in the office of the Commonwealth Statistician. In this the
,ourrenoy values have been placed on a comparable footing (column B), and only
the six most important revenue items have been eliminated from the calculations
(columns C and D) :— -
A n. C. B.
Yesx. As Given In After Converting After Eliminating Aft-er Adding
Western to Uniform Six Largest Prima,ce to
Australian Cue. Currencies, Revenue items. Column C,
The table -is illustrative only. Column C shows the percentage of duty
collected to the value of imports of protected goods and of some goods subject to
fairly low revenue duties. Pritnage duties have been included in column D, but
while to some extent protective in effect, they were primarily revenue in character,
and are even now being reduced as opportunity warrants.
It is not suggested that the above table provides a measure of the height of the
tariff, or of changes in its relative height from time to time. It does not. No -
table showing only the percentage of duty collected to value of imports will do
this, because the composition of any year’s imports as between high-rate and
-low-rate goods is constantly changing, and is affected by the height of the rates
themselves. The table is useful, however, in demonstrating the futility of the
methods used in the Western Australian Case, and the way in which apparently
straightforward statistics can be used to bolster up preconceived ideas.
PROPORTION OF REVENUE AND PROTECTIVE DUTIES.
The large proportion of customs duty collections which is revenue rather than
protective in character is set out in the following tables recently compiled by the
Commonwealth Statistician , - - -
STATEMENT SHowING
THE DIvISIoN OP CLEARANCES OF IMPORTS AND CusToMs
DU’rIEs INTO PROTECTIVE AND REVENUE CLAS~ES. (CLASSIFICATION
ACCORDING TO SCHEDULES FUItNISILED BY THE DEPARTMENT OF TRADE
AND CIISTOMS.)
Total .. (u)22,420 (m)88,032 50,008 2,392 10.7 13,2112 40.2 - - 15,684 28.0
(a) Excluding Goods, Free Mo.lmportsd. and for ti,e of Commonwealth Onvernment, &c.
(b) Excluding Extra, Special, Primage and Industries Preservation Act iltitie,.
- - 45 - -
Total .. (a)29,804 (a)40,501 70,864 2,937 9.8 14,491 85.8 17,127 24.6
(a) Excluding Goods. Free lte.linported, and to! use of Common-wealth Government, &o. -
(b) I~xcluding1~xtra,Special, Primage ailS Industries J’rcaervatlon Act DutIes.
In discussing the increase in the tariff from 1913 to 1921 the-then Conimon-
wealth Statistician (Mr. Wickens) is quoted in the Case as saying (paragraph
419)— -
“(1) Taking in the case of the imports of 1913 a composite unit which
- had all been cleared for consumption within that year and in respect of
which the duty paid on such clearance would amount to £13,000,000 under
the then existing tariff, the same goods at the same import prices would have
paid under the tariff of 1921 (the Masey Greene tariff) duty amounting to
£25,000,000, representing an increase of 92 per cent. in the average duty
per unit of quantity.” -
From this the ~nwary reader might be led to believe that the Massy Greene
tariff of 1921 practically doubled the level of the 1913 tariff. Even if it had risen
- by 92 per cent.—the figure quoted from the Conznwnwealth Year-Book of 1922—
the absolute rise in the tariff level would not have been great, since the 1913 tariff
‘was itself very low indeed. But the c~uotationfrom the Year-Book does not
support even this conclusion. The opening sentence of the very paragraph from
which the quotation is taken states: “In a consideration of the Tariff changes in
relation to protection it is necessary to place such changes on an ad vak,renl basis
in order to show the increment to cost represented by the Tariff.” The estimated
rise on this basis between 1911 and 1921 is given on the same page of the Year-
Book as from 17-08 per cent, to 22 ‘46 per cent., i.e., a-rise of 32 per cent., not
-92 per cent. Why, for the purposes of a denunciation of Australia’s policy of
-
protection, the authori of th. Can should select an estimate prepared by the
46
Commonwealth Statistician explicitly “for other purposes” only they can explain.
Incidentally they omitted to add the last paragraph on this same page of the Year-
Book calling attention to the subsequent substantial reductions in the duties on
fencing wire, wire netting, galvanized iron and tractors.
Again, in paragraph 420 of the Case reference is made to a document prepared
for the International Economic Conference of 1927, estimating the 1925 level of
the Australian Tariff as 145 per cent. of its 1913 level. The reference has very
obviously* been drawn from The Australian Tariff (p. 156), but the authors
of the Case are apparently not interested in the Tariff Committee’s further statenient
that: We do not endorse the flgure~quoted, and they are used as they wore
“
intended to be used, merely to illustrate the general position” (p. 158). Nor,
apparently, are they interested in the many qualifications expressed in the original
document, or the definite statement that : A large margin of error must be
“
allowed “ (p. 11). They neglect also to point out that, in the final summing up
in the original document, the 1925 tariff level of Australia was placed at a lower
figure than those of Spain, the United States, Argentine, Hungary, Poland and
Jugoslavia. Even for n~nufacturcd goods only, Australia’s tariff level wa~
exceeded by those of Spain, the United States, Poland and the Argentine (pp. 16—17).
In paragraph 432, the authors of the Case have reproduced from the Circular
of the Bank of New South Wales for May, 1933, a graph purporting to show the
movement in Australiali farm and industrial prices from 1927 to the beginning
of 1933. On it is based a statement that” the burden of tile tariff on the unsheltered
industries has relatively increased.” The graph is not continued beyond 1%iarch~
1933, the very month in which the prices of primary products generally reached
their lowest levels. The very substantial rise in the following twelve months is,
totally ignored. In selecting for their purposes a circular twelve months old
they presumably were not cognisant of the following passage in the same Bank’s.
circular for October, 1933 :—
From time to time there has appeared in this Circular a graph of
‘Australian Farm and Industrial Prices.’ The publication of this graph
was discontinued because the data on which it was based were not entirely
satisfactory.” . -
The Commonwealth Statistician has also called attention to the misleading nature
of the indexes which were used to compile this graph.
No really satisfactory indexes have yet been compiled to depict the relative
movements of farmers’ prices and farmers’ costs. A graph has been included
below, however, which does give some idea of the position, The following notes- -
on the indexes should be read in conjunction with the curves to which they refer :—
PRIMARY PRODUCERS’ PRICES.
- Ezpoct Price.lndex fur Western Australia —This new index has been compiled by the Conimonwealtli
Ststistician. and includes the export parity prices of wool, wheat, butter, beef, lamb, tallow, currants, silver
lopper and gmd. weighted in proportion to their relative importance in Western Australia’s exports of 1932—~3.
PRIMARY PRODUCERS’ COSTS.
Indsx of &leefed Retail Prices, Perth—The Index Includod in the graph has been complIed by combining the
retail prices colie-cted iii Perth by the Commonwealth Statistician for groceries, clothing, manchester goods,
and household geer, three eroups giving a fair representation of the articles bought retail by primary producom.
Index of Wiokoale Pciees of lion-rural Comsncedties, ‘~ydn&t,—Th1sIndex Is compiled by the Government,
Statletielan -of Now South IVaics, and includes grocerIes, metals and coal, building materials, chemicals, cotton,
leather and lute goods. it ii not entirely satisfactory for the present purpooe, but has been included In default of
better information, -
mdcc of A~m-ievlturaland Pastoral Woge Rates, Western Australfa.—ThIs index Is complied by the Cons-
monwesith Statistician, it Is an unweighted average of eleven rates, of which four are “ predomth’ant” ratea
seven State Award rates, and five Gommonweait-h Award rate,,
hider o it’agea ~n Oolst-ninlng, Weote~Australia.—ThIs index has been specially -compiled from data
collected by tIme Commonwealth Statistician. It is an unweighted average of thirteen rates, all fixed by awards
of the State Court. -
1’
cm,
cm)
(t)
ci
,‘~
0
(5)
0)
0)
N
S
0)
0 0
0 0 0
0 N
48
it is at once evident that this graph tells a very different story from the graph
reproduced in paragraph 432 of the Case, and now withdrawn by its original authors.
It does not show that the gap between primary producers’ costs and prices has
been closed, but it does indicate that the gap in Western Australia is very much
narrower than is commonly believed, and certainly very much narrower than the
authors of the Case have attempted to show.. ‘l’lio export price index shows a
decline of a little over 20 per cent, fr~imJanuary, 1928, to the present time. Over
tho same period the selected retail prices have fallen slightly less, and agricultural
wage rates to about the same extent. Other price~s,rather inadequately represented
by the Sydney index of non-rural commodities, appear to have fallen only by about
11 per cent. The index of wage rates in the gold-mining industry (which is, of
course, represented in the export price index) has fallen by only about 8 per cent.
As this index is based entirely on State Awards, and Agreements, the Eastern
States can hardly be held responsible for ith failure to decline in sympathy with
other wage rates and retail prices.
It is typical of the state of mind revealed elsewhere by the authors of the Case
that the very substantial tariff reductions made by the Lyons Government receive
only scant ond grudging admission. They maintain, also, that the present level
of the tariff is very much higher than it was under the 1928 Bruce—Page tariff.
PRIMAGE REDUCTIONS.
Substantial reductions have also been made from timo to time in the primage
duty charged on goods used by primary, producers, and in many cases such goods
have been exempted altogether from primage duty. These reductions and
o’emptions have been of great benefit to primary producers. It is not necessary
to present their detailed history here, but reference will be made in. a subsequent
~sction of this chapter to the extensive list of goods used in primary production
which are at present entirely exempt from primage, orsubject.to the low rate of
4 per cent.
Quito inconsistently the authors of the Case complain bitterly of the effect
of the current rate of exchange in improving the competitive position of Australian
manufacturers, but remain practically silent on the greater benefits It confers on
export producers. They are ‘unable to ignore, of course, the action of the
L’ommonwealtli Government in giving effect to the Tariff Board’s recommendations
49
designed to remove the protective incidence of exchange and prilnage, but they
attempt to depreciate even this great contribution to the objective of a more
moderate tariff. The immediate effect of the legislation passed to give effect to the
Board’s recommendations was the lowering of all protective ditties tinder the
British Preferential Tariff by a quarter at the duty or an eighth of the value for duty,
whichever was the less ; and the reduction, of primage duty on the same items
from 10 to 5 per cent. ‘rue number of itenis on which duties were so reduced
amounted to the large total of 839, the reductions on account of both duty and
primage ranging up to a maximum of 17~~ cent. ad valorcnt. The Minister
for Customs remarked at the tune that this ropres~nted the greatest single “
The reductions made in the existing tariff as compared with the Scullin
tariff provide a sufficient answer to this assertion. The answer can be strengthened
by considering the level of the existing tariff in relation to the Bruce-Page Tariff
.of 1928.
AN INESCAPABLE CONCLUSION.
The inescapable conclusion from these analyses of the tariff is that the
4xisting rates of duty are very much lower than those ruling under the Sculhin
Tariff ; and, as far as the British Preferential Tariff is concerned, possibly lower
than the Bruce-Page Tariff of 1928. While the General Tariff is admittedly higher
than the Bruce-Page General Tariff, the cause of the increase has been very largely
the desire to extend the preferential margin in favour of British manufacturers.
Added costs from increases in this margin are uosts of preference rather than
costs of protection, and preference has been extended solely with a desire to assist
Australian primary producers in securing markets for their exports in Great Britain.
Tariff
t~9of
Items
400 — I I I •
350
1/
500
250
1~’
200 I
I
150 I.
moo
50
• 5% ~ I I I I I I I I
C
RATE or DUTY
/
/
/
I,
‘S
I
/
150
too /
— —
no /
——
C ~“1’ I
5% • 0%- ~$/..2O”/..25%-30%.35%.4O/,45%’ 5~%•55%.
RATE or DUTY
GENERAL TARIFF—
PROTECTIVE AD VALOREM RATES OF DUTY 1928 AND 1933.
Cumulative number of Itemna at or below the rate, indicateden the horizontal scale,
52
The vertical scale on the left of the graphs indicates the number of items or
sub~itemswhich were chargeable at or below the rate stated on the horizontal
scale. In interpreting the graphs, it should be noticed that a shift of the curves
to the right indicates that duties have been raised, and a shift to the left that
duties have been lowered.
From the graph for the British Preferential Tariff it will be seen that, although
the two curves for 1928 and 1933 have changed slightly in shape, the curve for
1933 is distinctly to the left of the curve for 1928 ; indicating that, on these items,
the present tariff is below the level of the Bruce-Page Tariff of 1928. In the graph
for the General Tariff, which covers the same items, the position is reversed, the
1933 curve lying well to the right of the 1928 curve. As has already been
explained, however, this is largely due to the application of the Ottawa preference
formula, and to the preference granted by the exchange adjustment on British
Preferential protective items.
because part of the £2,140,620 is (or would be, if the table were correct in other -
Attention has been called above to an inaccuracy resulting from the failure
to convert English currency values to Australian currency values in a part of
the table. This error was admitted by the Western Australian representatives’
in evidence before the Commonwealth Grants Commission, and revised tables
were submitted for 1931—32 and 193233. It would perhaps be fairer to the
Western ~Australian Case to take these corrections into account. In what fo’lows,
therefore, reference is made to the revised table for 1932—33, which shows total
“ excess costs” of £2,091,391.
In discussing this table in evidence before the Commonwealth Grants Com-
mission, Dr. Roland Wilson, the economist attached to the Statistician’s I ianch
of the Commonwealth Treasury, submitted that it provided no measure of the
excess costs” paid by Western Australia on its interstate imports. He said—
The ~undamental objection to the table is its assumption that the
“
goods (valued at £8,370,113) imported from other States could have been
imported from overseas for LA. (8,370,113—2,091,391) ; i.e., LA. 6,278,722
or £ stg. 5,022,978. That this is not true will be evident from a considora-
• ~ tion of the following facts -
of (let us admit for the moment) LA. 2,091,391, or LA. 8,370,113 in all.
- The table, by setting down LA. 2,091,391 as the excess costs” of Au~-
“
~ trahian manufactures implies that the sterling value of the LA. 8,370,113’
~ of the interstate imports wculd have been only £ stg. 5,022,978, and hence
assumes that Australian manufacturers did in fact take full advantage
,of the high exchange rate to increase their prices by 25 per cent., and did
take full advantage of the opportunities afforded to them by the tarifi
and primage duties. Both assumptions are at variance with the facts,
according to the findings of the Tariff Board and the views expressed by
the authors of Time Australian Tariff. They agreed that in the case of
• many local manufactures prices were much lower than the prices of corres-
ponding imported goods., Since that time competition between local
• manufacturers has becomi~more ilitense and costs of production have
-
been lowered. . . . -
“If this be true, it follows that the cost of overseas goods similar to
those imported into Western Australia from the Eastern States would
have been greater than £ stg. 5,022,978 or LA. 6,278,722. how much
greater it is impossible to say, but even a proper application of the methods
used in Time Australian Tariff, tentative as they wore, would give a very
much smaller amount for excess costs” than LA. 2,091,391.”-
“
54
that, because certain duties were collected on all oversea goods of a par-
ticular class, corresponding duties would apply proportiommntely to inter-
state goods within the same class. Iii addition, no allowance has been
made for excise duties paid on locally-produced commodities.
“The odd results to which the method leads may be seen from con-
sidering the calculations for three of the groups :— -
trahian table.
