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(c) crown copyright
Catalogue Reference:CAB/23/30 Image Reference:0009
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m sight H o a . a isrHranoap $esem*OQd t S h e E i g h t H o s . t h o I t a x l o f Cs&trfor& O h i o f S a e r e l & s y f o r a s d B a 3 t 0 5 i 2 ? s ? o s * E*'f*. f i ^ s t Coxms ios ionor i
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jp t i g h t i ron , v i s c o u n t P l t s A l a n of OOBOreti t h e of 6ovoi t i p * s en t , 7 , 0 , , * o , , l o r d , o,, a , c . v , o , , r . . o , B . . qhiof o f i t e n a n t o f i r e ! a n a . the Xsar^erial ( Jonora l 4 toff * E d m r d 0 r i i 3 g * 1 U C * T ^ 0 , . 0 , H * ( ^ * ; n r . L i o n e t C u r t i s ^ C o l o n i a l o f f l o o ,
eut , q o I , j i f f M . P . A * E a n h o y . 5 , 0 , 3,9 * , * ."joc r o t a r r * '* Thomas j o n o o * r - r i n o l p a l ,\mi&$&,n% ; . ' 0 0 r o t a r y .
tap SITUATION W i t h r e f e r e n c e t o C a b i n e t SO ( 2 2 ) , 0one To s i o n 3 , .
THE FRINIE MINISTER r e p o r t e d t h a t a s e r i o u s s i t u a t i o n h a d
a r i s e n w i t h r e s p e c t t o I r e l a n d , w h i c h c a l l e d f o r a n
i m m e d i a t e d e c i s i o n . B e f o r e t h e C a b i n e t s e p a r a t e d f o r t h e
W h i t s u n t i d e h o l i d a y h e f e l t i t e s s e n t i a l t h a t t h o s e " l e f t
b e h i n d s h o u l d know t h e g e n e r a l v i e w o f t h e i r c o l l e a g u e s
on t h e l a t e s t d e v e l o p m e n t s o f t h e I r i s h q u e s t i o n .
The d r a f t C o n s t i t u t i o n c o m m u n i c a t e d b y t h e I r i s h
r e p r e s e n t a t i v e s on May 3 7 t h , THE PRIME MINISTER c o n t i n u e d ,
w a s p u r e l y r e p u b l i c a n i n c h a r a c t e r a n d b u t t h i n l y v e i l e d .
I t d i d n o t c o m p l y w i t h , t h e T r e a t y i n s u b s t a n c e o r i n f o r m . C a n a d i a n
He r e m i n d e d t h e C a b i n e t t h a t t h e p r o v i s i o n s o f t h e / G o n s t i
t u t i o n p r e s c r i b i n g t h e r e l a t i o n s b e t w e e n C a n a d a a n d G r e a t
B r i t a i n h a d o r i g i n a l l y b e e n t a k e n a s a m o d e l t o g o v e r n t h e
r e l a t i o n s b e t w e e n I r e l a n d and t h e E m p i r e . A t f i r s t t h e
I r i s h r e p r e s e n t a t i v e s h a d r e s i s t e d t h i s , b u t e v e n t u a l l y
t h e y h a d a c c e p t e d . How t h e y h a d g o n e b a c k on t h e i r a c c e p t
a n c e . O r i g i n a l l y t h e I r i s h r e p r e s e n t a t i v e s h a d d e s i r e d
a n a s s o c i a t i o n w i t h t h e B r i t i s h E m p i r e , w i t h t h e Crown a s
a s o r t o f l i n k . The B r i t i s h Government h a d r e f u s e d t h i s
and h a d i n s i s t e d t h a t t h e Crown m u s t h a v e t h e same p o s i t i o n
i n t h e Q o n s t i t u t i o n o f I r e l a n d a s I n t h e C o n s t i t u t i o n o f t h e
B r i t i s h D o m i n i o n s . The p o s i t i o n o f t h e Crown w a s n o t e a s y
t o d e f i n e e v e n i n G r e a t B r i t a i n , b u t i t w a s a f a c t , and a g r e a t e r p o t e n t i a l f o r c e , i f h e m i g h t e m p l o y s u c h a t e r m ,
arrangements t h a n a n y o t h e r i n t h e e v e r y - d a y u£4&&sr& f o r t h e g o v e r n m e n t
/ " .
o f t h e c o u n t r y . I n C a n a d a t h e G o v e r n o r - G e n e r a l a c t e d on
t h e a d v i c e o f h i s M i n i s t e r s , b u t e v e r y t h i n g w a s d o n e on
t h e a u t h o r i t y o f t h e C r o w n , w h i c h w a s t h e f o u n t and s o u r c e
o f a l l a u t h o r i t y . T h i s t h e I r i s h r e p r e s e n t a t i v e s w o u l d n o t
a c c e p t . I n . t h e i r d r a f t C o n s t i t u t i o n t h e p o s i t i o n o f t h e
r e p r e s e n t a t i v e o f t h e Grown w a s r e d u c e d t o t h a t o f a s o r t
o f C o m m i s s i o n e r . T h i s w a s t h e f i r s t p o i n t i n w h i c h t h e i r
C o n s t i t u t i o n f a i l e d t o s t a n d t h e t e s t .
The s e c o n d t e s t w a s i n r e g a r d t o t h e c o n c l u s i o n o f
T r e a t i e s w i t h f o r e i g n P o w e r s . ' T h i s w a s a q u e s t i o n w h i c h
h a d b e e n d i s c u s s e d a t g r e a t l e n g t h a t t h e l a s t I m p e r i a l
C o n f e r e n c e . B e f o r e t h e T a r , a l l T r e a t i e s h a d b e e n e o n
e l u d e d b y t h e B r i t i s h Gove rnmen t , and t h e r e m a i n d e r o f t h e
E m p i r e h a d n o t b e e n c o n s t i l t e d . S i n c e t h e W a r , h o w e v e r , i t
h a d b e e n a g r e e d t o c o n s u l t t h e o t h e r p a r t s o f t h e E m p i r e
a n d n o t t o t a k e a n y d e c i s i o n a f f e c t i n g t h e m w i t h o u t t h e i r
c o n s e n t . I t h a d b e e n u n d e r s t o o d , h o w e v e r , t h a t w h e n
a g r e e m e n t w a s r e a c h e d , t h e m a c h i n e r y of t h e F o r e i g n O f f i c e
s h o u l d b e u s e d f o r c o n c l u d i n g T r e a t i e s . The I r i s h now
c l a i m e d a r i g h t t o make t h e i r own T r e a t i e s .
The t h i r d t e s t r e l a t e d t o t h e J u d i c i a l C o m m i t t e e o f
t h e P r i v y C o u n c i l . T h i s w a s a v e r y i m p o r t a n t m a t t e r , a s
q u e s t i o n s w o u l d a r i s e b e t w e e n S o u t h e r n I r e l a n d a n d U l s t e r
a n d b e t w e e n t h e Government a n d t h e m i n o r i t i e s , and s o f o r t h ,
j u s t " a s t h e y d i d i n C a n a d a i n r e g a r d t o t h e p o s i t i o n o f t h e
F r e n c h . I n t h e C o n s t i t u t i o n s u b m i t t e d b y t h e I r i s h , t h e
I r i s h Sup r eme C o u r t w a s t h e f i n a l C o u r t o f A p p e a l a n d t h e
C o m m i t t e e o f t h e P r i v y C o u n c i l w a s d e f i n i t e l y e x c l u d e d .
The f o u r t h t e s t w a s t h a t t h e o a t h w a s o m i t t e d a l t o g e t h e r
f rom t h e i r d r a f t C o n s t i t u t i o n . I t e n a b l e d t h e m , i f t h e y
w i s h e d , t o a l t e r t h e T r e a t y .
The f i f t h p o i n t a r o s e i n c o n n e c t i o n w i t h t h e p r o v i s i o n
i n t h e T r e a t y t h a t when t h e P r o v i s i o n a l Government w a s
a p p o i n t e d a l l t h e M i n i s t e r s w o u l d h a v e t o d e c l a r e i n
w r i t i n g t h e i r a d h e s i o n t o t h e T r e a t y . U n d e r t h e p a c t
c o n c l u d e d w i t h t h e P a r t y o f Do V a l e r a , h o w e v e r , t h e l a t t e r
w o u l d h a v e t h e r i g h t t o a p p o i n t f o u r M i n i s t e r s , The I r i s h
r e p r e s e n t a t i v e s w o u l d n o t s a y w h e t h e r t h e s e f o u r M i n i s t e r s
w o u l d be w i l l i n g t o t a k e t h e O a t h . I f t h e y w e r e n o t , t h e n
t h a t w o u l d b e a b r e a c h o f t h e T r e a t y .
The s i x t h p o i n t w a s t h a t t h e d r a f t C o n s t i t u t i o n d i d n o t
r e c o g n i s e t h e p o s i t i o n o f U l s t e r . THE PRIME MINISTER
a d m i t t e d , h o w e v e r , t h a t t h i s p o i n t d i f f e r e d f rom t h e o t h e r s
a n d w a s n o t s o c l e a r l y a b r e a c h o f t h e T r e a t y . I n r e p l y t o
t h e M i n i s t e r o f E d u c a t i o n , h e s a i d t h a t t h e w r i t s w o u l d n o t
r u n i n t h e name o f t h e Grown, a n d t h a t t h e Grown w a s n o t
t h e s o u r c e a n d f o u n t a i n o f a u t h o r i t y .
C o n t i n u i n g , THE PRIME MINISTER s a i d t h a t t h e C o n s t i t u t i o n
a s s u b m i t t e d b y t h e I r i s h r e p r e s e n t a t i v e s w a s n o t b a s e d on
t h e M o n a r c h i c a l p r i n c i p l e , a n d d i d n o t b r i n g I r e l a n d i n s i d e
t h e B r i t i s h E m p i r e . The K i n g w a s n o t p a r t o f t h e L e g i s l a
t u r e . He w o u l d n o t a p p o i n t t h e M i n i s t e r s , n o r w o u l d b e
snraraon o r d i s s o l v e P a r l i a m e n t .
As t h e C o l o n i a l S e c r e t a i y ^ i n h i s b r i l l i a n t S p e e c h i n
t h e House o f Commons on t h e p r e v i o u s d a y ( t o w h i c h h e f e l t
s u r e t h e w h o l e C a b i n e t w o u l d p a y a t r i b u t e ) h a d s a i d , t h e
I r i s h r e p r e s e n t a t i v e s h a d e m p h a t i c a l l y d e c l a r e d t h a t t h e y
d i d a d h e r e t o t h e T r e a t y . The L o r d C h i e f J u s t i c e , h o w e v e r ,
who h a d b e e n c o n f e r r i n g \c i th t h e m f o r two d a y s , h a d come
b a c h w i t h a somewhat d i s m a l s t o r y o f their a t t i t u d e i n t h i s
r e s p e c t . ,
THE LORD PRIVY SEAL s a i d he t h o u g h t t h e C a b i n e t o u g h t t o
know why t h e I r i s h d r a f t C o n s t i t u t i o n h a d n o t b e e n c i r c u l a t e d .
The B r i t i s h . S i g n a t o r i e s o f t h e T r e a t y h a d p r o c e e d e d on t h e
a s s u m p t i o n t h a t t h e d r a f t C o n s t i t u t i o n w a s t h e n e g a t i o n o f
t h e T r e a t y . T h e y h a d f e l t , h o w e v e r , t h a t i f t h e I r i s h , w e r e
t o b e i n d u c e d t o amend t h e C o n s t i t u t i o n a n d b r i n g i t i n t o
l i n e w i t h t h e T r e a t y , a s a t f i r s t t h e y s e e m e d i n c l i n e d t o
d o , i t w a s v i t a l t o p r e s e r v e s e c r e c y . I t w o u l d h a v e p u t
t h e m i n a n i m p o s s i b l e p o s i t i o n i f i t l e a k e d o u t t h a t t h e y
h a d come o v e r w i t h one C o n s t i t u t i o n and g o n e b a c k t o I r e 3 a n d
w i t h a n o t h e r .
At t h i s p o i n t THE PRIME MINISTER s t a r t e d t o r e a d a Note
p r e p a r e d b y t h e L o r d C h i e f J u s t i c e on t h e p r o g r e s s o f h i s
n e g o t i a t i o n s w i t h Mr K e n n e d y , I C G . ( S . F . ( b ) 6 0 ) ( A p p e n d i x I ) .
A f t e r t h e P r i m e M i n i s t e r h a d p r o c e e d e d a s h o r t d i s t a n c e ,
THE SECRETARY OP STATE POP. THE COLONIES a n d THE LORD PRIVY
SEAL i n t e r r u p t e d - t o e x p l a i n t h a t t h e C a b i n e t h a d n o t y e t
s e e n t h e c r i t i c i s m s o f t h e I r i s h C o n s t i t u t i o n p r e p a r e d b y
t h e B r i t i s h S i g n a t o r i e s o f t h e T r e a t y . THE LORD PRIVY SEAL ( A p p e n d i x I I ) ,
t h e r e f o r e f i r s t r e a d t h e s e c r i t i c i s m s ( S . P . ( e ) 3 5 ) y - a f t e r
w h i c h THE PRIME MINISTER c o m p l e t e d r e a d i n g S , F , ( b ) SO.
On t h e c o m p l e t i o n o f t h e r e a d i n g o f t h e a b o v e d o c u m e n t s ,
THE MINISTER OP HEALTH o b s e r v e d t h a t t h e p o s i t i o n a p p e a r e d
t o b e e x a c t l y wha t i t w a s a t t h e t i m e o f t h e I n v e r n e s s
m e e t i n g s ,
THE FIRST COMMISSIONER OP WORKS r e m a r k e d t h a t i t w a s ,
i n some r e s p e c t s , w o r s e , a s t h e d r a f t C o n s t i t u t i o n a p p e a r e d
t o b e a d e l i b e r a t e b r e a c h o f t h e T r e a t y . I t %?as e v i d e n t
t h a t t h e d r a u g h t s m a n m u s t h a v e b e e n i n s t r u c t e d t o p r e p a r e a
C o n s t i t u t i o n on t h e s e l i n e s t h r e e m o n t h s a g o .
THE PRIME MINISTER a g r e e d t h a t t h e d r a u g h t s m a n m u s t h a v e
a c t e d : u n d e r i n s t r u c t i o n s . He f e l t t h a t t h e r e s h o u l d b e no
f u r t h e r p o s t p o n e m e n t . The f i r s t t h i n g t o be done w a s for
t h e C a b i n e t t o a s c e r t a i n t h e e x a c t p o s i t i o n , w h e t h e r t h e
I r i s h r e p r e s e n t a t i v e s p r o p o s e d t o c a r r y o u t t h e T r e a t y o r
n o t . S e c o n d , i f t h e y d e c i d e d t o t a k e t h i s a c t i o n , t h e
C a b i n e t w o u l d h a v e t o s e t t l e i n w h a t f o r m t h e y s h o u l d p u t
t h e q u e s t i o n ; f o r e x a m p l e , w h a t s p e c i a l p o i n t s s h o u l d b e
p u t . T h i r d , t h e y h a d t o d e c i d e w h a t a c t i o n s h o u l d b e t a t e n
i f t h e I r i s h r e f u s e d t o b r i n g t h e i r C o n s t i t u t i o n i n t o l i n e
w i t h t h e T r e a t y .
THE MINISTER OP EDUCATION a s k e d i f t h e p o s i t i o n h a d
c h a n g e d s i n c e t h e C a b i n e t c o n s i d e r e d i t on May 3 0 t h ?
- 4
THE PRIME MINISTER r e p l i e d t h a t t h e p o s i t i o n h a d c h a n g e d .
On May 3 0 t h t h e s u g g e s t i o n h a d b e e n t h a t t h e C o n s t i t u t i o n
w a s o n l y a d r a f t and t h a t t h e I r i s h r e p r e s e n t a t i v e s w e r e
p e r f e c t l y r e a d y t o b r i n g i t i n t o l i n e w i t h t h e T r e a t y t o
w h i c h t h e y a d h e r e d . The p o s i t i o n t o d a y w a s t h a t t h e L o r d
C h i e f J u s t i c e , a f t e r d i s c u s s i n g t h e C o n s t i t u t i o n w i t h t h e
I r i s h l e g a l r e p r e s e n t a t i v e , h a d r e p o r t e d t h a t h e c o u l d make
no p r o g r e s s , a n d h a d h a n d e d t o t h e P r i m e M i n i s t e r t h e d o c u
meht (S . F . ( b ) 6 0 ) c o n t a i n i n g t h e f o l l o w i n g n o t e on t h e l a s t
p a g e :
"Mr Kennedy s t a t e d t h a t h e w a s I n s t r u c t e d t h a t , a c c o r d i n g t o t h e v i e w s o f t h e I r i s h M i n i s t e r s , P a r l i a m e n t I s n o t t o h e Summoned o r d i s s o l v e d , n o r a r e M i n i s t e r s , J u d g e so t h e r p u b l i c o f f i c e r s , t o "be a p p o i n t e dt h e name o f t h e Crown , a s i n C a n a d a " *
o r i n
THE LORD PRIVY SEAL p o i n t e d o u t t h a t t h i s n o t e w a s i n i
t i a l l e d by Mr Kennedy a n d t h e L o r d C h i e f J u s t i c e .
THE PRIME MINISTER s a i d t h a t t h e i d e a h a d b e e n t h a t two
members o f t h e Government s h o u l d s e e t h e I r i s h r e p r e s e n t s
t i v e s t h a t a f t e r n o o n .
THE LORD PRIVY SEAL r e c a l l e d t h e c i r c u m s t a n c e s i n w h i c h
t h e B r i t i s h S i g n a t o r i e s o f t h e T r e a t y h a d m e t Mr G r i f f i t h ,
a n d Mr C o l l i n s . The two l a t t e r g e n t l e m e n h a d f i r s t a s k e d
t o s e e t h e P r i m e M i n i s t e r , who h a d f e l t , h o w e v e r , t h a t i t
w o u l d b e b e t t e r i f h e w e r e a c c o m p a n i e d b y some o f h i s c o l
l e a g u e s , The C o n v e r s a t i o n h a d n o t b e e n o p e n e d b y t h e Iri3h r e p r e s e n t a t i v e s , b u t by t h e P r i m e M i n i s t e r hires e l f , The
P r i m e M i n i s t e r h a d i n f o r m e d t h e I r i s h r e p r e s e n t a t i v e s t h a t
h e h i m s e l f h a d o n l y b e e n a b l e t o g l a n c e a t t h e C o n s t i t u t i o n
w h i l e d r i v i n g t o Downing S t r e e t , and t h a t h i s c o l l e a g u e s
a l s o h a d n o t h a d t i m e f o r a c o m p l e t e s t u d y o f i t . He had. ,
h o w e v e r , t a k e n a v e r y s e r i o u s v i e w o f t h e s i t u a t i o n a s d i e
c l o s e d b y a p r e l i m i n a r y r e a d i n g , Mr G r i f f i t h a n d Mr C o l l i n s
h a d t h e n r e p l i e d t h a t t h e d r a f t C o n s t i t u t i o n w a s m e a n t t o b e
- 5
i n c o n f o r m i t y w i t h t h e T r e a t y . T h i s h a d b e e n r e p e a t e d l a t e r
"by t h e m s e l v e s a n d b y o t h e r I r i s h r e p r e s e n t a t i v e s i n a more
f o r m a l m e e t i n g . S u b s e q u e n t l y , L o r d H e w a r t h a d me t Mr Kennedy
i n o r d e r t o d i s c u s s t h e C o n s t i t u t i o n . A f t e r t h e f i r s t m e e t
i n s L o r d H e w a r t h a d a p p e a r e d h o p e f u l ; a f t e r t h e s e c o n d m e e t
i n g , h o w e v e r , h e h a d r e p o r t e d t h a t h e c o u l d g e t no f u r t h e r ,
a n d h i s r e p o r t i n c l u d e d t h e s t a t e m e n t w h i c h h a d j u s t b e e n
r e a d .
THE LORD PRESIDENT OF THE COUNCIL a s h e d w h a t w a s t h e
r e a s o n f o r t h i s v o l t e - f a c e ?
' - THE LORD PRIVY SEAL s a i d t h a t i t c e r t a i n l y w a s n o t Mr
C h u r c h i l l ' s s p e e c h , w h i c h , a c c o r d i n g t o a l l . a v a i l a b l e i n f o r m
a t i o n , h a d n o t b e e n o b j e c t e d t o b y t h e I r i s h r e p r e s e n t a t i v e s : .
He c o u l d o n l y g u e s s t h e r e a s o n . H i s g u e s s w o u l d be t h a t
When t h e I r i s h r e p r e s e n t a t i v e s r e c e i v e d t h e c r i t i c i s m s of
t h e C o n s t i t u t i o n t h e y h a d r e a l i s e d t h a t t h e g a p b e t w e e n t h e
two p a r t i e s w a s t o o l a r g e t o be b r i d g e d . They h a d s e e n
t h a t t h e y m u s t e i t h e r q u a r r e l w i t h De V a l e r a o r w i t h t h e
B r i t i s h . G o v e r n m e n t . T h i s t h e o r y w a s r a t h e r b o r n e o u t b y
t h e w a y t h e y h a d u s e d t h e i n t e r v a l , n a m e l y , t o a s k f o r a
m e e t i n g w i t h t h e P r i m e M i n i s t e r a i d t o r a i s e t h e q u e s t i o n
o f t h e d i s t u r b a n c e s i n U l s t e r .
THE PRIME MINISTER p o i n t e d o u t t h a t t h e a t t i t u d e o f t h e
I r i s h r e p r e s e n t a t i v e s w a s t h a t t h e i r p o s i t i o n w a s r e n d e r e d
i m p o s s i b l e b y e v e n t s i n U l s t e r . They m a i n t a i n e d t h a t t h e
Roman C a t h o l i c p u b l i c i n t h e S o u t h w a s s o e x c i t e d b y w h a t
h a d h a p p e n e d i n U l s t e r t h a t i t p r e v e n t e d them f rom g o i n g
a n y f u r t h e r .