(o) Spirituous amid Alcoholic Liquors.—The calculations set out under
this head are almost equally unsound. The bulk of the
interstate imports consist of ales, beers and wines, on which
duties are relatively light. Time table assmnnos, however, that
these products are protected by a duty of l47~per cent., a
result obviously attributable to the fact that spirits, which
are subject to a very higim revenue duty, form the bulk of
Westermm Australia’s oversea imports. Iliad time excise duty
been ttm.ken into account, the percentage would. have been very
greatly reduced, as time proteative margins between customs
duties and excise are very much less than thecustotna duties
on spirits. They are negligible in the case. of ale and beer,
56
and though wines are not subject to excise, the local manu-
facturers do not take anything like full advantage of the
customs duties. It is difficult to estimate what the actual
excess costs paid by Western Australia amount to, but they
cannot possibly be more than a small fraction of the sum set
- out in time table.
- “In the two groups of ‘Tobacco’ and ‘Spirituous and Alcoholic
Liquors’ alone, time assumed duty amounts to nearly £600,000 out of the
total of over £2,000,000, and of this £600,000 only a very small fraction
represents excess costs
‘ ‘.If corrections were made throughout time other
groups, substituting time actual amounts by which Eastern manufacturers
have taken advantage of the tariff for the irrelevant percentages in the
table, it is certain that the total for excess costs would be very greatly
reduced. It is difficult to say by what precise amount in the absence of
the relevant facts, but the table as it stands is certainly grossly overstated.
“A few minor points of criticism may be added. There is a difference
between the Australian values (converted from sterling) on which Customs
duties are imposed on oversea imports, and the Australian values of goods
of Australian manufacture on which the £2,091,391 has been calculated,
Time latter include in many cases, primage and revenue duties on raw
materials which do not form a part of ‘excess costs’, In addition, the
column in the table headed ‘Duty Collected ‘is inflated by reason of the
fact that the column headed Oversea Imports plus Duty’ does not include
‘
primage, whereas the column headed ‘Interstate Imports’ does include the
-
“In addition to overstating the excess costs,’ nothing is set off against
‘
them for the benefits which Western Australia herself receives from the
/, tariff, by way of subsidies to the production of her own interstate exports,
(
some of which are sold under the protection of the tariff duties.”
In addition to those mentioned specifically above, there are many Australian
industries in which competition is very keen and efficiency vpry high, particularly
those producing foodstuffs and articles in common use. The more limited demand
arising from reduced purchasing power has made the competition even more
intense. The several successive good seasons in Australia have resulted in unusually
large production of primary products, and it is reasonable to suppose that the prices
at which foodstuffs are sold in Australia are not, as a general rule, very much
influenced by the tariff. The prices in these circunmstanees are probably as iow
as will permit the industries to carry on, and in some cases they are declared to be
below the current costs of production. In this connexion, it is worth noticing
that interstate imports into Western Australia in 1932—33 included “Foodstuffs”
(other than sugar) valued at £1,128,940.
In the industries manufacturing ready-made apparel, underclothing, hosiery
-
latter figure has been produced by methods rather similar to, but even more
inaccurate than those followed in estimating time £2,000,000. From the evidence
already adduced, there can be no possible doubt that even this lower figure is
greatly overstated. It would require a most detailed and exhaustive investigation
to discover to what extent the value of interstate imports is raised by reason of the
tariff. This has never been undertaken, and it is doubtful whether sufficient statis-
tical data are available to permit of even an approximately a,ccurate solution.
This should be kept full~yin mind in a consideration of the budgetary position in
which Western Australia would find herself if she were separated from the
Commonwealth, a question to which we address ourselves in a subsequent chapter.
rock salt comes in free- under the British Preferential Tariff and at only 20s. per
ton under the General Tariff ; while undressed timber for cases is also free under
the British Preferential Tariff and dutiable at only Is. per 100 superficial feet under
the General Tariff. Other Articles which are free under the British Preferential
- Tariff and dutiable only at tO per cent. under the General Tariff are rabbit nets and
netting, dog traps, and vermin traps, n.e.i. - -
Taken together, these items enter very largely into the working and handling
costs of agricultural, dairying and pastoral production. Fertilizers, bags and sacks,
wool-packs and case timber are particularly important items. The tariff certainly
- is innocent of any contribution to the “ burden” in these respects. -
Important items of mining requirements on the free list arc mining explosive~;
-
timber for underground purposes (under by-law); and the following articles coming
under the British Preferential Tariff; pneumatic drill-making and sharpening
machines, the larger types of dynamo electric maclihmes, hollow drill steel bars
(under by-law), mmd locked coil rope (under by-law). -
Let u~now inquire into the position of those three very important commodities
which figure so largely in the Case, galvanized iron, fencing wire and wire netting.
Galvanized iron pays a duty of 90s. per ton under ~the Britj~shPreferential -
Tariff, plus 10 per cent. Primage duty, which on a ton of 26 gauge of ‘Orb quality “
amounts to from £5 19s. Sd. to £6 3s. lOd, per ton. The duty paid landed cost
58 -
in Australian currency ranges from £26 9s. 9d. to £28 12s. Id. The Australian
price is £22 is. 7d., showing a margin of from £4 2s. Id. to £6 4s. 6d. in favour
of the Australian manufacturer. This margin is just about equal to the duty
charged. In New Zealand, where there is no local industry and no duty other
than 3 per vent. primage, the landed cost to the importer is from £22 5s. 4d. to
£23 16s. 3d. per ton, or up to LI Bs. 8t1. more than the ruling Australian price.
The amount of duty payable tinder the British Preferential Tariff on a Ton
of 8 gauge galvanized fencing wire is 39s. The duty-paid landed cost in Australian
currency of British wire is £19 16s. 8d. The Australian price is £15 l3s. 4d., or
£4 3s. 4d. less than the price of imported wire including all charges. If a comparison
is made between the Australian price and the c.i.t.e. import price without duty,
the margin infavour of the Australian manufacturer is still £2 4s. 4d. If we make
a comparison with New Zealand, where there is no local manufacture and no duty
other than 3 per cant. primage, we find that the landed cost to the importer is
£17 7s. lid, per ton, or LI 14s. 7d. per ton more than the ruling Australian price.
Similar comparisons for 10 gauge wire show much the same results.
In the case of wire netting, which is manufactured in Western Australia,
there is no specific duty under the British Preferential Tariff, but the clauses of the
Industries Preservation Act have sometimes been invoked against dumping.
This is no- longer the case. The comparison is therefore made with the duty-free
-
import prices of British netting of the gauges and meshes in general use, Here the
Australian prices show an advantage if from 6d. to LI 7s. 4d. per mile.
Details of the comparison for those three items will be found in Appendices
5, 6 and 7. The important fact to he noticed is that in the two instances whore
duties are operating the local manufacturers’ prices are well below the duty-paid
landed costs of similar goods of United Kingdom origin, and also below the prices
in New Zealand, where duties are not operating. In all three cases, the local
manufacturers’ prices are at least as low as the duty-free landed coats of similar
• goods, and in two cases, well below even these figures. Exchange has, of course,
been taken into account in computing the landed costs of imports; but where
the local manufacturers arc taking no advantage of the duties, time tariff can hardly
be blamed for any reflection in their selling prices of the effects of exchange. In
any case, it is only fair to remember that exchange affects manufacturing costa
- to some extent, and that fall advantage is not always taken of the opportunity
afforded by the exchange rate to raise prices.
- AGRICULTURAL IMPLEMENTS.
Turning now to agricultural implements and machinery, we find that there
arc not very many-on the free list. There is, however, a number of not unimportant
aids to production which are admitted free under the British Preferential Tariff
and at only 10 or 15 per cent, under the General Tariff. These include: cotton
gins; handworked rakes and ploughs combined; hay tedders; lucerne bunohers;
maize harvesters; maize binders; threshing machines; winnower forks; hand-
- worked cultivators and drills; chaficutter knives ; cream separators; sbee~
-
shearing machines, hand pieces; discs for agricultural implements; -mould board
plates in the fiat; and traction engines (under by-law).
With these exceptions, agricultural machinery and appliances are- subject t~
protective duties. It is relevant to notice, however, that these duties have not
been increased since they were imposed in 1921. Any complaints about the rising
level of the tariff since that period can therefore have no relation to the duties on
agricultural implements and machinery. Moreover, the primary producer is
concerned less ~withthe nominal rates of duty than with the extent to which
manufacturers may have taken advantage of them to increase the prices of the
Australian products.
59
-Tn examining this question, we select the items of farm machinery of most
concern to the wheat-grower, and thus of most concern to Western Australia.
This also happens to be a field in which Australian manufacturing enterprise is
-thsplayed at its best. Australia has been the pioneer in the evolution of broad-
acre tilling and harvesting machinery. The stump-jump plough, the stripper,
the ever-improving harvester, and other notable implements designed primarily
for local conditions—time use of which has made wheat-growing profitable on
millions of acres of Australman lands and added~scores of millions of pounds to the
national income—are the products of Australian inventive genius. Many of
these designs were copmed by manufacturers abroad and subsequently offered
for sale in Australiati markets in competition with the Imome-produced articles.
Under the protective system the agricultural implement industry has grown to
large dimensions but there is no evidence to show that this growth has been at
the expense of the primary industries which it serves, Following an inquiry
in 1924—25 the Tariff Board found that the apparent cost of the duties was equal
to a s’hade under one-seventh of a penny per bushel of wheat. “ It may be safely
said, therefore,” runs time report, “that the tariff on agricultural implements
is imposing no burden on the primary producer.”
As these lines are being written, the Tariff Board is again inquiring into the
bearing of the Tariff on the agricultural implenment industry, and its report will
presumably set out fully the facts as they exist at present. In the meantime,
we have had access to much of the evidence submitted to the Board on comparative -
£ s. d. £ a. d. £ a. d. £ s. d. £ a. £ a. ~.
Reap.r and BInder, 6-ft. .. 77 0 0 92 0 0 88 5 0 72 0 0 68 5 76 0 0
Mower— -
41-It, (Auet,) . . - .. 33 5 0 .. 33 5 0 ,. 31 4
4k-ft. (1.11.0.) .. .. • . 34 s o . . 34 5 0 •. 88 0 0
Hay Rake, 91t. .. .. iS 0 0 20 10 0 10 0 0 20 10 0 16 11 21 10 S
crejn and Fertilizer Drill— -
16-disc Aust.) ,. .. 60 10 0 ., 64 2 6 .. 58 19
15-dlec 1.11.0.) .. .. .. 70 0 0 .. - 72 5 0 .. 613 0 0
Spring Tyne Cultivator with
Fore-carriage, 6k-ft. .. 23 0 6 32 15 0 24 14 0 28 10 0 24 17 28 10 S
Single Row Planter with Per-
ummze.r .. .. .. ., .. 810 1076 71 960
Due JJa,row with pole, 10 discs - -
a 16 Inches .. .. 17 11 0 20 0 0 13 6 0 18 2 6 12 S 16 2 I
Diamond harrow 4 seetlona
with bar .. .. .. 8 6 3 9 10 0 6 3 6 7 19 0 5 15 5 17 S
1st Disc Plough, 2-furrows .. 24 14 0 31 7 0 20 3 13 29 10 0 21 18 29 10 5
bear, it cannot be said that the direct costs of the tariff on the wheat-growers’ plant
are appreciable. In this connexion, the extravagance of the contentions put
forward in the Case is completely demonstrated.
mainly with secondary industries, and that primary industry has benefited only
incidentally. The fact is that the range of duties protecting primary production
is quite as extensive as the secondary range. That this is so may be seen from
the long list of duties set out in Appendix 19.
By way of revealing the attitude of mind of the authors of the Case towards
protection of primary products, it is perhaps well that we should here make a
few quotatioas from their volume :— -
is still in its beginnings, but it is increasing. and will increase further. Bacon and
ham production is increasing and there is room for large expansion. Taking it
as a whole, the dairying industry is looked to as the chief means of developing
the extensive lands of the South-West. Fruit-gro~vixmgin Western Australia,
which has expanded its acreage three-fold in 30 years, has a bright future, and
generally speaking has some advantages over the same industry in the Eastern
States in respect of export. Production of some varieties of tropical fruits such
as pineapples and bananas, has begun in the North-West under shelter øf the
tariff and there is no reason why it should not gradually develop. Tobacco-
growing, which has made a promising experimental start, may possibly grow
to considerable dimensions.
It is unnecessary to particularize further. The point to be made is that the
development of these and other lines of primary production, up to the present,
baa been achieved tinder shelter of a tariff which not merely prevents imports
from beyond Australia, but ensures the Australian market to the limit of tt~
capacity to Australian producers as a whole. It is true that Western Australian
producers are not so well placed to take full advantage of what the general
Australian market has to offer as are those nearer to the larger centres of population.
Nevertheless experience shows that the markets of Eastern Australia do otter a
valuable outlet for certain Western products, and that market will become more
62 -
not correct to say that the tariff confers no direct benefits upon primary
producers in Western Australia so far as their immediate home market and time
larger Australian market are concerned ; amid it is an exaggeration to say that
the tariff is any. serious detriment to them so far as the export market is
concerned.
WESTERN SECONDARY INDUSTRIES.
Of more substance are complaints of time tardy development of secondary
industries in Western Australia. Taking the number of factory employees in
-
relation to population, Western Australia had, in 1907—09, only 80 per cent. of the
Australian average. In 1928—29, the State still bad 72 per cent., but only 61 per
cent. iii 1932—33. TIme decline, in the last four years, has been due very largely to
the long continued depression. Nevertimeless it -must be admitted that the
development of secondary industry in Western Australia has not been as rapid as
in the other States. The benefits of the tariff, so far as manufacturing is concerned
have mmot been equal in their incidence, and here is to be found what is perhaps
the chief disability which it is the function of the Commonwealth Grants Commission
to measure. Justly viewed, however, it is a disability which arises primarily from
the relative smallness of population which precludes time establishment of those
industries which require a large turnover to enable goods to be produced at
reasonable prices. This is a disability which, in different degree; militates against
the profitable establishment of -certain desired industries elsewhere in Australia-.
But it is a disability which will become less with time, just as it has become
gradually less, to the point of extinction, in some of the outlying States of America,
where development, at first cohflned to primary industry, has assumed a more
-balanced form as population increased. -
- - -A SECESSWN DILEMMA. -
This brings us to the question of- the alternative tariff policies open to Western
Australia if she were separated from the rest of the Commonwealth. It is
impossible to say whether the people of Western Australia would like a low revenue
tariff or a high protective tariff. The authors of the Case, however, have (somewhat
uncertainly) made up their minds for them. They state, for example, in paragraph
-676—
“ . . . from the economic view-point Western Australia desires
- to secede in order that she might thereby escape from the burden of the
Commonwealth fiscal policy of protection, and institute a low tariff, which
will be more in keeping with the economic requirements of the State.”
The authors have apparently been forced to this view by a recognition of the
-difficulties of efficient secondary production for such a limited market. Admissions
of these natural bars to the development of manufacturing activity are to be found
throughout the Case. In paragraph 457, for example, it is stated—
his very limited local market makes it impo~sib1efor him
(the Western Australian manufacturer) in most cases, to sell profitably at
prices which will compete favorably with the prices (high though those
prices may be) at which the manufacturers of the Eastern States can sell
by reason of the benefits derived by them from mass production for an ex-
tensive local market.”