THE LORD CHANCELLOR s a i d h e h a d l i t t l e d o u b t t h a t t h e
I r i s h r e p r e s e n t a t i v e s h a d come t o t h e c o n c l u s i o n t h a t t h e y
w o u l d h a v e t o q u a r r e l e i t h e r w i t h De V a l o r a o r w i t h t h e
B r i t i s h G o v e r n m e n t . T h e y w e r e , no d o u b t , i n f l u e n c e d b y t h e
a t t i t u d e o f t h e i r c r i t i c s , who p o i n t e d t o t h e m u r d e r s i n
1 9 n i o i
crit ics U l s t e r , w h e r e , a s these/ no d o u b t p o i n t e d o u t , t h e r e w a s a
l a r g e B r i t i s h Arm:/ a s w e l l a s $ one 4 8 , 0 0 0 S p e c i a l P o l i c e ,
t o w a r d s t h e u p k e e p o f w h i c h t h e B r i t i s h Government h a d
c o n t r i b u t e d 5 5 , 0 0 0 , 0 0 0 . T h a t , h e b e l i e v e d , w a s Mr C o l l i n s '
c a s e ,
THE SECRETARY OP STATE FOR THE COLONIES p o i n t e d o u t
t h a t a v e r y s e r i o u s c a s e c o u l d b e made o n t h e o t h e r s i d e .
I t e o u l d be shown t h a t t h e s u p p o r t e r s o f t h e S i n n F e i n
p a r t y i n U l s t e r , w i t h t h e s u p p o r t o f t h e I . R . A , , w a s
m a k i n g g o v e r n m e n t i m p o s s i b l e i n t h e N o r t h . So f a r a s h e
c o u l d a s c e r t a i n , t h e y h a d b e e n d e l i g h t e d w i t h h i s s p e e c h
i n t h e House o f Commons on t h e p r e v i o u s d a y .
THE LORD PRIVY SEAL p o i n t e d out t h a t two d a y s a g o Mr
C o l l i n s h a d b e e n i n d u c e d w i t h t h e g r e a t e s t d i f f i c u l t y t o
come t o h i s own room i n t h e House o f Commons, On t h e
p r e v i o u s d a y , h o w e v e r , t h e y h a d a s k e d f o r t i c k e t s t o l i s t e n
t o t h e D e b a t e , s i d h a d t a k e n t h e mos t p r o m i n e n t s e a t s I n t h e
D i s t i n g u i s h e d S t r a n g e r s ' G a l l e r y ,
THE SECRETARY OF STATE FOR THE COLONIES f e l t v e r y l i t t l e
doubt/ t h a t t h e I r i s h r e p r e s e n t a t i v e s w e r e d r i f t i n g a b o u t i n
g r e a t u n c e r t a i n t y , r e f u s i n g t o f a c e t ip t o e i t h e r s i d e ,
THE PRIME MINISTER t h e n r e a d a b u l l e t i n w h i c h h a d b e e n
i s s u e d b y t h e I r i s h . P u b l i c i t y D e p a r t m e n t , i n w h i c h s t a t i s
t i c s w e r e g i v e n I n r e g a r d t o t h e m u r d e r s I n B e l f a s t o v e r a
p e r i o d dru- ing w h i c h t h e m u r d e r s o f C a t h o l i c s h a d g r e a t l y
e x c e e d e d t h e m u r d e r s o f P r o t e s t a n t s . T h i s , h e f e l t , w a s
u n d o u b t e d l y t h e w e a k e s t p a r t o f t h e B r i t i s h e a s e .
Tm SECRETARY OP STATE FOR THE COLONIES p o i n t e d o u t k
t h a t t h e e a s e h a d n o t b e e n s t a t e d f o r t h e o t h e r s i d e , a n d
t h a t a t e r r i f i c c a s e c o u l d b e made o u t b y S i r J a m e s C r a i g .
S p r e a d o v e r a p e r i o d o f t h r e e y e a r s , t h i s c a s e w o u l d show
v e r y b i g f i g u r e s o f m u r d e r s by t h e C a t h o l i c s .
SHE MINISTER OF HEALTH a s k e d w h e t h e r t h e p r e s e n t a t t i t u d e
o f t h e I r i s h w a s n o t m e r e l y p r e p a r i n g t h e way f o r t h e
r e s i g n a t i o n o f Mr G r i f f i t h a n d Mr C o l l i n s ? How, h e a s k e d , c o u l d
t h e y e v e r h o p e t o w o r k w i t h De V a l e r a a n d h i s s u p p o r t e r s a n d y e t
c a r r y o u t t h e T r e a t y ? He a s k e d w h a t w o u l d h a p p e n i f a n u l t i
matum w e r e g i v e n t o t h e I r i s h , w i t h t h e r e s u l t t h a t t h e P r o
v i a i o n a l Government w e r e t o r e s i g n ?
THE PRIME MINISTER p o i n t e d o u t t h a t t h a t w a s t h e d i f f i
c u l t y t h a t h a d f a c e d t h e m f o r some d a y s .
THE MINISTER OP EDUCATION a s k e d w h e t h e r more c o u l d b e d o n e
a t p r e s e n t t h a n t h e f o l l o w i n g :
( l ) To s a y t h a t t h e C o n s t i t u t i o n w a s a l t o g e t h e r u n a c o e p t a b l e :
( 2 ) To u n d e i ^ t a k e t h e r e s t o r a t i o n o f o r d e r i n B e l f a s t by means o f m a r t i a l l a w o r a n y o t h e r a v a i l a b l e m e t h o d :
( g ) To i n i t i a t e a f u l l e n q u i r y b y t h e C o m m i s s i o n i n t o t h e B e l f a s t d i s o r d e r s a n d o u t r a - g e s .
I f t h e P r o v i s i o n a l Government w e r e t o r e s i g n , t h e B r i t i s h d o v e m
m e n t w o u l d b e f r e e t o t a k e w h a t a c t i o n t h e y t h o u g h t f i t , a n d t o
do i t i n t h e i r own t i m e . Why, h e a s k e d , s h o u l d t h e y t a k e a n y
a c t i o n i n o t h e r p a r t s o f I r e l a n d b e f o r e t h e y h a d r e s t o r e d o r d e r
i n t h e N o r t h , w h e r e t h e y h a d a s s u m e d c e r t a i n r e s p o n s i b i l i t i e s ?
THE LORD PRIVY SEAL a s k e d why Mr F i s h e r p u t U l s t e r i n t h e
d o c k a n d i g n o r e d t h e South , of I r e l a n d ?
THE MINISTER OF EDUCATION s a i d h e h a d a s s u m e d i t w a s
p r o b a b l e t h a t t h e r e w o u l d b e a b r e a k w i t h t h e S o u t h o f I r e l a n d .
P r e j u d i c e , h o w e v e r , w o u l d b e e x c i t e d b y t h e f a c t t h a t t h e
o u t r a g e s h a d b e e n m o r e i n t e n s e i n B a l f a s t t h a n e l s e w h e r e ,
w h e r e t h e B r i t i s h Government w a s p a y i n g f o r p a r t o f t h e f o r c e s
f o r t h e m a i n t e n a n c e o f o r d e r .
THE CHANCELLOR OF THE EXCHEQUER explained that there was some misunderstanding, as to the British payments on aeehunt of forces in Ulster, The Ulster Government bore the cost of all the ordinary Constabulary, and half the cost of the Special Constabulary, the other half being borne by the British Government. The charge actually incurred by the British Government up to September was not £ 5 , 0 0 0 , 0 0 0 hut £ 8 0 0 , 0 0 0 . It was true that ih e northern Parliament were asking for a larger subvention, which the British Parliament had not
/n yet paid. The Ulster Government invited the fullest inspectio and
/enquiry by the British Government into the way they performed their duties *
THE LORD CHANCELLOR s a i d t h a t
/ the figure of £ 5 , 0 ) 0 , 0 0 0 had arisen in this way :if the present situation continued and did not improve the total expenditure by the British Government might possibly reach £ 5 , 0 0 0 , 0 0 0 ,
THE MINISTER OF AGRICULTURE observed that the sal lent point speared to him to be that the moment the draft Constitution was published, there would be a great outburst among those who had supported the Government in their Irish policy, but with some misgivings. These would claim that the Constitution was the negation of all that they stood for.
THE CHANCELLOR OF THE EXCHEQUER made the following remarks as to the three questions mentioned by the Prime Minister :
( 1 ) He thought that action must be taken at once in order to satisfy those who had supported the Government
with/
with misgivings, and to whom Sir Arthur Griffith Boscawen had alluded.
(g) If the Irish representatives were onlyasked in general terns if they were supporting the Treaty, they would only give an answer in general terms. 'It was essential to put specific points to them, though he admitted it was difficult to select the points.
THE PRIME MINISTER pointed out that the third point he had put was what was to be done if the answer to the first question was unsatisfactory.
THE FIRST COMMISSIONER OF WORKS expressed doubts as to -whether the Irish Provisional Government would fulfil their promise to publish the Constitution.
THE SEC RET AR Y OF STATE FOR THE COLONIES thought they would fulfil their promise. They were pledged to Be Valera to do so. He admitted that in their desire to wriggle out of a c j i a r r o l , w i t h either side they might shrink from publication, but he thought that in the end they YJOuld publish something. The question for decision now was whether t o mace our break with the Irish now by unfolding our terms and demanding a categorical answer.
THE LORD PRIVY SEAL said that what was required was the view of the Cabinet on this question. He suggested that there should be an interval of five minutes during which the Cabinet should read a tabular comparison which had been prepared between the Canadian Constitution and the draft Irish Constitution, S.F,(C) 3 5 .
THE/
THE PRIME MINISTER s a i d t h a t t h e p o i n t s s t o o d
o u t c l e a r l y i n w h i c h t h e I r i s h d r a f t C o n s t i t u t i o n
c o n f l i c t e d with , t h e C a n a d i a n ^ The most m a r k e d
p o i n t s of d i f f e r e n c e w e r e a s f o l l o w s :
(1) The p o s i t i o n o f t h e Crown w a s r e p u d i a t e d .
( s ) The T r e a t y m a k i n g p o w e r w a s v e s t e d i n t h e
I r i s h G o v e r n m e n t .
( 3 ) The J u d i c i a l C o m m i t t e e of t h e P r i v y
C o u n c i l was r e j e c t e d a s t h e f i n a l C o u r t o f A p p e a l .
( 4 ) The Oa th was n o t i n c l u d e d i n t h e Document .
Thus t h e I r i s h w e r e c h a l l e n g i n g t h e mos t
f u n d a m e n t a l p o i n t s of t h e T r e a t y .
The q u e s t i o n t o b e d e c i d e d was w h a t w a s t o be
d o n e i n t h e f a c e o f t h a t a t t i t u d e , when i t s h o u l d be
done and how i t s h o u l d b e d o n e . The f i r s t p o i n t t o
d e c i d e w a s a s t o w h e t h e r t h e t i m e had come f o r
d e m a n d i n g an e x p l i c i t a n s w e r on v i t a l d e f i n i t e
q u e s t i o n s .
THE LORD PRIVY SEAL s a i d i t w a s c l e a r t h a t i t
w a s i m p o s s i b l e t o a c c e p t a n y t h i n g I n t h e n a t u r e of
t h e i r C o n s t i t u t i o n . I f t h e y c o u l d no t c o n f o r m t o
t h e r e q u i r e m e n t s o f t h e T r e a t y a s s e t f o r t h i n t h e
B r i t i s h Memorandum, t h e B r i t i s h Gove rnment o u g h t
t o r e s u m e t h e i r f r e e d o m .