In paragraph 678 there ~sanother reference to— -
Despite sucim frank admissions of the real reasons for the relatively slow
development of manufacturing industries, the authors of time Case cannot quite
give up the idea that they would be better off outside the Commonwealth no matter
whether they had a high tariff or a low tariff. This view is expressed clearly in
the following quotation from the Case, which smmppiies its own refutation in the
passages we have taken the liberty of emphasizing (paragraphs 471—2)—
Western Australia is geograplmicaily isolated from the Eastern States,
and if Western Australia bad remained out of Federation and had she
burdened her primary industries by erecting around the borders of the State~
a tariff wall as high as that which to-day surrounds Australia, she would at
least imave had all the compensating advantages of that tariff wall, no matter
how ill-conceived and illusory it may have been. Industries similar to the
hot-house industries of Melbourne and Sydney—the Great Australian
Industries ‘ as they are called in time Eastern States—would then have
flourished in Western Australia, and would have provided employment for
tue urban population of this State. The farmers in the Western Australian
wheat belt and the population on the gold-fields would then have been able
t-o look to Perth and other centres in Western Australia, instead of to’
Melbourne and Sydney, for avenues of employment for their sons and
daughters there would Imavo boon greater opportunities for the native born
of Western Australia, and a more extensive home market for the primary
‘
industries would have been established, It may be that the system might
have crashed sooner or later ; but even so, the position then could hardly
have been worse than it is at the present time. -
CHAPTER IX.
and municipal, and no limit could be set to the importation by a State Government
duty free of goods for use or consumption by its citizens generally. This would not
only violate the principle of the Constitution that taxation shall be uniformly
imposed, but it would make impossible any reliable forecast 9f customs
revenues.
Not only would time tariff policy be involved but also time Empire preferences
accorded to time United Kingdom, non-self-governing colonies, Canada amid New
- Zealand, under existing agreement-s made by time Cormimomiwealth with the
Governments of those ceuntries. It would be quite illogical to maintain ~a
preference in aid of the producers in those countries against foreigners,, whilst o~
the otimor Imand nullifying the protection afforded by the Tariff against, say, United
Kingdom, Canada and New Zealand.
The Commonwealth, although, of course, not itself liable to duty on imports
does not use this freedom to defeat its own tariff polic~’. Where tenders for
Commonwealth requirements are submitted by both importers and horns
manufacturers, the home tender is compared with the full-duty-paid landed cost
of the imported article and if it is lower than or approximately equal to that of
the importers, other conditions being equal, it is invariably accepted.
The suggestion is made in the.Case that the plant required for additions to
the I’erth Power Station of an estimated value of £400,000 would be liable to a
duty estimnated at £90,000. In this instance Western Australia was informed
that admission under by-law would be allowed of certain specified portions of time
plant, forming the greater part of the installation, and that admission under
by-law of the balance of the plant could not be granted until definite evidence
was furnished that local manufacturers in Western Australia, or elsewhere in the
Commonwealth, wore unable to supply the same. -
-4 -
C
I-
_________________________________
/ ChAPTER X.
COASTAL SHIPPING.
- - PURPOSE OF THE NAVIGATION ACT. - - -
2933.—3 - - - - - -
66
VALUE OF COASTAL MARINE.
- -
Every nation with an extended coastline aims at establishing its own coastal
marine, and every nation so circumstanced extends a measure of protection to
the operation of that marine within its own territorial waters. The United States
of America is a notable example. In the case of Australia the policy of building
up an efficient coastal marine was related to the -general policy of defence. It
is obvious that to a nation with a continental coastline of 12,000 miles—greater
than that of any other nation in the World—and with capital centres as far distant
as Perth is from, say, Sydney, a mercantile marine service is an indmspensablo
-
adjummct to the naval arm. It is equally obvious that such a marine must conform
not only to certain standards of passenger and freight requirements but also,
in respect of its personnel, to the standard of wages and conditions which prevails
for Australian industrial life as a whole.
partially used, coupled with the low earning capacity of the interstate
shipping, renders it imperative that no action should be taken that will
make the position more difficult for the Australian companies.
“As the position is at present there is an implied obligation upon
the Australian interstate shipping. companies to maintain an adequate
service around the coast of the Commonwealth, and the Board’s inquiry
- indicates that this obligation has been fulfilled so far as cargo is concerned.
If, however, it is made possible for oversea boats to enter the trade and
carry a proportion of cargo available from time to time, it must tend to
throw boats out of commission and the ultimate result will be that the
services of those coastal ports that offer comparatively small business will
be neglected.” -
At this inquiry, evidence was tendered to show that if the overseas steamers
were to engage in the coastal trade -the earnings of the trans-Australian railway~
(which already hoses about £140,000 a year) would be reduced by some £32,000 a
year, and the earnings of the Western Australian railways by about £13,000.
CIIAPTER XL
Considered purely in its fiscal aspect the sugar enibargo, i.e., the-prohibition
of importation into Australia—is a debit to Western Australia and to other States
as well, and we make no attempt to deny the fact or even minimize it. But this
is not to admit that the treatment of the sugar position in the Case is either corree~
or fair. The statements and contentions in that document we can comment
on later. At the moment we think it desirable to explain certain phases of the
sugar policy which do not appear to have boon understood by the Socessionista.
68
CONSEQUENCES OF WAR.
Under war conditions, world prices sharply rose and in 1915 the Commonwealth
Government foui-md it necessary to prohibit both e~portsand imports and assume
complete control expressly jim time interests of Australian consumers by ensuring
adequate supplies at reasonable prices. Tim home price for raw sugar was’
advanced to £18, but the crop was short and the Government had to import
123,145 tons of inferior sugar at an average price of £20 2s. 3d., exclusive of
Customs duty. Tn 1916 time local consumption price which had been 3d. per lb.
was advanced to 3W. per lb. to cover import losses, and t-lme Government imported
73,981 tons at £21 is. 3d. per ton wit-bout duty. In 1917, owing to rising costs
of production due to war conditions, the price of raw sugar was advanced to £21
per ton. No imports were necessary that year owing to a carry-over from the
previous crop. In 1918, the Australian crop fell short by 57,038 tons, which had
to be imported at £22 2s. Sd. per ton. The year 1919 witnessed a further fall in
production and in that and time year following the Government was obliged to
import 221,795 tons of raw sugar at prices ranging from £44 Os. 2d. to £60 19s. Gd.
per ton. During this period refined sugar was from 8d. to Is. 2d. per lb. in England
and Amerwa and up to Is. 6d. in Europe, with supplies in all cases severely rationed.
The Australian consumer, o,n the other handy had had his refined suga,~at 3d. part
of the time and at 3~d.the rest of the time.
In 1919 and 1920 tIme Con~rnonwealtimGovernment was paying £80 per ton
and upwards for foreign raw sugar and its losses from selling that sugar to local
consumers so much below world prices were approximately £6,000,000. To avoid
future loss, and also to recoup the loss already incurred, time Government in March,
1920, advanced the net, wholesale price for refined sugar to £46 per ton and the
retail price to Gd. per lb. This retail price was reduced to Sd. per lb. in November,
1922, by which time the losses on foreign sugar had been overtaken. In June
1920, the price to the producers for raw sugar was increased from £~1to £30 Gs. Sd.
per ton for a period of three years. At that time, both consumer and producer
prices in Australia were still a long way below “freétrarle prices. The advance
“
of £9 Os Sd. per ton was large, but it ha4 time twofold object of compensating, in
a measure, for the marked deprivations caused by time controlled prices which
‘ruled hitherto, and of giving an impetus to expansion of production. - -
69
HOW ~VER.PRODUCTION CAME ABOUT.
-The policy did something towuirds the first end and completely accomplished
the second. There was soon a large increase in production. In 1923, when the
Sugar Agreement was renewed for a further two years, the world’s “ tree-trade
price was nearly on -a parity with the reduced price for raw sugar, viz., £26 per
ton, granted under that agreement, which permitte~1 of a further redu~tioaof
the retail price to 43d. per lb. From 1923, time Commonwealth Government
- - handed over the commercial control of the business of. purchasing raw sugar,
refining and distribution to the Queensland Government, which made time arrange-
ments with the Colonial Sugar Refining Company Ltd. and the Millaquin Sugar
Company Ltd. to refine ~nd distribute on fl~edschedules of charges. By 1925,
the position was that the world’s price of raw sugar bad fallen to about £12 per
ton. A prolific season in Australia had piled up a surplus of 227,000 tons which
had to find an export outlet. A fresh agreement continued the price of £20 net per
ton for raw sugar for local consumption and the consumer price of 4~d.per lb.
At the same time it was provided that there should be a rebate of £6 Ss. itt. per ton
on refined sugar used by fruit processors, which was equivalent to a reduction of
12s. per ton off the value of raw sugar. ‘ -
three years to be reviewed, at the end of that period, in the terms of the majority
report. Shortly aft-cr this renewal, the Australian financial rehahilitmutiomrscheiue
for reduced interest; wages, prices, &e., was adopted mind .this circumstance
helpe~Jthe Lyons Government, after several con1erenco~with the sugar producers’
executives, to persuade the industry to accept a voluntary reduction in price
less than half-way through the three years’ term of fixed prices. The redac~d
prices then introdace I, viz., £23 lOs. for raw sugar and 4d. per lb. retail for r~fin~d
sugar, were extended until A~agust,1936. ~l’hocontributi ~n to the soft [nuts
industry was also reduced to £200,000 per annum.
It should be mentioned that the Commonwealth sugar policy has always
provided for the Australian sugar contained in all goods exported from Australia
being supplied to the manufacturers at the world’s parj~typrice.
TWO SIDES OF A DIFFICULT PROBLEM.
That, in rough summary, is the tangled story of sugar on the price -side. On
the production side it has another story just as tangled and presenting problems
of great complexity and peculiar difficulty. The present position is that sugar
is over-produced and the large surplus has to -be disposed of in a glutted world
market at sacrificial prices. The problem is on all fours with that of wheat.
During the war some 50,000,000 acres of wheat-growing land in Europe was thrown
out of production and, under the impetus of ‘demand at high prices, a compensating..
- acreage came into production in couatries outside Europe. When wheat-growing
- returned to normal proportions in Europe the total world production was so large
• that the import markets could not absorb it rapidly enough, prices fell a-nd the
70
accumulated surplus kept them down. In the same way, during the war, the
beet lands of Europe went out of production and tropical cane lands caine in to
take their place. Now that beet production has been restored there is an excess
of cane and beet sugar and the market is at zero. -
manufacturer obtains his sugar at the same price as the eastern manufacturer,
and on all export products he receives the advantage of world parity for the sugar
contents. -
It has occupied this position because it provided the most convenient means of
testing the capacity of me~of our race to pursue a laborious form of industry in the
tropics under conditions of life compatible with the general Australian living
-
standard. That test has had a triumphant result as is shown by the fact that
Australians, many of them of the third generation, continue to work and thrive in
districts scattered along a 1,500 miles tropi3al coastline. itre we to say that this
demonstration has less ~‘aluefor Australia as a whole because it has chanced that
the first development of the industry has been in the tropical areas of the East
instead of in the tropical north of theWest? Arewe to say that its national value
to Australia as a whole, and to Western Australia as part of ~t ustralia, does not
transcend the quite problematical gains which the authors of the Case ens~isage as
the result of unrestricted trade with Java, a country with one of the lowest industrial
living standards in the world, which already has a very favorable balance of trade
with the State. - -
— 71
CHAPTER XII.
A section of,.thc Case is devoted to the gold mining industry and in this, as in
so many other instances, the indictment of the Commonwealth is extravagant and
unfair.
Paragraph 446 reads—.
“Such has been the burden of Australian protection upon the Western
- Australian gold mining industry, that that important industry would have
almost ceased to exist had it not been for the revival caused by the rise of
- the price of gold in recent years.”
Time plain truth is that the burden of protection even supposing it to have
“ “,
been twice the burden it is said to Imave been, it could not explain the decline in
Western Australian gold production prior to 1928. Time main cause of the decline
was the exhaustion of time richer ore bodies and the fact that profitable continuance
of work on the lower grade bodies called for the adoption of improved methods of
mining and treatment. Relatively to return the costs were too high, but the factors
in cost were many, and t: r11 charges, in the casd of the established mines, were by
no means the most impo:t ~rmt. This is conpietely demonstrated by the great fall
in costs which have since followed the introduction of new methods in the- two
largest mi~csof the State and in th~imines that are fohlo~singtheir example.
assistance of the \Viluna Gold Mines Ltd. at a very critical stage of its existence by
guaranteeing a bank loan of £300,000 to enabh~it to complete its modern plant.
The Company’s capital was nearing exhaustion and it was unable, at the time, to
raise more. The Company’s representative (Mr. H. E. Vail), in presenting his case
for assistance, pointed out that the Commonwealth support, in the form of a
- guarantee for £300,000, would give the English investing public confidence to
subscribe the further £250,000 required to complete the Company’s undertaking.
Mr. Vail further said— - - -
- “It is acknowledged that the cost of preparing the mine and equipping
it for 40,000 tons is enormous, but I justify the expenditure with the
assurance that we arc pioneering mining methods not previously em-
ployed in Australia. It is recognized by all those familiar withgold-mining in
Australia that there are millions of tons of ore which only requiro ~ reduced
cost of production to restore gold-mining to the high position of the principal
primary production of the State that it enjoyed in the best days of the
Coolgardie and Kalgoor]ie gold-fields. That our efforts will be successful
there can be no doubt wlm~itever,and, following our success, interest will be
revived in goki-miniug, and many mining centres throughout Australia
which are now mere remembrances of the early days will again blossom mto
prosperous mining centres. -
Already thc Lake View and. St-ar Company have recognized that the
adoption of imiodern mining and treatment methods will be the salvation of
- their group of mines at Kalgoorhie, and have commmtted themselves to a -
reduction. The Gold Bounty, accordingly, was lowered to lOs. per oz. with the
provision, however, that it would increase Is. per oz. for every 3 per cent. fall mu
the exchange rate. When in 1932, the price of gold rose to £7 7s. 3d, or £2 iSa. 3d.
per oz. above what it was when the Bounty Bill was passed, the Government of the.
day could not ~ustiIy the continued payment of the bounty and suspended it, but -
‘provided that it would automatically begin to apply again in accordance with the
- previously prescribcd exchange scale, when the price of gold receded to £5 English
ci~
L5 lOs. Australian. That is time position to-day and. it is a position with which
both local and Imondon mining interests havc’exprcssed themselves as well satisfied.
Thesuggestion iii the Case that the suspension of the bonus was a breach of contract
is wholly w~justmfled. When thin bounty was first under consideration, the Minister
introducing the bill expressly stat-ecl that the Government reserved the right of
review in the event of nn abnormal rise in the exchange- rate.
Tha Commonwealth has dealt handsomely with the goM-mining industry which
is now in the most-favoured posItion of all industries. it not only provided the
necessary fillip when the industry was at its lowest, hut it ha-s also given, by
legislation, a liberal margin of assurance for the future in the event of gold prices
falling below £5 lOs. per fine oz. in Australia, and it has furthermore added to the
attractiveness of mining investment by exempting from taxation incomes from
this source. -; - - - -
Those are- the facta. In the face ed them, the statements in the Caá that the
Commonwealth authorities have lacked, sympathy with the gold.nmining industry
and, seem to have regarded it as not worth maintaining arc inexplicablo. The
persons engaged in the industry would certainly give them no countenance.
7.3
CHAPTER X1II.
Some point is made of tb-c-growth -of the Commonwealth Pubtic Service, time rates
of pay of its senior officers and theoveilappiug of services and duplication of staffs.
We arc not in u position to -conipure tim relative -growth of the Commonwealth
Service wit’mi that of the State services generally or with that of the State of
Western Australia -and we could serve no imefut purp~s~ in oommenting on certain
differences in salary range. tt -is sufficient to observe that the salaries in either
case are cletermined by Arbitration. As-un -instance of overlapping and dimplication
the Comnmnonwealth Health services nrc mentioned in particular -and the implication
is that the State Health Department could perform all ‘the duties that require to be
done. No evidence is advanced in -support of this implication and there is much
evidence to the contrary. Time reqtuireoients to-day are by no means the -same as
they were in the pre-federation period. It has been necessary for the
Commonwealth -to ussnm-e -such national responsibilities -as the clevelopmen~of a
continental systeni of q~iarantiueto replace the disconnected systems of local
quarantinq eviousfy in operation, the observation of certam international treaties,
1
the obligations to the League of Nations, the development of the manufacture of
serums, vaccines, and other biological products, the training of medical and other
officers for work iii the Territories accepted. under mandate and other tropical
territories within the-continent and to pursue other public health matters of national
scope. The national responsibility in these matterseunnot be devolved and if
it could be shown that certain of the work -could be carried out by &ate Health
officers as deputies for the Commonwealth it is work additional to what those
officers now do and would call for staff additions.
Much, howevcr, of the health work now done by. the Comnionwealt}i could
not be done conveniently or economically by the State. The work done by the
Commonwealth institution at Kalgoorlie for the investigation of miners’ complaints
is a good instance in point. Neverthelcs~it is work from which the reopic of
Western Australia derive great, if unrealized, benefit.
CHAPTER XIV.
- DEFENCE. -
- - CHAPTER XV. -
interposes its vast bulk between the East and the West and forbids their intercourse
for ever. -
sides, and will extend, Its development may at- any moment be accelerated by
-i mineral discoveries. - - - —
The fact of an arid interior to the continent of Australia, and the limitations
~ that nature has imposed thereby, are undeniable facts. That Western Australia
~ suffers a degree of-isolation therefrom is also a fact, but it is a fact the importance
~ of which can easily be over-estimated, and has been vastly over-stated by the
~ authors of the Case. And the factors that make for isolation are vastly outweighed -
~ by the factors that make for union. No one who looks the facts squarely in the
faee can doubt the essential unity of Australia in relation to the world outside.
Her situation in the world of nations is one; the lone great outpost of ~cstern
civilization in the eastern hemisphere. -
The phrases—-” one people, one destiny “a nation for a continent, and
“,
a continent for a nation “—are not merely rhetorical clap-trap; they are vital
expressions of essential realities. Compared with these fundamental truths, -
local population in Western Australia. The same factor still operates in Eastern
Australia against the establishment of certain industries. It is- a disability which
will lessen with the passing of the years, and which in the- mneantime must be takea
into account in the relations between Western Australia and the Commonwealth.
Time case is paralleled in the United States, up to 50 years ago, by the complaints
of time States in the south and west against the manufacturing States of New
England ; but to-day it would be bard to find any traces of such eomnplaints—
and harder still to find a sane American who would suggest. that difference in
stagea of materiai development could ~umstifybreaking up the Union.
S DISTANCES. -
Time authors of the Case speak of great distances that divide Perth from
Canberra. Well, distances in Australia are great. They are great wmthin Western
-
Australia itself. But I~crthis not much further from Sydney than San Francisco
is from New York, or than Victoria (British Columbia) is from Montreal—indeed,
by sea it is much nearer—even since the construction of the Paniuna Canal.
Here again we find a parallel in the United States. There too, in the early days
similar complaints were heard. Even before the distant West- was developed,
the distance of the southern States from Washington, and the difference in
“economic outlook” between north and south, was loudly declared from every
political platform in the Southern States, and, long before time slavery question
became acute, cries of secession rent the air. But the United States of
“ “
America have remained muted, and have prospered beyond the dreams of their
founders, because, despite differences of outlook and interest, they had so much
in common.
- THE CASE OF NOVA SCOTIA.
In the early days of the Dominion of Canada the Province of Nova Scotia
had a sense of grievance not unlike that of Western Australia to-day. Time fiery
eloquence of John Howe had persuaded the Province that it had been tricked into
a uniomi which would destroy its independence and hamper its progress. (Time
Federal proposals bad not been submitted to the people, as they were in Western
Australia). The provincial assembly passed resolutions in favour of secession;
a delegation was sent to lay petitions before time Throne ; the whole Province
seemed behind time movement. But the flame subsided audi flickered out. “The
steady growth of a wider national life slowly but surely destroyed this sentiment,
amid time has now finally drawn a veil over the wimole dangerous and futile
movement “.Progress of Canada in the Century, by V. Castell Hopkins, W. & II. -
One of the things that led men to think of Federation was tli~irksomeness,
the expense, and the obstacle to free intercourse due to the existence of customs-
houses along time inland frontiers between the States. These barriers were
- inconsistent with those great facts—time real unity of the continent and of tlm~
people. For 34 years they have been levelled to time ground.. If-time secession of
Western Australia were accomplished they would have to be re-erected, amid a
thousand miles of a line of longitude will have to be policed.
Modern means of transit by rail, motor-car and air will be developed and
extended. With border tariffs, the old pre-federal friction and disharmony will
be brought back ; and witlm motor and air transport, traffic across the border-line
will be tenfold more difficult to commtrol. In the far north especially, with the
ports of Wyndhani and Darwin at no great distance on either side of the border,
illicit traffic in liquor, tobacco, &e., will be increasingly hard to police, and will
necessitate expensive Oustomus patrol for a long distance sommtb. “From all
division let our land be free.” - -
- CHAPTER XVI.
AFTER SECESSION—WHAT? -
and oversea loan markets, the Commonwealth payments towards Interest on the
State debt, the Commonwealth contribution of one-third to the repayment of debt
contracted prior to 1927 and the Commonwealth contribution of one-half towards
since 1927 and all future debt. It would
the repayment of further debt ~ontracted
lose the services of the Australian Loan Council in the management of debts under
the Financial Agreement, and it would forfeit the prestige that Agreement has
built up for Australian credit, particularly in the oversea markets. It would lose
the services of the Commonwealth Bank in the control of currency and exchange,
and in financial accommodation through the Treasury-bills system and otherwise,
which has enabled Western Australia to carry on essential services during the period
of depression. It would lose its position in the money markets of other States,
which have largely financed its public works in recent years. It would lose special
Commonwealth money grants and road grants. It would also lose the right to send
its products into the Australian market free of duty, and it would lose the
Commonwealth gold bounty which, though suspended at the moment, automatically
operates again if gold should fall below £5 lOs. per fine oz. in Australia. As
against these deprivations, Western Australia would be relieved of her share of
the expenditure on Commonwealth central services.
It is not possible to compute accurately time gains and losses which would
follow severance, as it means comparing something which exists with something
which does not yet exist, and as no one knows what a seceded Western Austraha
would do or would not d~,any attempt to forecast the financial outcome, if it
must be made, rests largely on assumptions and surmises. -
The Secession Budget, which is a prominent feature of time Case, is not a true
presentation of the positiomi on a yearly basis. Takimig the figures for 1931—32
as the basis, it sets down the financial gain to Western Australia at time impressive
figure of £2,332,000.
This figure is certainly, misleading. Time special Commonwealth grant, which
will be lost, is set down at £300,000, whereas for 1933—34 it was £600,000. The
Commonwealth Road Grant of £348,000 is simply ignored on the ground that -
- Western Australia, after .secession, wdiild not continue this ex~enditimreon roads.
In that case Western Australia would haveS neither the roads nor the money.
The liability for war pensions to be taken over is shown at £482,000, but pensions
actually paid by the Commonwealth in Western Australia in 1931—32 cost
£731,000. The cost of servicing a large amount of debt incurred solely for
Western Australia is ignored. Administration of the services taken over and of the
new services which would have to be created is put down at £150,000. This figure-
is far below actual costs in• Western Australia, excluding Central Office
administration, not to speak of the cost of the new services which would be -
Above all, there is the greatly exaggerated figure of £2,140,000 duty assumed
“
to be included in the cost” of goods imported from the Eastern States. This is
based on fallacies and duplications which have been fully exposed in the chapter
on the Tariff. As this matter of prospective Customs and Excise revenue is
-
We do not agree, for the reasons previously given, with the methods used to
estimate prospective Customs and Excise revenue. The secessionist estimate
(for 1931—32) is as follows :—
£
“Actual collection of Excise on Western Australia’s m~nu-
factures and Customs Duty on Imports from Overseas 1,670,000 ..
This amount purports to be the toti-il collections that would have been muncie—
if, during the year in quest-ion, Western Australia had been
free and mnependent and had eflected tarifi and supplementary arrange-
meats mdeatical with that of the Commonwealth so that tAme cost to the
consumers of interstate imports would have been unchanged.”
We are prepared to grant that iii some way a method, difficult and complicated,
might be devised for diverting the present excess cost-s into time State Bu(lget,
‘ “
- withommt adding to the total cost to the consumer of all imports, the figmires required
would then be— -
Eastern States.
Minus Excess Costs” of goods of Western Australian manufacture
“
- collections within time State understate the amount that is paid by Western
Australians. For this reason there should be allocated to Western Australia a
share of the total Commonwealth collections on a population basis.
With regard jo net excess costs it is impossible to make an estimate
even in round ftg~res,as we have ireviously shown conclusively. 1mm what follows,
therefore, we shall temporarily ignore prospective revenue from this source,
returning to it, however, at the end of our consideration of the” Secession Budget.”
- — . Notes. -
3,316,000
Deduct Commonwealth pay-
ments which would
cease— £
Coimtribution for interest 474,000
Contribution for Sinking
FLmd 127,000
Special Crant 500,000 In 1033—34 the gm’ant was increased to -
£600,000
Road Orant .. .. 369,000
1,470,000
Additions! Expenditure—
Invalid and Old-age Pensions and
Maternity Allowances . 686,000 Actual
War Pousion~ . . . - 668,000 Actual
Bounties . . . 89,000 Actual
I’ost Office—loss after charging
additions to plant 39,000 -Approximate result according to Troasury
~ecounts ; if plant cdditjon~ were pro-
vided from loan and interest charged on
total capital, the loss according to Postal
accmmtaney would be about £50,000
- Departhiental exponditimre—Wostern
Australia ., .. .. 204,000 Actual. This does not include any shi~roof
Central Administration for which some
added cost would be necessary
• I~t~rcst,
Sinking Fund and Exchange
on Works Debt inourred solely
for the benefit of Western Australia,
e.g., Migration Loans, Public
Works, Wheat Bounty, &c. 180,000 Approximate
Dcfcimco . 237,000 Population basis. But Defence expendi-
ture is being incrense(1 by pmmrelmaso of a
new cruiser, &e., and the proportion now
a popuhstioii basis would bo £400,000
War Serviccs—Intcrest, Sinking
Fund, Repatriation, &c. 714,000 -l Population basis
81
Notu.
AddItIonal Exp8flditur$—cont0ts~ed.
£
Trans-Australian Railway—half share - -
The assumption that a” free Western Australia” would have great advantages
in the development of trade with~countries within and without the Empire is
not less speculative. For the purposes of the contentions in this part of the
Case the authors take it for granted that the new Dominion would adopt a low
revenue tariil designed to help arrangements favorable to primary industry and,
inferentially, to disregard the interests of secondary industry.
83
Whether, in view of the present world trend, such a tariff would be practicable
we cannot say, hut in view of the heavy financial requirements of tine new dominion
it could not be low. Moreover, there is no sure ground for the prediction that
-it would not be designedly protective. It is one of the grievances emnphasimd
in the Case that, under the present system, the growth of secondary industry in
Western Australia is unsatisfactory. In the Eastern States, the enthusiasm
-
for the development of secondary industries, lies always been associated, with
the large population centres ; and as in Western Australia the proportion of city
to country population is about the same as it is in the East, it is not unreasonable
to suppose that ideas of industrial development there would run on similar lines
and eventually find expression in a Western Australian tariff with definite
protective features, and wholly unlike that envisaged in the Case. In that not
improbable contingency time burden of protection might even assume a more
“ “
terrifying aspect after Secession than is attributed to it now, with tho Common-
wealth tariff as the offender,
But, however, this might be, there is little ground for the expectation that -
- CHAPTER XVII. -
Summarized, the results of our inquiry into the facts are as follows
(I) Western Australia, on balance, has not suffered detriment through
- Federation. For the 30 years prior to the depression the State
recorded greater relative increases in population and production
than any other State, and since the depression it has suffered no
more hardships than any of the other States and less than some.
(2) It is not true that the State has been reduced tG a subservient position
by the whittling down of the essential Federal principle of the
Constitution by High Court decisions and direct amendment. The
rights of the State originally embedded in the Constitution remain
intact. -
(4) The Commonwealth’s entry into the fields of direct taxation, as also
its heavier levies through the revenue sections of the tariff, was
unavoidable because of the magnitude of its responsibility for
financing war services and invalid and old-age pensions now
amounting to over £30,000,000 a year.
(5) From the beginning of Federation, Western Australia, by reason of
acknowledged disabilities, has been the subject of special financial
consideration. Over and above the regular annual payments to
which it was ordinarily entitled as a member State of the Federation,
Western Australia has received monetary grants and reliefs amounting
in all to £10,000,000. Its budgetary difficulties are mainly due
to losses on enterprises financed from loan money—losses that have
been accentuated by the depression conditions which have affected all
other States in common with Western Australia.
(6) The Commonwealth tariff has not had an oppressive incidence to the
degree claimed in the Case. The general increase in the cost of
goods to consumers is much loss than assumed, and the direct charges
- of the tariff on the plant and other working requirements of the
primary producer are inconsiderable.
(7) The tariff confers direct benefits on most lines of primary production
other than wheat and wool~and the Western Australian producers
- of. those lines share in the benefits equally with the producers of
similar lines in other States. -
(8) The prohibitions anti duty increases imposed under emergency conditions
in 1931 have, with few exceptions, since been removed. Primage
on nearly all imports affecting the primary industries have since
been removed and there have ~been. substantial reductions of duties
on many items of the Birtish Preferential Schedule.
(9) The Navigation Act imposes no serious disability on Western Australian
shippers. The existence of an efficient coastal service running to
regular schedules confers general benefit and is a necessary part of a
national transport system. -
(10) The charges resulting from the sugar embargo are high, but they are
part of the price which has to be paid for the preservation of the sugar
industry, which has an important relation to development of the
tropics and the maintenance of the policy of a White Australia.
There are, moreover, special features of the sugar position which
apparently are not generally understood, but which definitely connect
it with the dislocations resulting from the war. Sugar, which enters
into the manufacture of export goods, Is obtained by the Western
Australian manufacturer at world parity price. -
(II) The charge that the voId-mining industry has been prejudiced through
Commonwealth policy is disproved. The contrary is true, that the
Commonwealth bestowed especial attention upon the gold-mining
industry when that industry was at its lowest point, and by direct
financial assistance to a notable Western Australian mining enterprise
by providing a bounty on new gold production, encouraged effort to
-
CHAPTER XVIII. - -
are mistaken, and that there is, in fact, no trend towards unified control. We have
givenreasons for~tlmeview that the Constitution stands to-day where it always
did, as the embodiment of the Federal principle which assigns definite and separate
powers to Commonwealth and State and protects each in the full exercis~ofthose
powers. - -
upon primary industry are slight; whi1st.~on the other hand, we have called
attention to some of its benefits which are ignored in the Case.
We have sought to show that even if Western Australia’s grievances were as
la claimed, they would, taken together, still afford no sufficient reason for~thic
serious backward stdp of secession from the Australian Commonwealth. Wo
have demonstrated that secession would bring, ifot gains but losses, and that, as a
small isolated community, Western Australia would be handicapped in bargaining
for its share in world tradc and could not provide either efficient Home Defence
or perform an adequate part in the general scheme of Imperial Defence.