THE "SECRETARY OP STATE PGR WAR u r g e d t h a t t h e
s i t u a t i o n s h o u l d b e c l e a r e d up a t o n c e , o t h e r w i s e
t h e i s s u e w o u l d b e c o n f u s e d b y b o r d e r r a i d s and
s o f o r t h . At p r e s e n t t h e r e wa s a c l e a r i s s u e , a n d
a d v a n t a g e s h o u l d b e t a k e n o f t h i s s i t u a t i o n .
- 1 1 - THE/
THE MINISTER OP HEALTH pointed but that the Irish Representatives would probably wish to return to Dublin to confer with their friends.
THE PRIME MINISTER said it would be necessary to permit this.
THE MINISTER OP E.JUCAT lOii said it was clear that the Irish must be told to-day that their draft Constitution could not be accepted.
THE LORD PRESIDENT OP THE COiJMCIL said that he would tell them in broad terms that this draft d i d n o t c a r r y out t h e T r e a t y , a n d t h a t i f t h e y
would not bring t h e i r draft into line with the Treaty the British Government must hold themselves free. His advice would be to sent for Sir James Graig and to consult with M m as to the position in Belfast. I n addition he would take the military s t e p s w h i c h had been mentioned on the previous day,
* and' he would consider the desirability o f establishing a blockade.
THE PRIME MINISTER then pointed out that instead of a blockade it might b e better to take steps to curtail the revenue. He had consulted the Chief o f t h e Imperial General S t a f f on certain military questions connected v/ith this, and Lord Cavan had very properly replied that he required time for further consideration. He did not see how the Cabinet could separate without taking a decision on this question.
The proposal was that two or three members
- 1 2 - of/
o f t h e C a b i n e t s h o u l d s e e t h e I r i s h R e p r e s e n t a t i v e s *
T h e y had f e l t , h o w e v e r , t h a t t h e C a b i n e t m u s t h e
c o n s u l t e d f i r s t i n o r d e r to a s c e r t a i n w h e t h e r t h e y
we r e u n a n i m o u s l y i n f a v o u r o f a s t r o n g d e c l a r a t i o n
f a c i n g t h e I r i s h P r o v i s i o n a l Government w i t h t h e
T r e a t y ,
He w o u l d a l s o l i k e t h e C a b i n e t t o c o n s i d e r
t h e f o l l o w i n g p o i n t s t o - m o r r o w
( 1 ) The r e p l y of t h e I r i s h R e p r e s e n t a t i v e s ,
( 2 ) The R e p o r t of t h e C h i e f o f t h e I m p e r i a l
G e n e r a l S t a f f ,
( 3 ) The R e p o r t w h i c h he hoped t h e A d m i r a l t y
w o u l d f u r n i s h i n r e g a r d t o t h e a s s i s t a n c e th ey
c o u l d g i v e .
He t h o u g h t t h a t b e f o r e t h e nexrt; m e e t i n g o f
t h e C a b i n e t t h e r e s h o u l d b e a c o n s u l t a t i o n b e t w e e n
r e p r e s e n t a t i v e s o f t h e A d m i r a l t y , War O f f i c e
and A i r M i n i s t r y on t h e v a r i o u s m i l i t a r y q u e s t i o n s
i n v o l v e d ,
THUS LORD PRIVY SEAL pointed out that if there were a "break with the Irish Representatives the position of loyalists in the South of Ireland might he very serious. He hoped, therefore, that the question of refugee camps would not he overlooked.
THE SBCBETAKY OP STATE POR THE COLONIES said that after the receipt of the document hy Lord Hewart and Mr. Kennedy, It was irapossihle for us to allow the situation to go on for 24 hours without making it clear that the Constitution would have to he re-drafted if we were to he satisfied. That, in his view, was the host way of getting to "business and there might he in that way, still a chance of their coming to heel.
He agreed that if necessary the Irish Representatives must he allowed to go hack to Buhlin to consult with their colleagues, Though they need not he given an ultimatum it should he understood that &w must he/nlg&tuU, within a few days. He douhted if it was any use meeting them again. He thought it would he hotter to hand them a document stating precisely the view of the British Government. If they were allowed to meet again, they would wander weakly over the whole suhject once more without reaching any decision. If they were really desirous of a final issue it would have been different. The point was, however, that the Government ought to know definitely whether they intended t o adhere t o the Treaty. As regards the steps to he taken in the event of a refusal on the part of the Irish to adhere to the Treaty, he thought the "best plan would he to appoint a Committee to prepare a general report on the
/investigations
i n v e s t i g a t i o n s w h i c h h a d a l r e a d y b e e n c a r r i e d o u t .
T h i s w o u l d t a k e two o r t h r e e d a y s .
THE PRIME MINISTER s a i d t h a t t h e C a b i n e t
o u g h t t o h a v e a g e n e r a l i d e a o f t h e p o s i t i o n b e f o r e
t h e y s e p a r a t e d . He d i d n o t t h i n k i t p o s s i b l e t o
p o s t p o n e -srfc f o r two o r t h r e e d a y s .
THE SECRETARY OP STATE FOR THE COLONIES p o i n t e d ,
ou t t h a t no t o n l y m i l i t a r y c o n s i d e r a t i o n s b u t
a l s o e c o n o m i c a n d f i n a n c i a l i s s u e s w e r e i n v o l v e d .
THE LORD CHANCELLOR h o p e d t h a t , i n v i e w o f t h e
g r a v i t y of t h e d e c i s i o n t o b e t a k e n , a f r e s h m e e t i n g
e f t h e C a b i n e t w o u l d b e h e l d on t h e m o r r o w . He
i n c l i n e d , t o t h e v i e w t h a t a f u r t h e r m e e t i n g w i t h t h e
I r i s h t h a t a f t e r n o o n w o u l d b e o f no u s e . The I r i s h
r e p r e s e n t a t i v e s w o u l d m e r e l y g i v e f u r t h e r e x p r e s s i o n
t o t h e i r g o o d w i l l a n d g o o d i n t e n t i o n s , but no r e s u l t
w o u l d b e a c h i e v e d . As a l a w y e r h e f e l t t h a t t h e t i m e
h a d come when s o m e t h i n g s h o u l d be p l a c e d on r e c o r d .
THE PRIME MINISTER s u g g e s t e d t h a t i f t h a t w a s
t h e v i e w o f t h e C a b i n e t , i t w o u l d b e a d v i s a b l e t o
a p p o i n t a C o m m i t t e e t o d r a f t a d o c u m e n t .
THE LORD PRIVY SEAL t h o u g h t i t i n a d v i s a b l e t o
h a v e a n e l a b o r a t e d o c u m e n t . He w o u l d m e r e l y s a y t h a t
t h e Government h a d r e c e i v e d t h e r e p o r t o f t h e L o r d
C h i e f J u s t i c e on h i s i n t e r v i e w w i t h M r , K e n n e d y w h i c h
w a s t o t h e e f f e c t t h a t t h e C o n s t i t u t i o n w a s i n c o m p a t i b l e
w i t h t h e T r e a t y . He w o u l d t h e n s i m p l y a s k t h e q u e s t i o n
a s to w h e t h e r t h e I r i s h w o u l d b r i n g t h e i r C o n s t i t u t i o n
i n t o l i n e w i t h t h e T r e a t y a s s e t f o r t h i n t h e document
of c r i t i c i s m s e n t t o t h e m a f e w d a y s b e f o r e ( S . F . ( C ) 3 ! ? )
THE LORD PRESIDENT OE THE COUNCIL a g r e e d w i t h
t h e P r i m e M i n i s t e r t h a t t h e s i t u a t i o n i n U l s t e r c r e a t e d
t h e m a i n d i f f i c u l t i e s . The U l s t e r v i e w w a s t h a t
" V / t h e s e
these outrages were not only due to old-standing animosities between the Roman Catholics and the
o
Protestants, but were being deliberately fermented from the South with a view to breaking up the whole Treaty policy. He did not know which side was telling the truth, but it was vital that everything possible should be done to put ourselves right \vith the world and to shew that we are doing all that we can to put a stop to the murders of catholics and the counter a^&ssirhfrJsns of protest ant a. Hence, he felt it was very important to consult with Sir James Craig as to the best way of crushing out this disorder and to utilise the military forces available for the purpose in this comparatively restricted area.
- Prom a letter from Sir James Craig which he had been shewn, he gathered that the latest phase of the disorder was a succession of serious cases of criminal arson. This aspect of the question mist also be considered.
' , THE SECRETARY OP STATE POR THE COLONIES suggested that some members of the Cabinet who felt strongly on the Ulster situation should make a point of seeing Sir James Craig.
THE PRIME MINISTER agreed, but wished the Whole world, whether Catholic or Protestant to feel that the British Government was doing its utmost impartially to deal with the situation.
THE LORD PRIVY SEAL suggested that Lord Balfour should see Sir James Craig.
THE PRIME MINISTER agreed and urged that Lord Balfour should put the matter in its widest aspects with the idea of strengthening the general position of
- 1 6 - /the British
the British Government before the Empire and the world. THE MIHXSTBH OF EDUCATION said that on the
previous day a distinguished Canadian j u d g e - Protestant * h a d come t o see him and^said t h a t the general opinion i n Canada was that we had mads a fair off61* to the Irish but t h e murders i n Belfast w e r e causing anxiety and he, as a judge, was impressed with the fact t h a t there had bean no punishment of t h e murderers. That was having a considerable e f f e c t .
SIR MAURICE HAWKEY reported t h a t on t h e same morning h e h a d seen Sir Charles Gordon who h a d been one of t h e C a n a d i a n Representatives on t h e Genoa Conference. Sir Charles t h o u g h . . s t r e s s i n g no doubts himself as. to t h e British attitude h a d expressed some misgivings as t o w h e t h e r t h e m o r a l p o s i t i o n o f t h e British Government was fully realised in America a n d t h e Dominions.
THE SECRETARY OP STATE PGR WAR said t h a t if there w e r e a break there would have t o be a great campaign of propaganda.
This remark led to some further discussion as to to the. form of the dowiment, namely as to whether it should be a short document which, it was claimed, would be more widely read, or a comprehensive document which would set forth in full the British case.
The Cabinet agreed (a) That an interview which had been
provisionally arranged to take place between the Lord Chancellor, the Lord Chief Justice, Mr. Griffith and Mr. Collins, should be cancelled.
(b) That the British signatories of the Treaty w i t h t h e addition of Lord Balfour should meet at 3 * 3 0 that afternoon to draft a document conveying to the Irish Representatives the views of the British Government on the Draft Constitution
- 1 7 - / tc)
(o) That a general meeting of the Provisional Government of Ireland Committee and of the Sub-Goramittee on Ireland of the Committee of I . Imperial Defence should sBesftt/that jUv WtiAjafternoon in the Colonial Office I at 4 , 3 0 p*m*
(d) T h a t the Secretary of State for the Colonies a n d the Secretary of State for "far should attend the latter rather than the former meeting.
(e) That the Cabinet should meet on the following day at II o^loelc.