86 -
any opinion as to how such a Petition should be dealt with. But we must comment
upon the extreme seriousness of a first step which, if it led on to the goal in view,
would mean the partition of a Continent and the dismemberment of a Nation. No
more serious action on the part of a community, short of armed attack, is
imaginable, and we find it difficult to believe that its full seriousness has been
appreciated by those responsible for the secessionist agitation. That the
movement has proceeded thus far without provocative incidence and with no moro
acerbity than customary attends an ordinary political discussion, is fortunate
but this should not blind us to the potential gravity of the procedure.
Western Australia has great obligations to the Conimonwealtli, and these
obligations could not he absolved by any declaration of intention to secede.
Secession would not only weaken Western Australia, but, by placing a third of
the Continent outside the Commonwealth, it would weaken Australia. Other
very important considerations apart, it is vain to imagine that the Commonwealth
could view such a contingency with complacency.
Secession, then, is not a question for Western Australia only, and this is the
paramount fact which needs to be kept in mind by readers of the Case for
secession and of this Reply.
What shall we say of them who, being in the common-wealth, feeling
a sore greevous unto them, and easie to be amended~sought not the romedie,
- but have increased tile griefe I “ - -
87 -
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89
APPENDIX No. 2.
APPENDIX No. 3.
- (h) Property.
NewSouthWales .. 8 12 37 ‘78 221 891
Victoria .. .. 3 6 28 08 252 788
Queensland.. .. 5 12 54 152 355 1,397
South Australia .. 5 17 55 112 275 1,062
Western Australia .. 4 0 35 68 183 808
Tasmania ,. .. 3 7 26 68 223 038
Average .. 5 - 10 39 96 251 931
As regards Company taxation, the following - has been supplied by the Commissioner of
Taxvtioll, South Australia
- APPENDIX No. 4.
Under Tariff Item 33S(A), Locked Coil Rope as used in mines for hauling heavy loa(ls Is
admitted free (British Preferential Tariff), 10 per cent. (General Tariff).
It may be added that “Machinery and parts thereof for use lilt-he mining Industry” have
been exempted from payment of pm’image duty.
Agricultural and other machinery and implements, including dairying implements are
exompt from primage duty. Bags, sacks, packs and balos for corn, flour, wool, &o., calico - -
and hessian for hag-making, dips, washes and drenches, fertilizers, manures, potash for use -
- as fertilizers, rabbit poison, stud stock, wire netting, barbed wire, plain fencing wire, fibres
for use In making bOnder twine, rock salt, and other aide to primary industry are exempt from
prunage.
92
APPENDIX No. 5.
Au~t~alttsn
S ~ in
British Iron eqoivalent faetnrors favour of
to Lysa~hts16 gauge FOB. C.I,F. C.LT1.~. itato of ,Ameimut C.IY.E.
r~r~c~~
“Orb “ quality. Duty. of duty. ~ndduty, average Aust.~aiian
‘°~~°°‘
dI~counto! tacturers,
6f percent.
as wharf.
..
1 8 8
..
..
N0TE.—Tho abovo figures are based on information received from Londoa dated 23rd
November, 1933. The prices ofAustralian galvanized iron have been reduced mis follows:—
£e.d.
Not price cx -wharf—January, 1932 .. ,. .. 26 2 2
February, 1932 •. .. •. 25 3 7
March, 1932 .. .. .. 24 4 11
September, 1932 .. .. . - 22 17 0
May, 1933 ,, .. 22 7 7
• The reduction sinco January, 1932, is 14.3 per cent of price ruling at that date of ItL7 per ..nt.
of present price. The price to-day is less than it has been since 1915.
93
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- 95 -
APPENDIX No. 8. - - -
10-disc ,. . .. - - 76 19 0 54 3 0 54 2 3 50 14 0
Stump ~JumpMonldboand Plough, long
boards, 5-f urrow .. .. -. 83 2 6 56 S 2 57 10 6 58 1 3
Light Set Disc Plough, 2-furrow .. 33 14 6 22 (1 6 23 8 0 22 8 6
Diamond Harrows, 4-section set .. 12 7 0 5 17 4 6 0 11 (1 0 11
Pulley Equalizing Yokes, 8.horso set -. 20 18 0 7 0 0 7 0 0 - 7 0 0
1,222 18 8 886 14 1 879 12 7 855 0 3
(143) (1U3~) (103) (100)
Weight. - Weight.
cwt. qrs. lb. cwt. qrs. lb.
6-ft. Stripper Harvester 31 0 0 33 1 0
8-ft. Stripper Harvester 41 0 0 44 3 7
96
APPENDIX No. 9. -
- . SUNSHTNE FA1I1~IIMPLEMENTS.
R~nuiyrxo~s
IN PItTCES IN ArSTI’.AIJA sri~c~
1920 (wIrEN TAP.IFN WAS INCR~A~1ID).
• Decrease,
- It will be seen that, in every case, the linpiement sold to-day is heavier than the
corresponding item of pre-war times, the average incrcace in weight being 11 per cent. Worked
ont at pence per lb., the price belore the war was 5.7d. per lh.’~while to-day it is 0.ld. per lb.
This is an increase of only 6~per cent. This percentage reflects the real adv~ucein the period
under review.
1
No~ric—Theabove are the on y types made before tho war which are ~t1l1made at Sunshine.
April, 1934.
3985.—4
98
-
-~ 8. d. £ s.d.
11. 9 . Segment .. .. . .. .. 6 ~ 0 4 15 6
11. 10 .. Pinion .. .. .. .. .. 0 17 0 0 10 0
B. 15 . - Cast for Roller Bearing .. . - .. 0 8 0 0 4 9
B. 22 .. Pinion for Drum Shaft ‘ .. .. .. 0 5 8 0 4 4
R~52 .. Bevel Wheel .. . - - - .. .. 0 10 o 0 8 6
B. 53 . Bevel Pinion -. • .. .. 0 7 6 0 4 9
B. 59 - - Pluminer Block . - .. .. 0 7 9 0 5 9
11. 72 .. Bearing -. . - .. .. .. 0 4 0 , 0 3 2
B. 84 .. Sprocket . - -. .. .. .. 0 6 6 0 5 9
11.324 .. Bracket for Segment . - .. .. .. 0 4 0 0 3 10
R.361 .. Comb Tooth - - -. .. . - .. 0 6 6 0 4 0
11.389 . - (~earRail, nearside .. .. .. .. 1 15 0 1 6 3
B.43S .. Spring for B. and L. Gear - .. .. 2 10 0 1 8 8
R.-171 .. Spoke for Main Wheel .. . .. .. 0 4 9 0 3 10
R.476 . Axle for Front Wheel .. . - . - .. 0 7 0 0 6 3
11.483 . Gear Spindle, front .. .. .. .. 0 15 0 0 12 0
11.501 - ,. Roller Bearing . - .. .. .. 0 9 0 0 7 ~
11.550 .. Riddle (top) Wheat .. .. .. .. 1 10 0 1 0 0
11.714 .. Thresher Bar .. ,. ., .. 0 10 6 0 4 9
£ s.d. £ s.d.
SA. 43 l - -
with ~. Packer with Cap .. .. .. - .. 0 9 3 0 7 0
SA.46 I ~ ~
SA. 60 ‘. Sprocket for Drive Wheel -. .. . -- 2 0 0 1 15 9
SA. 71 .. Bevel Wheel - - .. ., .. .. 0 15 0 0 12 3
SA. 72 .. Sprocket for Clutch Wheel .. .. .. 0 8 0 0 7 3
SA. 88 ,. Bevel Pinion -. .. . - . 0 6 0 0 4 7
SA. 100 .. Hanger for Drive Wheel .. .. 0 15 0 0 10 0
SA. 194 .. Knife Head .. -. ., ., - , 0 5 0 0 4 1
SB.1117 .. Truss for inside cross Sill .. ., .. 0 18 9 0 8 0
SB.1l07 .. )3’rame for Rear Elevator .. .. .. 0 16 3 0 9 6
SB.1266 . Back Sill for Platform .. .. .. .. 1 13 3 0 16 9
811.1267 .. Finger Bar .. .. .. .. .. 2 15 0 2 3 0
811.3028 .. pitman , - - .. ., - - .. . - 0 5 3 0 3 10
SB.3047 .. Pole -‘ .. .. .. .. 1 7 6 1 1 6
SA.4002 - .. Lower Elevator Canvas .. .. . - 2 15 0 2 2 6
811.4007 Transport \Vheel -. . - . - .. 2 5 0 1 13 3
SB.40l4 .. Conveyor Roller -. .. .. 0 13 3 0 10 9
811.4017 - - Finger .. .. - .. .. .. 0 -3 0 0 2 5
811.4019 .. Knife, complete, plain .. .. .. .. 113 6 1 - 7 0
911.4034 .. Knotter Hook Complete .. .. .. 0 11 0 0 10 0
SB.4038 . - Roller Bearing -. -. .. .. 0 8 3 0 5 9
SB.4051 ,. Bearing for Sprocket Wheel .. ~. .. 0 6 0 0 5 3
99 -
£ s.d. £ 8.d.
79A .. Spur Wheel for Fan .. .. .. .. 0 o 0 0 8 6
91 .. Crank I’m and Shaker Ball .. .. .. o lo 0 0 7 3
183 .. Holier Bearing . - .. .. .. 0 7 0 0 7 3
183c .. Case for Ilollor Bearing . - .. .. o 0 o 4 ~
11.208 .. Segment .. .. .. .. .. 2 15 0 2 12 6
11.209 .. Pinion .. .. .. .. .. 0 8 6 (3 ~ 0
F.300 .. SpindloforMainDrive- . .. .. 0 15 0 0 10 9
£ 8. ci. £ a. ci.
N.507 4~Point for Flat Tyne 018 008
N.532 4~Point for Fluted Tyne 020 008
- N.t308 6~Point for Flat Tyno 023 0 0 10
N.848 6~Point for Fluted Tyno 026 0~0 9
Imported. . Autr~flanMade.
- £ s.d. £ &d.
Clutch Release Shoe .. .. 0 0 3 Clutch Release Shoe .. . - 0 8 0
Univeraal Joint - . .. 1 19 6 Universal Joint - -. .. 0 15 0
Spring Hanger Crank .. - .~ 0 11 6 Beater Crank .. .. .. 0 7 3
Radius Rod Ball Cap .. . 0 2 4 Ball Socket .. . - .. 0 0 0
Starting Pin -. .. ‘ ., 0 1 6 Starting Pin . - . . - 0 0 ~
100
Difference In
Part. New Zealan d Price. Australian Price. favour of Australian
Farmer.
- Price In (lalnth
Au~trallan
Price in
Now Zealand. - Autralla. Farmer
- - £ 8. ci. £ a. d. £ 8. d.
Reaper and Binder, 6 feet, with transport and sheaf
carrier .. .. . -. .. .. 86 15 0 68 5 0 18 10 0
One-horse Mower, 34 feet cut .. .. . - 27 5 0 28 6 6 0 18 6
Two.horse Mower, 44 feet cut .. -. .. 33 2 6 31 4 0 1 18 6
Two-horse Mower, 5 feet eut .. .. .. 34 2 8 31 13 .9 2 8 9
Horse Hay Rake, 8 feet .. . - .. 17 1 6 15 12 0 1 9 8
HorsoHay Rake, 9 feet -. .. .. 18 1 0 10 11 6 1 9 6
Above prices are taken respectively from the price books of the Massey Harris Company,
Christchurch, New Zealand, and the Sunshine Harvester Works, Sunshine.
April, 1034. -
101
- £ s, d. £ s. d. £ s.d.
Sunshine, 3-furrow LightSet Sunshine, 3-furrowLight Set
Disc Plough with scrapers 29 9 11 Disc Plough with scrapers 42 0 0 52 10 0
Sunshine Single Row Planter Planter’s Friend Single Row
with Fertilizer 8 0 11 Planter with Fertilizer . - 000 11 6 0
Sunshine, 12-row Disc Grain Sunshine, 12-row Disc Grain
and Fertilizer Drill 40 10 0 and Fertilizer Drill 07 0 0 83 15 0
Sunshine, 14-row Disc Grain Sunshine, 14-row Disc Grain
and Fertilizer Drill 5113 6 and Fertilizer Drill 70 0 0 87 10 0
Sunshine, 16-row Disc Grain Sunshine. 16-row Disc Grain
and Fertilicer Drill 57 0 9 and Fertilizer Drill 75 0 0 03 15 0
Sunshine, 8 ft. Hay Rake -. 14 12 6 Champion. Sit. Hay Rake 15 0 0 18 15 0
Sunshine No. 3, M.H. Disc Massey Harris, No. 3, Disc
Plough, 3-furrow -. 34 7 5 Plough, 3-furrow 37 10 0 46 17 6
Sunshine Power Lilt Tractor Massey Harris Light Tractor
Disc Plough, 3-furrow Disc Plough, 3-furrow 49 0 0 61 6 6
(Sunquest) . - 44 17 0
Sunshine Disc Ham-row, Massey Harris No. 15 High
8 discs ~ 20 in. (Sun. Frame Diso Harrow,
king).. 12 13 6 - 8chiscsx20in. 17 0 0 21 5 0
Sunshine Folding Disc Har- Massey Harris No.5 Folding
row, IS di~e.s~ 18 in., Disc Harrow, 18 discs x
with transport (Sunfield) 270 0 18 in. 30 0 0 37 10 0
Sunshine No. IS Scaffler . - 3 8 3 Massey Harris No. 18 Scuffler 317 6 4 16 10
Sunshine Orchard Spring MaWsey Harris No. 14
Tooth Cultivator with Orchard Spring Tooth
Forecarriago, 9 tine 14 2 0 Cultivator with Fore.
carriage, 9 tine 15 6 0 1816 0
Sunshine, 6-ft. Reaper and Massey ilarris, 6-ft. Reaper
Binder, wit-h transport and Binder, with transport
truck and sheaf carrier 68 50 truck and sheaf carrier.. 66 10 0 8326
Sunshine, 1-horse, 34 ft. Champion, 34 ft. mower 25 0 0 31 5 0
mower 26 06
Sunshine, 2-horse, 44 ft. Champion, 44 ft. mower .. 28 0 0 35 0 0
mower 31 40
102
- £ ..d. £ s.d.
Reaper-Thresher (Header-Harvester) 10 ft. cut, engine-functioned 495 0 0 338 1 8
Reaper and Binder, 8 ft. cut, with sheaf carrier and transport truck 91) 18 6 92 7 8
Mower, 44 ft. cut - .. .. . - .. . - .. 30 5 4 31 7 0
Hay Rake, 8 ft. x 25 teeth (Argentine) . - .. .. 16 1 4 -
The difference in favour of the Australian farmer is £194 2s. or 32 per cent, -
5
— - Canada. Australia.
- 8 £ a.d. £ s.d.
6-ft. Reaper and Binder, with transport truck and sheaf
carrier . - .. - .. .. .. 250.50 on 62 12 0 68 5 0
34-ft. Mower .. -. .. .. .. 89.00 22 5 0 20 0 6
44.ft. Mowor -. -. .. .. .. 96.00 = 24 0 0 31 4 0
8-ft. Hay Rake .. -. .. .. .. 50.50 on 14 2 0 14 12 6
64-ft. 15-tyno, Spring Tooth Cultivator -. -. 90.50 on 22 12 6 ..
64 ft. x20 tyne .. .. - - .. .. --. 23 8 0
8-ft. 17.tyne, Spring Tooth Cultivator .. .. 112.00 on 28 0 0 ..
84 ft. a 25 tyne .. .. .. .. .. .. - 27 6 0
No.8 Core Cultivator .. . .. .. 103.50 on 25 17 6 24 7 6
3-section set Diamond Harrows .. .. .. 20.75 on 5 3 9 4 1 6 -
4.scction set Diamond Harrows .. 28.00 on 7 0 0 5 11 2
No. 3 Disc Plough, 3-furrow .. .. .. 171.50 on 3~i 7 0 34 7 3
No. 2 Scuffler with Depth Regulator .. .. 14.75 on 3 13 9 ..
No.? .. .. .. .. .. .. .. 3 10 9
No. 8 Scuffler .. .. - . - .. .. 14.75 3 13 1) 3 8 3
Present Rates
1021—30 Rates.
flem. Coeds. ~— -________
(12th July 1933).
served by cold process.. per lb. id. Id. 14d. Id.. ljd.
Preserved in tins, &c.~
Salmon .. .. per lb. id. lId. 2441. Id. Gd.
Crustaceans .. . - per lb. Id. lId. 24d. 24d. 4d.
Sardines .. . - per lb. Id. lId. 24(1. Id. 3d.
- Other.. .. .. per lb. lii. 1~d. 24d. Id. 24(1.
Potted or concentrated .. ad val. 25% 25% 23% 25% 421%
N.E,I. .. .. per cwt. 5s. (3s. Os. Ga. 6s..
Oysters, fresh, in the shell per cwt. 2s. 2s. 2s. 2a. 2s.
52 Fruits, fresh— per c ontal
Bananas .. .. per lb. Id. Id. id. 2s. 6d. 8~.-4d.
Citrus .. .. per lb. 4d. id. Id. jd. Id.
N.E.1. .. per cental 3s. 65. Os. 35. Oms.
53 Dried Fruits other than date-a and figs From From From
per.lb. 3d. 3d. 3d. Gd. Gd.
to to to
44d. 44d. 4jd.
54(A) Fruits and Vegetables preserved in
- liquid or partly preserved or
pulped—
(1) Quarter-pints a-nd smaller
sizes .. .. per doz. - 9d. -is. is. 3d. ii. 3d. is. 9d.
(2) Half-pints and over quarter. -
pints .. . . per doz. ls. 3d. is. Od. 2s. 2~.Gd. 3s. Gd.
(3) Pints and over Iia!f.pints -
per doz. 2s. Od. 3s. Gd. 4s. &3. 75.
(4) Quartsan~doverpintsperdoz. Gs. 7s. Gd. 8s. 6d. lOs. 14~.
(5) Exceeding n quart per gal, is. Od. 2a. Gd. 3s. 35. 4s. 3d.
(6) When preserved in spirituous -
liquid, additional duty to
bepaidotiliquid pergal. 30s. 21e. 31s 30s. 31s.
10~
APPENDIX No. 19—continued,
O.T. O.T_
-
N.E.i. not packed for retail sale
per lb. 4d. 4d. Id. 4(1. Id.
op Hay and Chaff .. .. per cwt. is. is. is. is. Is.
GO Herbs—
I)ricd, not medicinal .. per lb. 4d. 4d. Gd. 4d. Gd.
61(o) Honey .. .. .. per lb. 14(L 2d 2d. 14d. 2d.
Gl(a) ,Jama and Jellies .. .. p~t~ lb. 3d. 3d. 3d. 3d. 3d.
62 Hops .. .. -. pci- lb. Gd. Od. is. Gd. Is.
04(a) Lard an! Edible Fats, n.o.i. per lb. id. lId. 2d. - 3d. 4d.
64(6) Lard Oil . - .. per lb. Id. lIt!. 2d. Id. 2d.
70 Macaroni and Vermicelli .. .. Id. 2d. 3d. Id. 3d.
72 Malt .. .. per rental Ga. Os. 7s. (is. Is.
74 Meats, poultry and game—
J!resli or Smoked .. per lb. 2d. 24d. 21d. 2d. 21d.
Potted or concentrated .. ad va!. 30% 35% - 40% 30% 50%
Preserved intins or other airtight
containers .. . . per lb. 2d. 2d. 24(1. 3d, Gd.
Preserved by cold process per cwt. 2d. 2d. 3d. 2d. 3d.
N.E.I. .. . . per ewt. 5s. Os. Os. Gd. Os. Os. Gd.
75 Milk and Cream— -
Present
(12th Rates
JaIy, 1933).
192130 Rat~.
Item. Goods.
33.P.T. O.T. I.T. 13 P.r. O.T.
84 Rennet—
Liquid, not packed for household use
ad val. 15% 20% 25% 15% 25%
Rennet—other .. . - ad val. 25% 30% 40% 25% 40%
86 Rice— per lb.
Uncleaned .. per cental 3s. 4d. 3s. 4d. 3a. 4d. id. Id.
N.E.1. .. per rental Ga. Cs. 68. 14d. 14d.
91 Seed— -
92 Hemp and Rape per rental Os. 68. 7s. (3d. ~s. 7a. Cd.
93 Canary, not packed for retail sale
per rental 6s. Ge. 7s. (3d. 12s. iSo.
Cotton, Ka~pokand Sesame
per cental 45. 48. 48. 45. 4~.
Lucerne .. . - per ~b. Gd. Gd. lId. (Sd. 9d.
99 Straw -. .. - - per ewt. is. Is. I~. is. is.
101 Vegetables (excepting Tomatoes)
Dried, Drysalted, Concentrated,
Compressed, or powdered ad val. 20% 25% 30% 20% 30%
102 Vegetables, n.e.i. per cental 2s. 2s. 2s. 2s. 2s.
104 Beeswax . - .. per lb. It!. id. i4d. id. 41d.
291 Timber.. -. Various—See Tar if Item.
428 Wattle Bark .. .. per cwt. 3s. 38. 38. 38. 30.
429 Wattle Bark Tanning Extract
ad yal. 20% 20% 25% ~0% 25%
432 Cotton, Raw—
Linters .. .. per lb. Free Free Free id. lId.
Other.. -. .. per lb. Free Free Free 3d. 3d.
~,33 64. Is.
Wool Tops - .. .. per lb. Free Free Free
and ad va-I. 20% 20%
APPENDIX No. ~.
SYNOPSIS OF A MEMORANDUM
?ZZPA~ZDliT ?~I -
OVTHZ
24. The North-west Air Service and its cost to the Commonwealth .. ,, 125
25. The East-west Air Service and its coat to the Commonwealth .. .. 125
26. ProvisiOnnand maintenance of aerodromes and landing grounds .. .. 125
27. Facilities and subsidies for Aero Clubs.. , - .. .. .. 126
28. The effect of secession on Civil Aviation in Western Australia and the Corn.
monwealth .. . - .‘. - - - .. .. .. 126
PArr 8.—OEi~n~LCoNcLusIoN— -
I. INTRODUCTION.
‘[‘lie Western Australian case opens with a paragraph (No. 645) on the subject of mlependcnee
upon Britain, The statement that British diplomacy and time British Navy are time basis of
Australian security is fully endorsed. ‘l’ho case for secession and the rejoinder therefore both
have a common starting point, and they hold in view a similar ohjectivo—the attainment of
national security. The argument accormlingly resolves itself into au examination of time means
of attaining the objective. ‘limo present Australian Dcfcncc Policy and organization isa carefully
planned pert of a co-ordinated scheme of Empire defence, and it is necessary to vxemnin~th~
repercussions on the defence of Western Australia-, the security of the rest of Australia, and
Australia’s part in Imperial Defemice. It will he shown that the strength uf Western Australia’s
defence under secession would be greatly weakened, that the security of the rest- of Australia
would consequently he prejudiced, and that Australia’s part in Imperial Defence would not
be as effective a contribution as at present.
It is necessary in the examination of the Western Australian case to state and keep in
mind a summary of certain principles of Imperial and Australian 1)efence as criteria with which
tho case should conform. The adoption and the extension of the idea would mean the
multiplication of the difficulties of Imperial co-operation, a-nfl the creation in Australia of
problems of co-operative action where they are at present non-existent.
(e) Defence of seabo,-ne tra-de.—Nmvval forces are required for the defence of sea-borne
trado on tho ocean routes and in local waters such as la-mull ails and coastal routes~
with air co-operation in narrow waters and for reconnaissance and oliservation.
For the operation of these naval forces adequately defended bases on the trade
routes aro essential, and conversely a means should exist for the (Jestrimetion
of enemy base-s from which the enemy may attack trade. All parts of tho Empire
have a vital interest in the maintenance of sea-borne trade and in tb~provision
and maintenance of the forces and bases necesspry for its security.
(b) Defence-against invasion.—The provision of sea.power for the defence of scaborne
trade simultaneously furnishes the first lino of defence against invasion Imy
sea-borne land or air forces. Supplementary to sea-power, the army organization
provides for a Field Army as a deterrent against invasion, and thu Air Force
organization for aircraft for co-operation.
(c) Defence against raids.—Supplementary to sea.power as a general defence against
raids by naval forces, or seaborno land or air forces, tho Army and Air Force
organizations provide for the defence of vital localities by means of— -
(i) Artillery and anti-aircraft artillery defences amid garrisons;
(ii) Military foree~su11i~ient to &leal with landing parties where such operations
ceo feasible; -
iSecure bases from which the Navy can operate are also available to the mercantile
marine as ports, havens, and place of assembly for convoy. In addition to their
- provision at nnval bases and important ports, fixed defences are necessary for
those centres whose destruction might be carried out by raids, aiim! whose loss
would compel submission or imperil the capacity to offer resistance.
(d) Preserratioa of int”rnal •security.—lzm advanced societies, time civil police is sufficient
to maintain internal security, but, in less civilized tevritorie~where the greater
part of time imopulnitiOii is, hi varying degree, subject to aim outbreak of the prinmitive
passions, armed forces amy be rom mnired.
1
(e) Protection of the rights of British citizens in foreign countries.—The forces provided
for national security a-nil their reserves mire normally suflicient for the settlement
- of these cases.
(f) E-nmpire co-operation and expansion of elfort.—TIme plan of imperial Defence ~mrovidcs
for the organization amid oxpammsion by each [mart of the Empire of its resources
for its own sccunitv, in pursuance of the pmin~ipIe that its local defence is tho
primary Tvspofls1hmlit-y of reich l)wniniomn The con-i-elation of these individual
efforts is the basis of co-operation in Imperial Defence, time plans of which cover
the naval, military, air, munitiomis supply and economic and financial aspects
of preparedness. ‘jim mohility of time forces of I-lie Empire is essential to make
this eu-operation eticitive, and ability to move by semi is provider! by adequate
naval strength and seemmi-ely defended bases. ‘lime full immobility of Air Forces is
de~meiidenton aim lam penal dma-ui of landinmg grounds mm imd lIyiug boat anchorages.
(~)Time i-otpleineatimmg of’Ireuly otligations.—As Treaties mu-c mmrrangcments b~ means
of which interests are safeguarded, time conmnmitnmcmmfs imisolved in thoz-nm have a
close relation to imational defenco. ‘l’he Covenmmnt of time League imposes on all
Members, obligations which they may be called upon to implement by military
action, and though no sp~eialprovision beyond time forces for national security
- is necessary, the liability of time obligation cannot be overlooked.
DEFENCE POLICY. -
4. FOREIGN POLICY.
The only reference in tho case for secession, to the part of Foreign Policy in time pursuit
•f peace arid security is in paragraph .645 that “it is British diplomacy . . . . which
ha~assured to the peopic of Aistralia their imeacefUI Occupation of this great and glorious
country “. This praise and gratitude for the part played by Britain as the senior partner of
Empire in the conduct of Foreign Policy, and for the world-wide diplomatic- representation
that is at the service of all Govcrnmnients of thu Empire is fully endorsed. In regard to Foreign
Policy, however, the I)ominiomms have long since emerged into that independent, hut responsible
Status, which was defined in 1026 as “in no way subordir-mate one to another in any aspect of
their domestic or extorns~affairs.” Autonomy would therefomo entail for Western Australia
the provision of an organization for the study of Foreign Policy in order that its Government
may have at- its disposal adequate advice on wide-u to make decisions of fmmr.resching importance
and to express its view in the Councils of Empire on qunstions qf vital interest. One example
will serve to illustrate the existence of definite Dominion viewpoints on questions of Foreign
Policy. Groat Britain, but not the Duminions, is a sigimatory of time Treaty of Locarno under
which she may be called upon to implement time guarantees ~he has given to certain European
States. Great Britain’s comnnitnwnts may, therefore, have far-reaching reactions on the
security of time Empire and time interests of Dominion~dictate time need for a continuous
study of the whole field of Foreign Policy.
To fully safeguard itself, Western Australia would, therefore, be confronted with
duplicating the following Conmnmonsvealthi organizations :—
Department of External Affairs.
Foreign Affairs Liaison Office, London.
The Defence aspect would of course be covered by the Western Australian Defence
Department, which would be established on secession.
- Finally, Western Australia as arm autonomous State ~~ouldbecome a Member of the League
of Nations like the other Domninions. This inivolvcs duties and respommaililities, and machinery
must be provided for the study of th~wide range of questions invnmls-enl, as an important
corollary to these obligations is a voice in the decision-ms relating to them. One of the
commitments—the implementing of sanctions under. Article 16 of the Covenant—has already
been mentioned. - At present, the one representation of the Commonwealth is arranged for
the Annual Assemblies, and the Labour Conferences at Geneva-. Under secession, Western
Australia would presumably require its own representation. In addition, it would be necessary
to duplicate time Commonwealth’s League of Nations Oi}lce at Australia House.
115
(a) That the thu-mn Naval vote of £2,107,101 was more than Australia eouhl afford for
— Naval I)efence.
(6) That, owing to overhead administrative costs, the autonomous Royal Australian
Navy shouhi be abandoned a-nd time earlier contribution arrangement w~thitime
British Government reverted to.
8. THE NAVAL VOTE. THAT AUSTRALIA CAN AFFORD.
In regard to the amount of the vote for Naval Defence. it is the policy of the Commonwealth
Government “to provide the maximum contribution Australia can afford.” (Policy Speech
of Minister for Defence, 25th September, 1933). The annomimit of the vote considered excessive
in the Western Australian case is £2,107,191. Time highest Naval vote was £5,054,176 in 1026—
27 and the vote f.r 1933—34 is £1,905,238. -
The case for secession is, however, facing two ways on the amount of naval expeumditure.
it wa~noted in sub-paragraph 5 (c) above that it is argued that time noim-fulfihmnemut of tho
Henderson and Jellicoe schemes has deprived ~Vestern Australia of a naval base amid ships.
It will be shown later in dealing with these schemes that financial considerations mainly, amid
also other considerations, precluded this. Therefore time Western Australian criticism really
demands a larger and not a smaller vote, Similarly in sub-paragraphs S (b) above, empl’nsis is
laid on British naval strength as the primary meanus of defence of Australia. Nothing should
therefore be done to impair Australia’s part in-Imperial Naval Defence, yet it will be demon-
strated in the next paragraph that Western Australia’s proposed Naval Policy under secession
116
The present Naval l’ohicy ha~be-cnn deveiope-d after coincide-ration of notional opinion and
aspirations by various Australia-nm Guvi~rnxnermtswide-hi have hr 1 at their disposal the - advice
of time United Kingdom Govenmrmremit- and tine Adimnirndty. it has contimnumed to receive the
endorsement of Australian mubhe nhninlionn generally as a national policy, and represents an
1 a-nil responsibilities of a sehf.governiumg Doumminion. ‘I’bo answer
acknowledgment of time duties
to the c-are for reversions to time naval contmibmmtioni arranugomenmt is to outhino briefly the
historical basis of Naval J)efsnce hum Australia, to show time evolution of time present l’oliey,
and to indicate its part jim Imperial Naval 1)efeuiee.