2 W h i t e h a l l G a r d e n s , 3 . W . 1 ,
1st J u n e , 1922,
* ***.6*e OCUMENT I S THE PROPERTY OP HIS BRITANNIC MAJESTY'S GOVERNMENT).. tMtmt t\mirr*n i n mti mm**'*m wm wm.m*-*****-**0***p*iW*** ******** ****** mjmm *m *** n r mr-wi mm — nr i nr *u i i nt- ******** m-mm iM.nww ** *- ***
V , C A 3 I H 5 T ,
6.0,. CONFERENCE;. ON IRELAND,
DRAFT: CONSTITUTION 0P : IRISH PROVISIONAL GOVERNMENT'. 1 1 1" " " " ' ' — - II...... ., , .... . .,, I V I i ...........i.)..;..-. L
Note, on P r o g r e s s of N e g o t i a t i o n s . .
On S a t u r d a y 2 7 t h May t h e D r a f t C o n s t i t u t i o n o f t h e
I r i s h P r o v i s i o n a l Government was jhanded t o t h e A s s i s t a n t
S e c r e t a r y t o t h e C a b i n e t , On M o n d a y , May 2P th?;,. a
memorandum c r i t i c i s i n g t h i s d o c u m e n t on b e h a l f o f t h e
B r i t i s h Government was handed , t o t h e I r i s h M i n i s t e r s .
I t w a s I n f o r m a l l y a r r a n g e d t h a t e f f o r t s s h o u l d be made
t o r e m o d e l t h e D r a f t C o n s t i t u t i o n s o a s t o make i t
c o n f o r m t o t h e T r e a t y . To t h i s end. l i&^&rmal c o n f e r e n c e s
w e r e h e l d on T u e s d a y a n d Wednesday ' , t h e 3 0 t h . a n d
3 1 s t M a y , b e t w e e n Mr , K e n n e d y , E . C , , a n d t h e l o r d
C h i e f J u s t i c e o f E n g l a n d , The d r a f t c o n s t i t u t i o n
w i t h s u g g e s t e d a m e n d m e n t s a n d a d d i t i o n s w a s
c o n s i d e r e d . No a g r e e m e n t , h o w e v e r , was a r r i v e d
a t , A document e x p r e s s i n g t h e v i e w s of t h e I r i s h
M i n i s t e r s ( A p p e n d i x ) w a s h a n d e d t o t h e C h i e f J u s t i c e
u n d e r t h e name of
" OBSERVATIONS /
V OBSERVATIOKS ON THE' CRITICISM OF THE BRITISH GOVERNMENT ON THE DRAFT IRISH CONSTITUTION.
( 1 ) I t i s e s s e n t i a l ; , , , I f t h e r e is t o to mutual tuidorstanding i n a p p r o a c h i n g . " t h e questions raised^, t h a t one o r tv;o c o n s i d e r a t i o n s of soecial i m p o r t a n c e
s h o u l d b e k e p t c o n s t a n t l y , i n v i e w . . I t I s we11%
t h e r e f o r e 1 , t h a t t h e s e m a t t e r s . s h o u l d ' b e e m p h a s i s e d
by w a y of p r e f a c e t o t h e o b s e r v a t i o n s on t h e
p a r t i c u l a r c r i t i c i s m s w h i c h h a v e b e e n r a i s e d . .
( 2 ) I n t h e f i r s t p l a c e ' , I r e l a n d i s n o t a B r i t i s h
c o l o n y n o r a r e h e r p e o p l e B r i t i s h c o l o n i s t s 1 , t h o u g h
t h e r e i s a s m a l l p r o p o r t i o n . o f B r i t i s h c o l o n i s t s
among t h e m . T h i s f a c t i s t h e v i t a l d i s t i n g u i s h i n g
f e a t u r e t h a t d i f f e r e n t i a t e s - I r e l a n d a n d t h e m a t t e r s
now u n d e r c o n s i d e r a t i o n f r o m t h e p o s i t i o n of a n y of
t h e g r e a t D o m i n i o n s of t h e B r i t i s h . Commonweal th
- . : . o f N a t i o n s ,
( 5 ) "-The m a t t e r of t h e p r e c e d i n g p a r a g r a p h , leads e a s i l y t o t h e n e x t c o n s i d e r a t i o n , s o g e n e r a l l y l o s t
s i g h t of i n E n g l a n d a n d b y t h e m i n o r i t y who a r e o f
B r i t i s h s y m p a t h i e s i n I r e l a n d b u t 7iaich i s a n
e s s e n t i a l f u n d a m e n t a l c o n s i d e r a t i o n i n a p p r o a c h i n g
t h e q u e s t i o n s b e t w e e n E n g l a n d and I r e l a n d , a n d
p a r t i c u l a r l y t h e m a t t e r s w h i c h h a v e b e e n r a i s e d on
t h e d r a f t c o n s t i t u t i o n , , I t is t h i s . The g r e a t
body of l aw ' , i n s t i t u t i o n s and f o r m s , c a l l e d the " E n g l i s h Common Law"., w h i c h h a s s p r u n g f r o m and so
grown t o f u l n e s s w i t h t h e g e n i u s and character of
the E n g l i s h p e o p l e as t o b e part -of t h e i r l i v i n g
f i b r e ' , i s n o t /
n o t i:o I r e l a n d , a Common Law a t a 1 1 * I t i s
a n a l i e n s t r u c t u r e i m p o s e d b y s t a t u t e , an e x o t i c
f rom wh i ch a c u t t i n g h a s b e e n a r t i f i c i a l l y f o s t e r e d
i n I r e l a n d b u t w h i c h h a s n o t t a k e n r o o t o r become
a c c l i m a t i s e d i n a n y r e a l s e n s e . E n g l i s h c o l o n i s t s
h a v e c a r r i e d w i t h ' t h e m , among t h e i r p e n a t e s , to
t h o s e c o u n t r i e s wh i ch a r e now t h e g r e a t D o m i n i o n s ,
/ t h e i r own E n g l i s h Commdn Lav; and h a b i t s of t h o u g h t
f o r m e d i n r e l a t i o n t o i t ; Hence i t i s t h a t i n t h e
m a k i n g of c o n s t i t u t i o n s f o r t h e i r new h o m e s , t h e i r -.
m i n d s s p r i n g n a t u r a l l y to t h e i n s t i t u t i o n s a n d f o r m s
embedded i n t h e English Common Law. The t r u e i m p o r t
a n d p r e c i s e i m p l i c a t i o n s o f w h i c h f i n d i n s t i n c t i v e
i n t e r p r e t a t i o n Which, d o e s h o t c o n f u s e t h e f a m i l i a r f o r m
w i t h f a m i l i a r s u b s t a n c e * By t h e v e r y n a t u r e of t h i n g s ,
t h i s i s n o t , and c a n n o t be \ t h e c a s e i n I r e l a n d . .
The i n s t i t u t i o n s , f o r m s a n d c e r e m o n i a l s o f t h e
E n g l i s h Common Law h a v e n e v e r b e e n a b s o r b e d b y
t h e , I r i s h P e o p l e o r become i n a h y t r u e s o n s e
t h e i r own, They h a v e r e m a i n e d ( h o w e v e r r e v e r e n t i a l l y
I r i s h - l a w y e r s may have a p p l i e d ' t h e m s e l v e s t o t h e
s t u d y and e x p o s i t i o n of them) t h e f e a t u r e s of a
f o r e i g n s y s t e m a n d of a l i e n r u l e ,
( 4 ) A f t e r the T r e a t y h a d b e e n e n t e r e d i n t o , ,
g l o w i n g s p e e c h e s w e r e made b y l e a d i n g E n g l i s h
s t a t e s m e n , e x p o u n d i n g a s . t h e i n s p i r a t i o n of new
h o p e s t h a t now t h e I r i s h , p e o p l e w o u l d ,
wi th . f r e e d o m , f r o m . i ! k i g l i s h i n t e r f e r e n c e - o r i n f l u e n c e ,
s e t t h e m s e l v e s t o b u i l d up a c o n s t i t u t i o n f o r t h e
g o v e r n m e n t o f t h e i r own c o u n t r y w h i c h c o n s t i t u t i o n
w o u l d be w h o l l y o f t h e i r c r e a t i o n a n d i n a c c o r d a n c e
w i t h t h e i r Own w i s h e s a n d v i e w s 1 o f t h e i r n e e d s , w i t h
f u l l p l a y f o r I r i s h t r a d i t i o n s a n d I r i s h t h o u g h t t o
g i v e c o l o u f a n d l e n d v i t a l i t y t o t h e f r a m i n g ' a n d
b u i l d i n g u p o f i n s t i t u t i o n s w h i c h t h e I r i s h p e o p l e
c o u l d h o n o u r a s t h e i r own. S a o r s t a t E i r e a n n t h u s ,
l i v i n g i n i t s I r i s h c o n s t i t u t i o n w o u l d come i n a s a
member of t h e B r i t i s h Commonweal th of N a t i o n s .
5 . ; E x a m i n a t i o n of t h e T r e a t y soon showed t h a t t h e
t r u e p o s i t i o n w a s a p p r e c i a t e d by i t s d r a f t s m e n n The
fo rm and c e r e m o n i a l o f t h e E n g l i s h Common Law, i n
c o n f o r m i t y w i t h - w h i c h t h e l o c a l c o n s t i t u t i o n s of t h e
Dominions- r e s e r v e t h e e x e c u t i v e ' p o w e r , ( t h o u g h
c o n s t i t u t i o n a l l y i n m e r e l y t e c h n i c a l and f o r m a l s e n s e )
t o t h e : E i n g r was n o t i n s i s t e d on a n d t h e s u b s t a n c e
was g r a n t e d w i t h o u t t h e c e r e m o n i a l , m e a n i n g l e s s i n
I r e l a n d and l i a b l e t o be m i s u n d e r s t o o d . - T h i s f o r m a l
d i s t i n c t i o n b e t w e e n t h e l o c a l c o n s t i t u t i o n s o f t h e
D o m i n i o n s a n d of I r e l a n d was f u l l y a p p r e c i a t e d i n
I r e l a n d and a l a r g e vo lume of t h e s u p p o r t o f t h e T r e a t y
i s b a s e d upon i t . I t w o u l d b e " q u i t e i m p o s s i b l e now t o
go b a c k on t h i s p o s i t i o n and. t o s a y t h a t t h e s u b s t a n c e
of- I r i s h f r e e g o v e r n m e n t c o u l d n o t b.e consummated w i t h y
ou t t h e i m p o s i t i o n o f f o r m a l i t i e s a n d c e r e m o n i a l , a l i e n
n o t u n d e r s t o o d o r a p p r e c i a t e d , and s u r e t o be i n t e r - '
p r e t e d i n - a s i n i s t e r s e n s e b e c a u s e s t a t e d t o /
b e p u r e l y f o r m a l and y e t i n s i s t e d , o n ,
6 . ' ' AD a r t f rom t h e c o n s i d e r a t i o n s m e n t i o n e d i n t h e
p r e c e d i n g - p a r a g r a p h s , i t i s f u r t h e r s u b m i t t e d 1 t h a t - the
C o n s t i t u t i o n a l s t a t u s o f t h e ".Dominiona i r i - : the - E a p i r e i o
such ' t h a t t h e y a r e a t l i b e r t y t o a l t a r - t h e i r o o n s t i t u
t i o n s ' e v e n : t h o u g h i t s h o u l d h e . i n f a v o u r of a form of
c o n s t i t u t i o n d i f f e r i n g i n - p r i n c i p l e from t h e B r i t i s h
c o n s t ! t u t i o n *- ' The L a b o u r p a r t y of A u s t r a l i a has., i n
'*view a n a l t e r a t i o n t o a n e l e c t i v e e x t r a - p a r l i a m e n t a r y
- e x e c u t i v e . . W i l l s u c h amendment b e . p r o h i b i t e d b e c a u s e
e l e c t e d m i n i s t e r s w i l l no t f i t i n t o t h e B r i t i s h s y s t e m
of f o r m a l a p p o i n t m e n t by . t h e B r i t i s h C r o w n 0 ?
7o The- f orm .of p a r l i a m e n t a n d g o v e r n m e n t w h i c h - t h e
I r i s h g o v e r n i n e n t - h a s c a u s e d , t o be f r a m e d a n d s u b m i t s ,
h a s b e e n f r a m e d t o meet t h e c o n d i t i o n s o f I r e l a n d .
They c a n n o t a g r e e t h a t , t h e y a r e bound 4b m o u l d - t h a t
c o n s t i t u t i o n i n t o t h e f o r m s o f the . E n g l i s h Common Lawo
The r e i s no r e a s o n i n h i s t o r y - W h y . t h e y s h o u l d be a s k e d
t o do s o , b u t e v e r y r e a s o n t o t h e c o n t r a r y , w h e r e i n
the- - B r i t i s h D o m i n i o n s - d i f f e r by h i s t o r y , a n d t r a d i t i o n - .
They - p o i n t o u t - t h a t t h i s d i s t i n c t i o n h a s be (en r e c o g
n i - sed i n t h e : . T r e a t y c . They f u r t h e r s a y t h a t ' a p a r t f rom
the ' h i s t o r i c a l and t r a d i t i o n a l , - b a s i s o f t h e i r p o s i t i o n , ,
i t i s w i t h i n t h e compe t ence of t h e - -Dominions t o a d o p t
a form o f c o n s t i t u t i o n Which w o u l d bo i n c o m p a t i b l e . , w i t h
t h e t e c h n i c a l fo rms ' a n d c e r e m o n i a l of t h e E n g l i s h
Common Law , ' ' They s u b m i t , t h a t t h e c o n s t i t u t i o n w h i c h
t h e y p r e s e n t i s one w h i c h t h e Domin ion of Can-;.da c o u l d
no t b e d e b a r r e d f rom a d o p t i n g o
Mr. Kennedy s t a t e d t h a t he w a s i n s t r u c t e d , t h a t
a c c o r d i n g t o t h o v i e w s of t h e I r i s h M i n i s t e r s ,
P a r l i a m e n t i s n o t t o he summoned o r d i s s o l v e d , n o r
a r e I v l i n i s t e r s , J u d g e s o r o t h e r p u b l i c o f f i c e r s t o
be a p p o i n t e d i n t h e name o f t h e Crown a s i n C a n a d a .
( I n i t i a l l e d ) HOC,
- E
( S i g n e d . ) I . CURTIS 3 1 s t May, 1932
S e c r e t a r y t o t h e I r i s h C o n f e r e n c e .
I , For t h e p u r p o s e o f e x a m i n i n g t h e d r a f t c o n s t i t u t i o n p r o p o u n d
e d on t h e 2 7 t h May l a s t by t h e P r o v i s i o n a l G o v e r n m e n t , i t i s
e s s e n t i a l t o h a v e r e g a r d t o c e r t a i n c a r d i n a l m a t t e r s
1 . The c o n s t i t u t i o n of t h e I r i s h P r e e S t a t e must be i n
a c c o r d a n c e w i t h t h e T r e a t y w h i c h w a s e n t e r e d i n t o by t h e r e p r e
s e a t a t i v e s of G r e a t B r i t a i n a n d t h e r e p r e s e n t a t i v e s o f I r e l a n d on
t h e 6 t h December , 1 9 2 1 , and t o w h i c h t h e f o r c e of l a w was g i v e n
by t h e I r i s h F r e e S t a t e ( A g r e e m e n t ) A c t , 192-3,, A c o n s t i t u t i o n
c o n t a i n i n g a n y t h i n g i n c o n s i s t e n t w i t h t h e T r e a t y , o r o m i t t i n g
a n y o f i t s r e l e v a n t s t i p u l a t i o n s w o u l d o b v i o u s l y n o t bo i n
a c c o r d a n c e w i t h t h e T r e a t y .
go By t h e T r e a t y , t h e r e p r e s e n t a t i v e s o f I r e l a n d s g r ^ s d : -
J a ) T h a t I r e l a n d s h o u l d h a v e t h e same c o n s t i t u t i o n a l s t a t u s i n t h e Community o f Uations Icaown a s the
" B r i t i s h Empi r e a s t h e Domin ion o f Canada, the Commonweal th o f A u s t r a l i a , the Dominion of New Z e a l a n d , a n d t h e Un ion o f S o u t h A f r i c a ; , ( A r t i c l e I o f t h e T r e a t y ) ;
ih) T h a t t h e p o s i t i o n o f t h e I r i s h f r e e S t a t e i n r e l a t i o n t o t h e I m p e r i a l P a r l i a m e n t a n d Government a n d o t h e r w i s e s h o u l d be t h a t o f t h e Domin ion of C a n a d a , and t h a t t h e l a w p r a c t i c e a n d c o n s t i t u t i o n a l u s a g e g o v e r n i n g t h e r e l a t i o n s h i p o f t h e Crown o r t h e r e p r e s e n t a t i v e of t h o Crown a n d of t h e I m p e r i a l P a r l i a m e n t t o t h a t Domin ion s h o u l d g o v e r n t h e i r r e l a t i o n s h i p t o t h a I r i s h P r e e S t a t e ( A r t i c l e 2 o f t h e T r e a t y ) ;
( c ) T h a t t h e r e p r e s e n t a t i v e o f t h e Crown i n I r e l a n d s h o u l d be a p p o i n t e d i n l i i c e manner a s t h e G o v e r n o r G e n e r a l o f C a n a d a , and i n a o o o r d a n c e w i t h t h o p r a c t i c e o b s e r v e d i n t h e m a k i n g o f s u c h a p p o i n t m e n t s ( A r t i c l e 3 of t h o T r e a t y ) ,
3 . The f u n d a m e n t a l p r i n c i p l e s of t h e c o n s t i t u t i o n of C a n a d a
a r e :
- ( a ) T h a t t h e e x e c u t i v e a u t h o r i t y i s v e s t e d i n t h e Grown w h i c h a c t s on t h e a d v i o e of M i n i s t e r s 0 The Crown a p p o i n t s a r e p r e s e n t a t i v e to be t h e c h i e f E x e c u t i v e O f f i c e r o f t h e d o m i n i o n i n whose name a l l a c t s o f S t a t e a r e p e r f o r m e d ,
( b ) T h a t t h e Crown i s a c o n s t i t u e n t p a r t of t h e L e g i s l s t u r e . Hence i t I s t h a t t h e i;o;&1 a s s e n t , t o B i l l s i s r e q u i r e d a n d t h a t P a r l i a m e n t i s summoned a n d d i s s o l v e d In t h e name o f t h e ^Cingo
( c ) Tha t t h e Crown i s t h e f o u n t a i n o f j u s t i c e , and t h a t t h e r e i s a r i g h t t o p e t i t i o n the , Crown f o r l e a v e t o a p p e a l t o t h e " P r i v y C o u n c i l a g a i n s t / d e c i s i o n o f t h e Supreme C o u r t o f t h e D o m i n i o n .
4. I t . i s by t h e r e l a t i o n t h u s e s t a b l i s h e d b e t w e e n t h e Crown and
t h e E x e c u t i v e , t h e L e g i s l a t u r e a n d t h e J u d i c a t u r e t h a t t h e c o n
s t i t u t i o n a l p o s i t i o n o f t h e Z i n g a s t h e h e a d o f t h e Community of
H a t i o n s known a s t h e B r i t i s h Emp i r e i s s e c u r e d .
5* The Throne i s t h e bond w h i c h k n i t s t o g e t h e r t h e Community o f
N a t i o n s known a s t h e B r i t i s h E m p i r e , ho c o n s t i t u t i o n w h i c h i s
i n f o r m o r I n s u b s t a n c e x i e p u b l i e a n c a n f i n d a p l a c e w i t h i n t h a t
Commun i t y . The Throne i s n o n - p o l i t i c a l and n o n - p a r t i s a n b e c a u s e
n o n - e l e c t i v e . T h i s i s t h e e s s e n t i a l q u a l i t y w h i c h e n a b l e s t h e
Throne t o s y m b o l i z e ' a b o v e p o l i t i c a l , n a t i o n a l a n d a l l o t h e r d i s
t i n c t i o n s w h a t s o e v e r , t h e common c i t i z e n s h i p of. a l l H i s M a j e s t y 1 ^
s u b j e c t s , w h a t e v e r t h e i r n a t i o n o r r a o o , a n d , t h e common m e m b e r s h i p
i n t h e Commonwea l th of a l l H i s M a j e s t y ' s G o v e r n m e n t s , w h a t e v e r
t h e i r s t a t u s o r h i s t o r y . As P r o f e s s o r . Dice:.; h a s s a i d : "The
p r e r o g a t i v e s of t h e Crown h a v e become t h y p r i v i l e g e s of t h e p e o p l e " .
I f t h e d r a f t c o n s t i t u t i o n now p r o p o u n d e d . . i s e x a m i n e d i n t h e
l i g h t o f t h e s e p r i n c i p l e s , i t a p p e a r s t o be n o t s o much a' d e p a r t u r e
from t h e T r e a t / a s a d i r e c t n e g a t i o n o f I t . In- o t h e r w o r d s , i t
i s n o t an a c c e p t a n c e b u t a r e f u s a l t e a c c e p t t h e c o n s t i t u t i o n a l ,
s t a t u s of t h e s e l f - g o v e r n i n g D o m i n i o n s , a n d i s , i n f a c t , a
h e p u b l i c a n c o n s t i t u t i o n a l m o s t w i t h o u t d i s g u i s e a n d a d a p t e d f o r en.
i n d e p e n d e n t i J t a t e .