In pre-Fu-nleratioim days, sonic of time States niaintaineml a State Naval Force hint \Vestern
Australia was the oumly State that had riot at sonic timimo a riaval force of its own. An arrangement
for a mimmimmumu period of ten years, lion-ever, had boon entmnrnf into between the United
Kingdom Government and time State Governmenmts about 1891) for time mninitemuance of ships on the
Australia-mi Station additional to the normal 1l~alNavy Sq nadromu. The State Governments paid
to time Unmited Kingdom Government interest on time capital cost of the ships amid a suni for annual
maiimtenaoce. l’lme m-sximumn total commtribmmtionm was £126,000, amumi the Western Aumstrahan
share in time tenth year oIl a populatioum basis was £4,816. ‘I’he agreenmemmt eoimtinued with the
Commonwealth after Federatiomu but it was renmewed ivitim some alterations iii 1903, the Common-
wealth’s contribution being fixed at a nmumximnunn of £200,000.
At time Imperial Conference, 1909, the Commonwealth Government submitted a proposal
for the establishment of a Royal Australian Navy, anmd the following extract is quoted :—
“ Whereas all time 1)omimmiouis of time hlritisim Empire might to share in time most
effective way in time bum’demm of maiumtiminimmg time permanent naval- supremacy of the
Empire:
“Amid whereas this Government is of opinion that, so far as ~‘sumstrahia is concerned.
this object would be best- attained by encoimragom~mmt of naval development in thi~
country so timat people of Comnmonwealtim will bee-nine mm people efficient at sea a-nd
thereby better a-lila to assist- United Kirmgmlom with men as well as simips to act in eyncert
with time other sea forces of the Empire
“Time views of time present Government, as a basis of co-operation and mutual
understanding, are herewith mmuhnnitted :— -
(Then follou-s an ormtline of the basis proposed for the establishment, control.
administration, and training of the ROyal Australian Navy, and for Imperial Naval
co-operation)
The iVanul Agrcsnwnt Act 1012 amended time Act of 1903 by providing that it could be
arranged from time to tie-ne with time United hcingdonmu Govcrnmnemmt for the reduction of the
Royal Navy Squadron on the Australia-ni stat-ion and also time subsidy, time final payment of which -
was made mi 1912—13. -
Since 1909, Australian Naval Policy has been consistently governed by the principles
then laid down. Tho closest co-operation has be-eu maimitained with the United Kingdom
Government, and the method of contributing to Imperial a-nil Australian naval sceuurily by
means of a- Royal Austrslian Navy has received time fullest emudorsement of time United -
Kingdom Goverumment and its advisers who Imave outlimied the following phases for time develop.
went of the Empire Navies :—
No. 1—Respomisibihity i-s assumed for local defence and the training of personnel for
a seagoing force is be-grin. -
- No. 2—I’articipation in defence on time high seas as opposed to local defence is aseumed
by obtaimming one or Inure seagoimig ~imipsfrom Britain.
No. 3—Local defence is supplemented by the I)ominion providing manning and
controlling a seagoing squadrorm for its home station. -
No. 4—In additionm to local defence, and a squadron for the home station, the Dominion
provides part of the general schemo of Iinperimi.I Naval Defence.
Australia with the present strength of the Royal Australian Navy is at Phase 3 of its naval
development. To revert to the contribution arraimgement would be a retrogressive step and one
contrary to the general expression of Australian opimmion. Furthermore, it would not be
consIstent with the Indapondent political status of a seIf.governing dominion of Western
117
Australia’s resources. Western Australia’s intention to rely more absolutely on British naval
strength for security and “to arrange for a naval sloop to be based on Fnemnantk” is
inconsistent with its pohitical ambitions and a weakening of the present degree of Australian
naval security. Useful timonmgh sloops may be for their particular functions, vessels of this class
arc not ~ubjoot to limitation under the Naval Trcatmes, a-mini \~estern Australia would not be
shouldering any of the burden of Tmperial Naval I)e-fence that is represented by the Empire’s
quota of Iighthng ships. On time contrary, the Western Australian effort wouuld represent a
dispersion of the limited financial sources available to Australia for its part in Imperial Naval
Deferico, and the nnaintenancc of the present strength of the Royal Australian Navy would
press more heavily onn tIme remaining States. -
Turning from the political aspect, the strategical and admimmistrative features of a separate
Western Australian nan-al effort are considered, mmmi the examination also embraces time security
aspect of f-ho socesmuiomi complaint that the naval forces and estahuishmnenuts are loc~tcd in the
East, and no slmips arc based in the \Vest. The noum-fnmlhiiment of recommumndations in the
Henderson and Jeihicoe reports in their relation,to ~m’mesternAustralia are referred to later.
hi Part 1, co-operation was mentioned as a fundamental principle of Imperial Defenee
and by this is implied time unity of strategical plans of the Empire’s naval strength and ita
direction in war. As time Singapore Base and the naval strength of the Empire are time keystone
of time naval defence of British interests in the Pacilic mmmcii Indian Oceans, it foihmiws that the
naval security of Western Australia, or any other pumrt of the Commonwealth, (hOOS not rest
on time localization of forces in the region concerned. On the contrary, Imperial co-operation
and unified direction imply concentration and moLiuity. Th~ same considerations of
co-operation, unity, and strategical dispositions apply to the Comnuonuwealtim’s own naval efforts,
and its dismemberment inito independent State uniite would be a dispersion of strength a-nd
an absolute weakening of the Commonwealth’s contribution to imperial and Australian naval
security. The email strength of the Royal Australiamm Navy has precluded its distribution
between Eastern and We-stern Squadromms for strategical, trmdmmimig, and administrative remisons
and the priority of other demands of security, over the pron ision of base facilities in Western
Australia. As a safeguard against- co-operation riot beimig forthcoming from Western
Australia, the security and trarle of the rest of Australia and imperial inteuests would require
that any Act of Secession would have to provide for time u-ight to use the ports of Fremantie,
Albany and G~aldton.
Tho provision of personmnei for time small Naval Force timat a Statci could mnaintaimm presents
two alternatives both of while-li have uinsatisfaetory features. If time conitu-ibution basis were
adopteil by Wostermi Austiahia, time personnel would be Royal Navy, in which event the local
proprietary interest of public opinion and eonsequemmt prestige woulml not be developed, or if it
is a locally recruited a-nd anioniumistered Force, the State mnust duplicate the Conmmmonmwcalth’s
aulnninistrativo organization and also its educational and training establishnienuts, or have its
personnel educated and traimmed, in Britain. ‘lime Commonwealth character of the Royal
Australian Navy is carefully safeguuarded by time equal facilities grarmted to all States to share
in the service. Nonmmnations are made from all States to the Naval College for cauhet minhshipmon
and recruitment timat is Connmonmweaitlm wide is aimed at for the re-stings.
The incidence of expeniiiiture imm relation to the locatiomm of th~Navel Forces in the east
of Australia is dealt aitlu mm l’art Sum a gemmeral ma-miner coverimmg all se-rn ic-es.
10. THE HENDERSON AND JELLICOE REPORTS AND THE I’RESENT NAVAL
ORGAN1Z~T1ON.
Dissatisfaction is expressed in the cese for secession with the non-attainment of the
strengths recommenried in the Hcmmclerson and Jellicoe reports which would have enabled
ships to be statiommed in Western Australia after provision of thonecessary base facilities.
The Henderson report was made in 1911, and the ,Jeihieoe report in 1919. The former
proposed a prognammun of capital expenditure of £40,0(J0,ht0 at the pro-war price level and
contemplated a fleet of ö2 mmhuims. Time annual naval vote necessary for recurring charges in
1933—34 was estimated at £4,’i94,000. On time prcsemmt price level index this would hue £6,543,810.
It is to be noted that the fetal Defence Vote for 1033—34 is £4,246,016.
The Jellicos report recommended a fleet of 4)) ships. The capital expenditure was
considerably reduced but tho ultimate maintenance expenditure was £4,557,280 or £4,119,660
on the present price index. -
.onsequence ofthe financial aspect has been that the limited amount available for naval detenee
has been absorbed in maintaining the Royal Australian Navy Squadron at a mine-h lesser
strength than that envisaged Lmy the reports. As stated earlier, its small size hiss precluded
Ito distribution between Eastern amid Western Divisions for strategical, training and
administrative reasOns. In so far as image facilities are concerned, these at Sydney were taken
over from the Royal Navy on tho emitablishment of the Royal Australian Navy a-nd the new
- develo mnne-nt has been confined to the Training Establishment at Phinders ani oil storage and
1 facilities at Darwin.
fueiiing
The whole fleet and base resources contemplated in time reports would be welcomed by any
(7overrunment res monsibie for the naval soeuirit~ of the Cornnioruweaith and any naval officer
1
entrusted with carrying time Policy into effect, but time fact is that the vote has not perunitted
their pron’isionm and the Gevernmumenmt, on time advice of its naval experts, has allocated what has
been available to the provision and mnainmtenance of time Sqiumuironm that has been possible, it
may be added that no den-elopmcnt in time Naval Policy of the Commonwealth take-s place
without the advice of the authmrn-itmes in Britain being sought and it was they wimo recunimonded,
in view of all the considerations referred to, that time developmnemmt of Cockburn Sound as a
repair port bc abandoned.
(b) Time provision of time necessary equipment and stores to enable the Am-my to function.
(c) The training of time rank annh file.
It is in time light of the above organization and principles as the basis of’an Army Policy
for the defence of Australia that this aspect of time case for secession is examined.
Time references of the Indian Statutory Commission to Burma overlook the factor that relief
to a ~iartieular area is likely to be forthcoming more rapiuhly from a central authority charged
with time protectioum of the wimole area, than fromn~a separate utdnuinistration as an ac~of
co-operation. The comparison has another vital difference in that the defence of India and
Burma is provided for by both local forces and British troops, the United Kingdom
Governmnemmt having time fimmal responsibility for time security of these territories. Iii the
reference to Burma being “in the same position as other parts of the Empire, plans for the
defence of which in an emnergemley devolve upon the Imperial authorities “, the terni “other
parts of the Ennpire” cannot correctly relate to time Self.govermming Dominiomus, for their
Governments are solely responsible- for timeir Defence Policies and their General Staffs for the
preparation of the plans for timeir local defence, though the fullest co-operation exists with the
United Kingdom-n Government and its general stall,
In regard to the statement that tue main army strength is located in the East and could
not defend Western Australia against invasion, it is clammed thattho local defence of Western
Australia is incomparably stronger with the existing Federal organization than anything
Western Australia could devise by taking over the part of time organization located in that
State. Under Federation, time strength and resources of the East aro available for tho defence
of the West and their pr~remmtlocation is an inescapable fact of the distribution of the population
and the natural resources of tIme country.
As a separate Dominion, Western Australia has neither the population for an army large
enough for its adequate miefence, nor the secoumdary industries and raw materials for supplying
it in. the field. The munitions factories have been locatcd in their present sites after fufl
consideration of their defence and proximjty to sources of raw wisteria-Is and labour, a-nd the
East-West Railway is the means by which an army could bum kept supplied from the East. To
establish similar munitions factories in the West would be a costly duplication and a diversion
of funds from more needy demands of Australian security.
Acceptance of an unauthoritative opinion on the time necessary for time transfer of troops
from the East to the West has led the advocates of secession imuto unsound conclusions on defence
against invasion. The General Stat! do not accept the opinion that it would take three months
to send one division from the East. As time time for mobilization would ho the same wlmether
the troops were raised in the West or time East, the argument must obviously relate only to the
time for transportation. Time General Staff’s piamis and time-tables are mmocessarily-secret, but
It can be said that, with time existing resources of time Commonwealth East-West Railway and
using only one train a day, the opinion that has been qmmoted is very wide of the mark. fly
special measures, the time can be even more greatly reduced, whilst with a standard gauge
railway linking the East and the West, the - minimum period would be attained. The
120
construction of tim East-West Railway was part of time Federation compact, amid it is of vital
strategical imumportamice to \Vesteuum Australia. It provides a-mm assumed umme-aims of cunmcenitration
in time \%‘est should the strategical situation require it, and of mainmtaimminmg tIme flow of
rciumtorcemenmts and supple’s. It is mint vuulnmm’rabkm fm-nm time sea mind would riot be affected by
fluctuations inn the naval situmatinumi which, even in-i time case of a raiding cruiser or armed
merchiamitnian, can helm! imp tie’ niovemaont of all shippimug. Time break of gauge occurs iii the
\Vest as uve-il as in cuustcrnu Aumstm-alia anud mmusifermity is more likely to be achieved whilst Western
Australia is part of time Connuumozmwealth as time East-~VestRailway is primarily a Western
Australian interest.
Time final observation on invasion is that time \Vestern Australian case is disposed to put
all its eggs in one basket, for if time enem’n’ has sumfficient eonmmmnmmmud of time sea to triune-sport his
invading forco to Australia and safeguard its lines of comnutmnmication, it will ho ohuviuims that
Australiamm waters will be el~sed to British slopping. IVe-shrim Australia’s sole hope of army
resistance wnmmld be by rminforucniemmt from hand and aim- fore--cs from time East. To quote from
the Minister’s Policy Sue-ecu of 2m~thm September, 1933
Sbmommld an enemy cttempt a large scale attack or invasion of our shore-s, thmenm it
is on time Army and time manhood in the mass thmat we must depend to drive off time invader
if the co-operation of time snaini British Fleet is not available.’’ -
In regard to the relation of seapower to inivasioum, it has been dc’mnonstrateui under Part 3, Na-va-i
Defence, that tine proposed policy of Wustern Australia under secession would be mm retrograde
stop in Imperial and Aostralianm Naval l)efemice a-nd security.
The training of leaders and staff has a very direct n-e-latiorm to the question of strengths on
which the Westerns Amustrahiaum case raises comparisons between 1901 and 1932. In the three
pri~eiplesof Army Policy outhiumc-d ca-u-her, time traininug of time rank amid file wa-a placed last in
order of priority and so that provision might be niade for time t-rainmiung of leaders a-mud stall and
for time acquisition of tine necessary equipment amid store-s for the Army, a ,-cduetion in the
str~hgthof personnel was manic with time iimtromlumctiomi umf time Divisional organizatiomm lEaving
- noted this underlying quest-ion nmc prinme-iple’, it is important to observe a contrast between the
- two periods used in time Western Auistrmulizmnm case to appreciate that time basis of conmparisun is
not purely numerical. 1901 is most favorable to Western Amustraiia- owing to the patridtic
spirit aroused by the Doer Wmmr, time demipmsteii of commtiimgents to Sommtlm Africa, and the formation
of new mnouumted umuts. 1932 is unfavorable to tine Commonwealth owing to time ecenommmnc
depression and m-et-renchmment in time Defi~imceServices following time reduction of time Vote to
assist in establishing Budgetary equilibrium. Time Defence expenditure irm 1931—32 was the
lowest since 1901—il. It is relevant therefore to introdmmco strength figsmres for cert-aium other
years for a truer comparisons, amid time following are quoted
Year.