Ifare i t " n o t f o r * i w r e f e r e n o e f e ' to" t h s r ' T r e ^ t y * i n ^ A r t i c l e s '
74 a n d 7 5 , i t w o u l d b e d i f f i c u l t t o b e l i e v e t h a t t h e
f r a m e r s of t h e c o n s t i t u t i o n w e r e a w a r e o f t h e e x i s t e n c e
of t h e T r e a t y , U n t i l - A r t i c l e 74 i s r e a c h e d , t h e C o n s t i t u t e
t l o h i s t h e c o n s t ! t u t i o h o f - a n i n d e p e n d e n t r e p u b l i c ,
w i t h i t s P r e s i d e n t a n d V I c ^ - P r e s i d e n t . The £jp&etior. *
a r i s e s : Are A r t i c l e s 7 4 a n d 7 5 a s u f f i c i e n t q u a l i f i c a t i o n " ^
of w b a t h a s p r e c e d e d them t o b r i n g t h e c o n s t i t u t i o n i n t o
c o n f o r m i t y w i t h t h e T r e a t y ? A r t i c l e 74 r e q u i r e s t h e
L e g i s l a t u r e and t h e E x e c u t i v e e s t a b l i s h e d b y t h e c o n s t i
t u t i o n t o p a s s t h e l e g i s l a t i o n a n d do a l l o t h e r t h i n g s
n e c e s s a r y f o r i m p l e m e n t i n g t h e T r e a t y . A r t i c l e 7 5
a l o n e c o n t a i n s a n y r e f e r e n c e t o t h e S o v e r e i g n o r t o t h e
r e p - r e s e n t a t i v e o f t h e Crown, I t :
( 1 ) l a y s down t h a t t h e r e p r e s e n t a t i v e of t h e Cx-own i s t o b e s t y l e d t h e C o m m i s s i o n e r of t h e B r i t i s h -Commonweal th ;
( 2 ) i m p o s e s a r e s t r i c t i o n on t h e d i s c r e t i o n of t h e Crown I n a p p o i n t i n g i t s r e p r e s e r r t a
-' - t i v e b y e x p r e s s l y m a k i n g t h e a p p o i n t m e n t s u b j e c t t o t h e p r e v i o u s a s s e n t of t h e
- I r i s h E x e c u t i v e C o u n c i l j
(5.) c o m p e l s t h e r e p r e s e n t a t i v e of t h e Crown a u t o m a t i c - a l l y a n d i m m e d i a t e l y t o s e t h i s h a n d t o a n y e n a c t m e n t w h i c h h a s t e e n s e a l e d b y t h o P r e s i d e n t 1 , and t h e r e b y t o s i g n i f y t h e R o y a l a s s e n t .
I n p r a c t i c e Domin ion Governments a r e a l w a y s c o n s u l t e d
a s t o t h e c h o i c e of t h e G o v e r n o r - G e n e r a l , But t h a t I s
a v e r y d i f f e r e n t t h i n g f rom r a a k i n g an a p p o i n t m e n t s u b j e c t b;
S t a t u t e t o t h e a s s e n t of t h e I r i s h E x e c u t i v e
vC o u n c i l ,
By c o n s t i t t v t i o n a l p r a c t i c e t h e e x e r c i s e o f t h e power
o f v e t o i n g b i l l s p a s s e d b y t h e Domin ion l e g i s l a t u r e s i s .
o b s o l e t e s o f a r a s l e g i s l a t i o n of a p u r e l y d o m e s t i c
c h a r a c t e r i s c o n c e r n e d , e x c e p t w h e r e b y t h e c o n s t i t u t i o n
I t s e l f m e a s u r e s of a p a r t i c u l a r n a t u r e a r e r e q i i r e d t o be
r e s e r v e d /
1W s e r v e d . f o r t h e s i g n i f i c a t i o n , of H i s fclaj.eety s p l e a s u r e ^
03* w h e r e s u c h a p r o v i s i o n i s c o n t a i n e d i n a p a r t i c u l a r
ftausure ??u&s.o& h y . a D-ominion. l e g i s l a t u r e . But w i t h
r e s p e c t DomiSaion m e a s u r e s a f f e c t i n g r e l a t i o n s w i t h
o t h e r p a r t s of t h e Ssvp i re s r X7ith f - o r e i g n n a t i o n s t h e
r e s e r v a t i o n of t h e power of v e t o i s o b v i o u s l y e s s e n f e i a l ^ ....
- .heugh i n t h e 1-g.st r e - s o r t i t would o n l y be e x e r c i s e d
on t h e a d v i c e of t h e I m p e r i a l C o n f e r e n c e , t h a t , i s t o s a y ,
or. b e h a l f o f t h e B r i t i s h Commonwealth a s a w h o l e ,
If" I t w e r e s a i d t h a t any d i s c r e p a n c i e s b e t w e e n t h e
C o n s t i t u t i o n and t h e T r e a t y a r e r e q u i r e d b y A r t i c l e 7 4 t o
be s e t r i g h t b y l e g i s l a t i o n , . , t h e a n s w e r i s t h a t w i t h t h e
b e s t w i l l I n t h e - ' w o r l d t h e L e g i s l a t u r e w o u l d p r o b a b l y b e
m a b l e t o p e r f o r m t h i s - t a s k . Such , c h a n g e s w o u l d be
aTOsridraents of t h e c o n s t i t u t i o n , r e q u i r e d b y A r t i c l e 4 7
t o be s u b m i t t e d t o a r e f e r e n d u m of t h e p e o p l e , and a t t h a
r e f e r e n d u m t o be a p p r o v e d e i t h e r h y a m a j o r i t y o f - t h e
t o t a l number of e l e c t o r s on t h e / r e g i s t e r o r b y a t w s
t h l j f d s m a j o r i t y of those who v o t e on t h e q u e s t i o n , ,
Some of t h e p r i n c i p a l p o i n t s on w h i c h t h e l a w a s I r i s h
l a i d down I n t h e d r a f t / s o j t i s t i t u t i o n d i f f e r s f r o m the . l a w
and p r a c t i c e of t h e c o n s t i t u t i o n i n Canada may b e s e e n
b y a c o m p a r i s o n of t h e p r o v i s i o n s a s t o '1 ) t h e
e x e c u t i v e ' , ( 2 ) t h e l e g i s l a t u r e , a n d ( 3 ) t h e J u d i c a t u r e
i n ' . C a n a d a - ' .. ' \ and i n t h e c r a f t I r i s h
c o n s t i t u t i o n r e s p e c t i v e l y , s e t f o r t h i n t h e f o l l o w i n g
. T a b l e : - ' '"' v $ '"
b
1 . E x e c u t i v e .
C a n a d i a n C o n s t i t u t i o n ,
i i I n l a w t h e E x e c u t i v e a u t h o r i t y .
i s v e s t e d i n t h e Crown. In
p r a c t i c e , i t i s e x e r c i s e d on t h e
a d v i c e of M i n i s t e r s , who p e r f o r m a l l
the d u t i e s o f t h e i r o f f i c e s i n t h e
name of t h e Crowm
2, The G o v e r n o r - G e n e r a l a s r e p r e
s e n t i n g t h e Crown i s t h e C h i e f
E x e c u t i v e O f f i c e r .
8 . He i s a d v i s e d b y a C a b i n e t
t h e "members w h e r e o f a r e i n l a w
a p p o i n t e d b y and r e m o v a b l e b y
h im. In p r a c t i c e , ' t h e c h a r a c t e r
and p o l i c y o f t h e Government
wh ich a d v i s e s h im a r e d e t e r m i n e d
by t h e m a j o r i t y i n P a r l i a m e n t .
4 . E v e r y C a b i n e t M i n i s t e r i s sworn
a Member of H i s M a j e s t y ' s P r i v y
C o u n c i l i n C a n a d a .
D r a f t I r i s h C o n s t i t u t i o n .
. 1 . The E x e c u t i v e A u t h o r i t y i s
v e s t e d i n a n E x e c u t i v e C o u n c i l
c o n s i s t i n g o f a P r e s i d e n t £
V i c e - P r e s i d e n t and o t h e r mom"
h e r s , some o f whom m u s t b e
members o f t h e P a i l ( t h e
Lower H o u s e ) o t h e r s c a n n o t b e
members of e i t h e r House o f
P a r l i a m e n t .
The P r e s i d e n t I s a p p o i n t e d
b y t h e D a i l a n d a p p o i n t s t h e
O t h e r members of t h e E x e c u t i v e
C o u n c i l who a r e members o f
t h e P a r l i a m e n t . The r e m a i n i n g
members a r e a p p o i n t e d b y a
C o m m i t t e e o f t h e Da11 c h o s e n
i n a p a r t i c u l a r m a n n e r a n d
t h e i r t e r m of o f f i c e i s f i x e d ,
b u t t h e y may b e r e m o v e d b y a
C o m m i t t e e of t h e D a i !
c o n s t i t u t e d a s a f o r e s a i d a
The R e p r e s e n t a t i v e of t h e
Crown i s i n no way p a r t o f t h e
E x e c u t i v e m a c h i n e r y o f
Government .
2., L e g i s l a t u r e ^
C a n a d i a n C o n s t i t u t i o n ,
Pa r l i amen t c o n s i s t s of t h e
iovereign r e p r e s e n t e d by t h e
overnor -Genera l , a n d two ^Houses .
The' power of summoning a n d d i s
o lv ing P a r l i a m e n t r e s t s w i t h t h e
Representative of t h e Crown , a n d
s exe rc i s ed i n a c c o r d a n c e w i t h t h e
aw on the adv i ce of M i n i s t e r s ,
In o r d e r t o become l a w , a B i l l
f t e r b e i n g p a s s e d by b o t h House s
j£ the L e g i s l a t u r e m u s t s e c u r e t h e
oyal a s s e n t t h r o u g h t h e G o v e r n o r
e n e r a l B
S u b j e c t t o t h e p r a c t i c e s t a t e d
n P a r a g r a p h 3 of t h i s Memoran
&m, t h e . R e p r e s e n t a t i v e of t h e
sown by C o n s t i t u t i o n a l p r a c t i c e
^ t s upon t h e a d v i c e o f h i s
b l i s t e r s i n g i v i n g a n d w i t h
o ld ing t h e R o y a l a s s e n t t o
i l l s ,
D r a f t I r i s h C o n s t i t u t i o n ,
P a r l i a m e n t i s t o c o n s i s t of
two H o u s e s .
The powe r of d i s s o l v i n g
P a r l i a m e n t r e s t s w i t h t h e D a i l , ,
The p o w e r of summoning
P a r l i a m e n t a f t e r a G e n e r a l E l e c t ! e n
r e s t s w i t h t h e D a i l . The p o w e r
of summoning P a r l i a m e n t a t o t h e r
t i m e s r ^ s t s w i t h t h e ^ r e s i d e n t
who m u s t summon i t i f r e q u i r e d
t o do s o by t w o - f i f t h s of t h e
members of t h e D a i l c
The r e p r e s e n t a t i v e of t h e Crown
i s o b l i g e d a u t o m a t i c a l l y t o g i v e
h i s a s s e n t t o a n y e n a c t m e n t -
p r e s e n t e d t o h im a u t h e n t i c a t e d
by t h e s e a l o f t h e F r e e S t a t e w h i c h
i s t o b e i n t h e c u s t o d y of t h e
P r e s i d e n t s
C a n a d i a n C o n s t i t u t i o n . D r a f t I r i s h C o n s t i t u t i o n ,
J u d g e s a r e a p p o i n t e d b y J u d g e s a r e a p p o i n t e d by
[10 G o v e r n o r - G e n e r a l on t h o t h o E x e c u t i v e C o u n c i l w i t h
v i c o of t h e Domin ion G-overn- ou t r e f e r e n c e to . t h e E e p r e
n t . s e n t a t i v e of t h e Crown .
Tho common law. r i g h t o f a Tho d e c i s i o n s o f t h e
r i t i s h s u b j e c t t o a p p e a l t o His Supreme C o u r t a r e f i n a l a n d
a j e a t y ^ s P r i v y C o u n c i l f rom t h e c o n c l u s i v e a n d n o t c a p a b l e
o u r t s of a D o m i n i o n i s e x p r e s s l y o f b e i n g r e v i e w e d b y a n y
e c o g n i s e d b y S t a t u t e ^ C o u r t g T r i b u n a l o r A u t h o r i t y
w h a t s o e v e r , a n d the s u b j e c t
i s d e p r i v e d of h i s common-
l a w r i g h t t o a p p e a l t o t h e
P r i v y S o u n o i l .