- TralmilnR Strength. Sent to War. -
A comparison of time IVest Amistralban organization at the disposal of staff and leaders for
military operations shows that in 1901 Westc’rn Australia haul some garrison artillery, two
batteries of obsolete he-mi artillery, four companies of mnounteul inufantry and five battalions.
but no proper head-quarters for time-se units to function as a force in time field, wimilst essential
ancillary units and services were uuon-existemmt. In 1931, Western Australia has a properly
trained head-quarters Stall, a-mi artillery brigade, liglmt horse regiment and imoad-qumarters, an
infantry brigade lie-ad-quarters, together with new and essenutial unmits sue-h as fortress company
engineers for Coast Defence Lights, &c., field company eumgineers, signals for inter-communica-
tion, field ambulance anul army service corps units, Thmmms We-stern Australia now has a fore.
capable of operating and maintaining itself in the field, wimereas in 1001 this was riot possible.
For time efficiency of an army, certain permanent educational and training establishments
&re necessary. The Stall Corps offucers of the Australian Army are drawn from time Cadets of
time Royal Military College, which is open to youths from a-il States of the Commonwealth.
There are also the Army Seiuools at wimicim courses are conducted. All these estabhiuiunnente
represent e-onsidorablo capital outlay for builulings a-nd equipment, in addition to which there
is time anmnual expenditure for stall and general mnaint-ona-uice. Time requirements of secession
would presumably be satisfied oumly by similar establishiments, the cost of which would be out
of proportion to the streumgtiu of the force thmcy would serve. -
It is also the practice to maiumtain abroad a certain number of officers at special courses
and on exchange duty to keep the Australian Army abreast of developments amid to facilitate
co-operation and time standardization of organization, training a-nd equipment. A special
liaison staff iii also necessary at Australia House for handling Departmental matters in London.
As the range of course is win-ic and time arnms of the service numerous, n largo organization ha.
the resources for this work and time knowledge gummed is at time disposal of the whole of the
Commonwealth. A small organization sue-li as time force- of Western Australia coulul only obtain
similar informatiomi at a relatively greater and obviously duplicated cost.
He also referred to the lack of smut-able drihl halls for traiuuing, and insufficient rifle range
acoommodation to permit of time Annual Musketry Course being carried out, whilst attention
was drawn to the very inadequate reserve supply of small arms ammunition and rifles.
Reference was also made to the lack of harness for time field artillery and to the difficulty of
obtaining suitabio harness for the limbers of tho 9-pounder muzzle loaders at Albany.
122
At present there are four 6-in. Mic. VII guns at Fremnantlo (capable of firing seven rounds
per minute), together with defenucc electric lights, whilst coca-sure-s are in ha-rid to provide a
more powerful armament. The statements in paragraphs 673 and 675 (a) of the Western
Australian case that time-se guns “howe only been fired with a half charge” and a-re obsolete
are incorrect. On the contrary, timis type of gun forms the secondary armament mm the most
modern British forts and is also used mis time only armament in certain British defemmded ports.
The Field Artillery is fully equipped withm niodern fielul guns, including reserves in
mobilization stores, whilst liberal provision hiss been made for drill ha-U amid barrack accomnmnO-
dation for thmo forces.
Sufficient reserves not only of small arms and rifles, but also of other essentia-l mobilization
stores are- he-huh, whilst even if an eumemny power gained naval supremacy in the ii~dia-nOcean,
the Ea-~t.westRailway provides a means of supplying Westerni Australia from time- mmmnuituon~
factories in time Eastermu State-s.
An important consideration in any comparison extending over two such widely separated
periods is the ulevelopment in beth the quantity and variety of th equipment anmd armament
of the army and time heavier Cost ermtailed in its provision. The experience of the Great War
and the (levelopment of science have greatly extended the rango of war material, examples of
whlclm ame tanks, tractors, wireless tuIegraphiy and telephony, anti-aircraft artillery, sound-
locators and anti-umircraft searchlights, sound ranging, and aruti-gas numjuuipcnemmt. The trend
of time- qrganization of time mode-rum army is towardis emmtirely mechanized format-ions anmi units,
the mcchmaneization of the tran~pumrtof cavalry, artillery, irmfmmntry, mumid othor units, mud the
increase of macimino gun and artillery strengthm. -
The case for secession displays an inadequma-te appreciatioum of time priumciple of Imperial
Defence that is the primary respommsibihty of time Su’if-governiumg Donminionu to provide for
their own local defence. Ac a- rcsumlt, tIme capacity of time present Arnusy organization for the
defence of Western Australia- is jmmmuler.rated amid a wrong eonmclusiomm reached on the defence
of this State against invasion, whereas a correct appreciatiozm of time separation shows that
Western Australian security from tlmis danger is far greater under Federation than if the
State- were separated.
In regard to time comparisons between time State- Forces at time time of Federation and the
Commonwealth Forces now located in Westerum Australia, the latter are greater in strenugth
and immeasurably superior in organuization, staffs, arr~ameiit,euluipment mini stores. Under
the Commonwealth there a-re at time disposal of time Arnny. whose fummetion is time- dde-nice of the
whole of Australia, edmicationmal amid traimuimug establisimments, amid resources for maintaining
co-operation amid standardizatiomu with time Bi-itisim Army which could only be provided by a
separate State at a relatively gm-eater and obviously duplicated cost.
(b) As in the ca-tn of time Army, it is presumably assumed thatthe forces in the Eastern
States do not provide any security for Western Australia. Accordingly “a-us a
separate Dominion, Western Australia could not be rime-re undefended, or more
vulmiera-ble or exposed to any greater danger than she is to-day.” and a nucleus
of an Air Force is proposed for Western Australia upon secession. (Paragraphs
673 and 675 (d) and (e).)
(b) Flyimug Boat Flights, Albanmy Area, with the- necessary siipways, &c.
The ma-irs considerations a-nd conclusions re-ga-i-ding time- defemmce and security of Western
Australia- under Fe-die-ration and as a- separate dominionu which were outlined in Part 4 relating
~!to the army apply also to the junirt played by the Air Force, except that far gre-miter emphasis
~must lie laid on the mobility of time- nmir forces in time- East. This nnobility will enumble units based
u—in Eastern States to rejumforce- time Western Australian unit-s in from two to three days, so that
~a rapid concentration of all Air F’orce units could be effected in any threatened area. It is to
this reid thmat time aerodromes a-nil handing grounds between the We-stern and Eastern States are
~- being nmaintained. -
Should Western Atustrahimu ostahulislu a nucleus Air Force of its own, th~same probleuns of
c~cducationmaIa-nil training estabhisimmemente-, and resouurr’t’s for keeping a-breast of developments
~abroad and maintaining co-operatiomu a-nd standardization with the Royal Air, Force will arise
as outlined in the- parallel case of the Army.
A feature of the case for secession is the claim that the strengthm of the defence of Western
~- Australia at the time of I’edormttionu was gueate-r time-n at present. It is important to note that
~. the- Royal Australian Air Fe-rco is a new factor which dee-s not appear to have imeerm given its
Civil Aviation -as a juoteetial source of air strength, and time- Commonwealth’s assistanco
towards its devoiupcnent in Western Australia are dealt with in l’urt 7.
(a) The munitions fume-tories are located in the eastern States, (Paragraph 675 (b).)
- (Li) Owing to the- concentration of the Forces and Defence establishments in the East.
they do not provide- any security for Western Australia. (Paragraphs 072 and
076 (d) and (a).) -
124
In‘accordance with the primiciple of Australia’s responsibility for its own local defemico, time
following Munitions Supply Organization has been estrmbiisimcd in Australia, the slum of
£3,200,000 be-tug invested therein
Clothing Factory, South Melbourne—
LTnmiform d-iotiming aiol headgear for time Naval, Military, and Air Force-a, other
Comnionu-caith ann State Departments a-nd public bodies.
Explosives Factories, Maribyrnong, Victoria—
Small arms eordite amid fuulminma-te of mmmercury.
Cordite and ca-onion cartridges for guns up to a-nd humeluding 6-inch. -
‘l’rimuitrotoluoi.
An-re-plane dope.
Am-otomne distillery and recovery plant.
Detonators.
Filling such (high explosives and shrapnel), bombs, depth clmarges and mine-s.
Filling fuzes amid primers.
An-mmu,mition Factory, Footscruy, Victoria— -
Woodworking shops.
Shell and projectile factory up to 8-in, shell.
- Toolroom for production of tools a-nil gauges. - -
Icmspec’rxoN BmUNOII.
The inspection Branch is charged with the examination of all classes of munitions during
manufacture to ensure suitability for time Military Service. When requested, it performs
similar functions for Naval and Air Services.
A section lies been formed to ensure that correct specifications and aea-lod ~arnples for
stores manufactured in Australia are obtained and kept np-to-date- for issue to manufacturers.
At Wakefield, South Australia, proof and recovery ranges for test and proof of field
artillery guns and ammunition are established.
24. TIlE NORTH-WEST AIR SERVICE AND ITS COST TO TILE COMMONWEALTH.
It has been tho policy of successive Comnmonwealtim Governments since 1020, to make
substantia-l a-nmmuai appro~uriationsjut aid of civil aviation. Westorn Australia has been allotted
a- ce-musielorabte share in tins devclopniouit pcegramcne and many of its conimunmitics hmai-o derived
benefits from tIme Conmmonuvealtlu’s aviation policy. Time l’en’thu-Wynduiaun weekly air sorvice
is the outstamudimug ilhuustu-ation, mis the rmortlm-west eo~stof Western Australia was se-lected a-s
the route br tlmo first (experimental) air service to be estmablisimed in the Conumonmwoalth, a
service, with Geraldton and J)orby as tlmo terminals, being inmaugun-ated in December, 1921.
Traverving coastal districts lacking in rail facilities and uk-penile-nt for their eornnnunications
and arneumitics on a counparati\-oly infrequent steamship service, th~~service imnnediately
became imopuilar, and, its passongem-, iimail and freight loadings were so satisfactory that it~
operations quickly passed the experimental stage. Later, the- route- wa-s oxteimuled to Perth
in the- south and %Vyndhianu in time north. -
In a(ldltie-n to thie heavy cost of establishing and unaintaimuing tine long chain of a-erodromea
a-nd emergency handing grounds necessary for the- safe and regular operation of tlii~service,
the Commonwealth (lom-ermiment paid, tinning the tweis’o years onded 31st l)ccemnbon, 1033,
subsidies of a total of £2~4,730. Against this expenditure, flue sum of £37,428 was collected
by the Postnmaster.Cenernl’s Departmu-nt in respect of air mail sure-barges, the- net subsidy
cost of the se-evicts over the period in question being approximately £247,302.
26. THE EAST-WEST AIR SERVICE AND ITS COST TO THE COMMONWEALTH.
In 1929, with the threo-foinl purpose of further aiding the develoimment of Australian air
transport, accelerating the transmission of overseas mails, a-nd improving the- cx,istin
communications between Western Australia and the Eastern States, the- Commonwealth granto
a contra-ct br the maintenance of a weekly air service betwoeum Perth a-mid Adelaiulo. With
the a~~istance of the Connnnonmwe-alth subsidy, the- contractor’s operations over this route since
Juno, 1920, bus-re- be-oh so successful that the service hess now bocemo self-supporting. During
the five-year contract period ended ‘2nd April, 1034, the Commnuifiwealth’s subsidy payments
for this service a-mounted to £180,058. After deducting payments of air mail surcharge- fees
collected by the Postmaster-General’s Department, the net subsidy cost of the service was
£147,998. -
In Western Australia some 53 aeroml-romes and emergency landing grounds have been
acquired a-nd/or leased by the Commonwealth which has also borne the- cost of their initial
preparation a-nd annual maintenance in fit condition for regularuse by aircraft. The approximate
expenditure for them period 1921 to 1933 hiss been £
Total 64,050
Policy has given to time people of \‘,‘estern Australia a full ni’alizatiomm and appreciation of a
progressive policy 1mm a iuhase of transport that is undergoing a quick clevebopmoimt. Its
advantages are particularly eviulerit in the Perth-Wyndimammi Service which it is proposed to
extend to Katherine in time Northern Territory in order to ensure fur %Vestcrn Australia- a-
satisfactory couinexion to the- overseas air service wimicle is to be inaugurated mi I)ecember,
1934. - -
A~the than huts not yet a-rrived when this sen-vico ca-n be operate-cl on a se-If-supporting
bs~is,it would be for the Western Austn’aliaum Goven-unment to consider, in time- event of Secession,
whether rue-cl to what extent it would give financial support to thus important air line.
Obviously tim Commonwealth could not in such ciremumeta-nees continue to accept the entire
financial responsibility for providing this facility and time ground organization necessary for
its safe operation. - -
Similarly, if for defence or other reasons the Govermmment of Western Australia wished to
retain time Aero Chub’s flying training movement on otherwise to develop civil fiyimg in l~s
territory, time cost of so doing would, in the event of secession, be aim amiditional eisa-n-go to that
Government’s annual a-via-tie-mm appm-opnia-tion.
Whilst the valimiity of some aspects of Commonwealth legislation in regard to aircraft a-nd
air navigation may be subject to some wmcertainty, in view e-f the absence of an express power
- under the Comistitutioms, the consensus of opinion appears to be entirely in favomir of complete
and effective Federal control, subject possibly to time- provision of safeguards against interference
or unfair competition with State transport systems. Experience has shown, moreover, that
the essential supervision of ~ivil flying in Western Australia can be- obtaimmed at relatively low-
cost under a- system of single aulnunistrative ccuntrol, which emnbmaces all aircraft operating
througimout the Australia-n Continent and Territories. - -
In the event of secession, control of aviations in Western Australian would become- the
responsibility of the local Government while-lu would have to create a scram-ate- administrative
and technical organization, the annua’ cost of while-i’ conld miot but be high in relation to the
nutr ber of aircraft a-nd personnel likely to be enmpioyed in Western Australia for se-me time to
come. Time niew Government,- if grammted Dominion status, would no doubt dosire to secure
represenutation on the Internatiomial Convention of Air Navigation and this would involve
further administrative and financial responsibilities. -
127
On the hand de-f~nee,the case of secession displays an inadequate appreciation of the principle
of Imnpenial Defenco that it is time primary responsibility of the self-governing donuinmions to
provide for their own local defence. Time- capacity of time present Ak-my Organization for the -
defence- of Western Australia is underrated amid use- incorrect conclusion reached on time- defence
of this State against invas-iomm. The same observations apply to the potentialities of time Air
Force, notwithstanding that its gm-eat mobility would enable rapid concentration to be made
at any threatened point. -
- 128 -
In regard to the munitions factories being in time cast, the answer to time critici-sm is that
their location has boon governed by consiuleratioums of their defence a-nd proximity to sources
Railway is an assured means by which an army
of raw iuiatcnials and labour. Time E.-sst~~Vest
oould be Imept supplied from thu east.
The Comnxmmonwea-lthi’s Civil Aviatiomm Policy has extemideul considerable benefits to \Voatorn
Australia by time subsidized routes thmmmt have- boon opened up and time provision made for
&mrodrozumes arid lammdiug grourmuls. Considerable firmanmcia-l obligations would fail ann tie- Western
Australia-mm Gom-ermument to maintain time-so faimilities under secession, and two Civil ~4vlation
Admimmistra-tiuns would complicate time- free movement of a-sr transport ~vhien the world trend is
towards uoiuiinnizng time- existing ba-triers.
To sumun up, time streumgthi of Western Australia’s defense-c uniTer secossion we-mid be greatly
~-eakened, tlte security of time rc-st of Australia would consequently be prejumuliceti, and
Austrahia-’s part itt Imperial Defeuic-e woulmh unof be- as etfectivc a eonmtribution as at present.
It wouhml profit Western Australia little to guilt the whole world of political autonomy, and, at
t~esame tune, prejudice the basis of its national security.