To s u m m a r i s e , by C o n s t i t u t i o n a l p r a c t i c e t h e R e p r e s e n t a t i v e
of t h e Crown i n e x e r c i s i n g h i s e x e c u t i v e a u t h o r i t y , i n a p p o i n t i n g
and r e m o v i n g members of h i s C o u n c i l , , i n summoning a n d d i s s o l v i n g
P a r l i a m e n t , i n a p p o i n t i n g j u d g e s , a n i B s u b j e c t t o t h e
q u a l i f i c a t i o n s s t a t e d i n p a r a g r a p h I I I , i n g i v i n g a n d w i t h h o l d i n g
t h e R o y a l A s s e n t to B i l l s £ c t s upon t h e a d v i c o of h i s M i n i s t e r s . s
Bu t t h r o u g h o u t t h e B r i t i s h Emp i r e a l l w r i t s i s s u e d u n d e r t h e
a u t h o r i t y o f t h e S t a t e , w h e t h e r e x e c u t i v e o r j u d i c i a l , r u n
w i t h o u t e x c e p t i o n i n the name of t h e Crown .
V* C o n s t i t u t i o n a l p r a c t i c e a s a f f e c t i n g t h e
r e l a t i o n s of t h e Crown', ' t h e I m p e r i a l C o n f e r e n c e
a n d t h e d i f f e r e n t Gove rnmen t s o f t h e Emp i r e
w a s f u l l y d i s c u s s e d a t t h e l a s t I m p e r i a l
C o n f e r e n c e , a n d a v e r y s t r o n g o b j e c t i o n w a s
r e c o r d e d a g a i n s t a n y a t t e m p t t o c r y s t a l l i n e
t h e c u s t o m a n d p r a c t i c e of t h e c o n s t i t u t i o n
I n a w r i t t o i l document. I t w a s , m o r e o v e r ,
d e c l a r e d t h a t a n y c h a n g e i n t h e s t a t u s of a
D o m i n i o n was a m a t t e r of v i t a l i n t e r e s t t o
a l l t h e D o m i n i o n s a n d t h e r e f o r e n o t t o be
d e t e r m i n e d w i t h o u t r e f e r e n c e t o t h e I m p e r i a l
C o n f e r e n c e a s a w h o l e v I t f o l i o w s t h a t
i f t h e c o n s t i t u t i o n a l s t a t u s of t h e F r e e
S t a t e i s t o b e i n e s s e n c e t h e same a s t h a t
of C a n a d a , a s l a i d dorm i n t h e T r e a t y , t h e
c o n s t i t u t i o n of t h e F r e e S t a t e m u s t be
. ' ;$Tamed on b r o a d l y t h e some l i n e s as t h a t of
t h o Domin ion * Any v a r i a t i o n from t h e
a c c e p t e d c o n s t i t u t i o n a l f o r m s wou ld n o t be
i n a c c o r d a n c e , w i t h t h e T r e a t y and c o u l d
n o t b e . s a n c t i o n e d b y t h e B r i t i s h Gov
e r n m e n t w i t h o u t r e f e r e n c e t o and c o n s e n t
of. t h e I m p e r i a l C o n f e r e n c e . ,
External-relations-are. dealt -with by A r t i c l e 7 2 By it t h e a
relations between the Free State and other s t a t e s a r e to be such as are now or may hereafter be defined in Agreements o r Treaties made between the Irish Free State and other s t a t e s t o which the Free State assents. Ho Agreement or Treaty with a n y o t h e r S t a t e
is to have any validity unless and until it has b e e n approved by
the F r e e State Parliament. The effect is, therefore, t o g i v e the
Free State Parliament complete and independent control of all the foreign relations of the Free State, end the p o w e r of t h e
British Government to ratify any treaty affecting the F r e e S t a t e
is expressly excluded. It appears impossible to harmonise t h i s
Article 73 with Article 2 of the Treaty, and the power of m a k i n g
independent Treaties without reference to their effect on other Members of the British Commonwealth of Nations is one which is not reconcilable with the interdependence which is an essential characteristic of that Commonwealth, nor with the recorded view of the Dominion Governments at the l a s t Imperial Conference. The Zing is, in fact, and must remain, t h e Trea ty-making p o w e r ,
though the constitutional practice is t h a t in all matters ef affecting the Empire as a whcls9 he e x e r c i s e a this power on bzoad lines approved by the Imperial Conference and on the advice of a l l t h e Governments concerned..
Further, the words of article 73 are open to the interpretation that the Treaty itself falls within the Article, and that t h e Parliament of the Free State has power to determine how far t h e Treaty is to be regarded as valid and binding upon the Free Stats0 The words "and other States", in line 1 of Article 7 3 ,
are capable of being interpreted not only as applying to foreign S t a t e 3 but also as applying either to the British Commonwealth of Nations as a whole or to Individual Dominions within it.
In this connection it is to be observed that by the draft Irish constitution the interpretation of Treaties is entrusted
"to the f i n a l j m r i s - d i c t i o n of the -Snp^eme- -Curort ^4xtioJu&^4i4--'-&M
and t h a t u n d e r A r t i c l e ' 7 5 t h e d u t i e s , s u c h ' a s t h e y a r e , o f t h e
C o m m i s s i o n e r of t h e B r i t i s h i 6 ! c r a^sEPaa l th c o n t i n u e o n l y so
l o n g a s t h e r e l a t i o n s he tureen t h e P r e o S t a t e and t h e B r i t i s h
Oomm^m^aXth o f N a t i o n s a r o r e g u l a t e d b y t h e T r e a t y .
The m a t t e r s h i t h e r t o d e a l t w i t h a r e i n s t a n c e ^
of i n c o n s i s t e n c y b e t w e e n t h e c o n s t i t u t i o n and t h e T r e a t y .
B u t t h e T r e a t y c o n t a i n s r e s t r i c t i o n s and - i m p o s e a o b l i g a t i o n s
a s t o w h i c h t h e c o n s t i t u t i o n i s a l t o g e t h e r s i l e n t . The"
r e s t r i c t i o n s c o n t a i n e d i n t h e , T r e a t y . i n c l u d e * :
f a ) 1 l i m i t a t i o n on t h e power of m a k i n g p r e v i s i o n f o r n a v a l d e f e n c e ;
( b ) A l i m i t a t i o n o f t h e e x t e n t of m i l i t a r y , e s t a b l i s h m e n t s ;
t o ) A r e s t r i c t i o n on t h e c l o s i n g of p o r t s ;
( d ) l i m i t a t i o n s on t h e e x e r c i s e of p o w e r s i n :S o r t h e r n I r e l a n d ;
( e ) R e s t r i c t i o n s f o r s e c u r i n g r e l i g i o u s e q u a l i t y ;
The pos i t i v e , o b l i g a t i o n s i m p o s e d b y t h e T r e a t y i n c l u d e
( a ) Talc ing of. o a t h s b y members of P a r l i a m e n t i n t h e form p r e s c r i b e d ;
( b ) The a s s u m p t i o n o f l i a b i l i t y f o r a s h a r e of t h e n a t i o n a l d e b t and p e n s i o n s ;
f c ) b u r n i s h i n g of h a r b o u r and o t h e r f a c i l i t i e s , i n c l u d i n g I n t i m e of war o r o f s t r a i n e d r e l a t i o n s w i t h a f o r e i g n Power s u c h h a r b o u r and o t h e r f a c i l i t i e s a s t h e B r i t i s h Government may r e q u i r e f o r t h e p u r p o s e of d e f e n c e ;
fd ) The p a y m e n t Of c o m p e n s a t i o n t o e x i s t i n g ' f u d g e s and p u b l i c o f f i c e r s .
W i t h one e x c e p t i o n , t h e o n l y p r o v i s i o n c o n t a i n e d
i n t h e c o n s t i t u t i o n w i t h r e s p e c t t o t h e s e r e s t r i c t i o n s and
o b l i g a t i o n s i s t h a t c o n t a i n e d i n A r t i c l e 7 4 , above m e n t i o n e d ,
e n j o i n i n g t h e P a r l i a m e n t and Government of t h e F r e e S t a t e
t o p a s s l e g i s l a t i o n a n d t a k e s t e p s for . i m p l e m e n t i n g t h e
T r e a t y . The one e x c e p t i o n i s t h a t t h e r e i s an e x p r e s s
p r o v i s i o n a s t o r e l i g i o u s e q u a l i t y , b u t i t f a l l s f a r s h o r t
o f t h e e x p r e s s o b l i g a t i o n s c o n t a i n e d i n A r t i c l e 16 of t h e t
T r e a t y .
Lven if it may be c o n t e n d e d t h a t t h e general p r o v i s i o n s ' o f
A r t i c l e 74 are s u f f i c i e n t l y in accord w i t h t h e p r o v i s i o n s o f
the Treaty so far as it imposes positive . o b l i g a t i o n s , i t c a n n o t
be said that a constitution which Is not e x p r e s s l y made s u b j e c t
to the restrictive provisions contained i n t h e T r e a t y i s one
whiGh the p a r t y to t h e T r e a t y a tTChose': i n s t a n c e t h e r e s t r i c t i o n s
were inserted can be asked to accept, f u r t h e r , t h e o m i s s i o n o f
so vital a provision as that requiring a n o a t h i n the p r e s c r i b e d ,
form to be taken by cgembers of P a r l i a m e n t c a n n o t b e c o u n t e n a n c e d .
In connexion with the Oath it is a l s o n e c e s s a r y t o c o n s i d e r
Article 48'Of the d r a f t c o n s t i t u t i o n , w h i c h by r e q u i r i n g , t h a t
some of the Ministers a r e . n o t to be members of P a r l i a m e n t e x e m p t s
t h e m f rom the obligation of t a k i n g the p r e s c r i b e d o a t h .
An obligation thrown on a Legislature t o p a s s c e r t a i n
legislation, an obligation v i i i c h by the n a t u r e of P a r l i a m e n t a r y
institutions is impossible of enforcemerit' i s no s u b s t i t u t e f o r .9
an express enactment, in the c o n s t i t u t i o n g i v i n g t h o s e o b l i g a t i o n s
e f f e c t . '
It should be a d d e d t h a t t h e s e o b s e r v a t i o n s do n o t p u r p o r t
t o bs a n e x h a u s t i v e c r i t i c i s m o f t h e d r a f t c o n s t i t u t i o n . 3?hey
a r e merely a p r e l i m i n a r y memorandum, w r i t t e n w i t h i n a few h o u r s
of receipt of t h e d r a f t , a n d i n t e n d e d n o t t o e x h i b i t i n d e t a i l
but o n l y to i l l u s t r a t e how g r a v e l y t h e d r a f t I r i s h c o n s t i t u t i o n
i s i n c o n f l i c t w i t h the t e r m s of t h e T r e a t y . I t c a n n o t be a c c e p t e d
by His Majesty7s Government : a s a f u l f i l m e n t of t h e so l emn
engagement signed on t h e 6th December, 19SI, b y t h e r e p r e e e n t a
t i v e s of Great B r i t a i n and I r e l a n d .
Whitehall Gardens, iv . -W., :
29th May, 1922.
