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Documents Relating to New Zealand's Participation in the Second World War 1939–45: Volume III

Fanning Island

page 334

Fanning Island

307
Despatch from the Governor-General of New Zealand1 to the Secretary of State for Dominion Affairs2

4 November 1937

Sir

,

With reference to Lord Passfield's3 secret despatch, No. 342, of 5 November 1929,4 and to my predecessor's secret despatch of 22 August 1930,5 I have the honour to inform you, at the instance of my Prime Minister,6 that His Majesty's Government in New Zealand have recently had under consideration the commitment entered into in August 1930,7 to despatch to Fanning Island a garrison of two platoons (60 men) with two machine guns, when requested to do so by His Majesty's Government in the United Kingdom.

In view of the length of time the garrison might have to stay on the island, and the possible wastage through sickness, it has been suggested that the force should be increased to one company of infantry, consisting of two platoons of machine guns and two rifle platoons—a total of 150 men as against the present 60.

It has also been suggested that to tide over the period before such a force could arrive, the Fanning Island Defence Force8 should now be revived in a form and in numbers sufficient to man two machine guns which, with adequate supplies of ammunition, should be kept

1 Viscount Galway.

2 Rt. Hon. Malcolm MacDonald, PC; Secretary of State for Dominion Affairs, 1935–38, 1938 – Jan 1939.

3 Lord Passfield, PC, OM; Secretary of State for Dominion Affairs, 1929–30; Secretary of State for the Colonies, 1929–31.

4 Not published.

5 Not published.

6 Rt. Hon. M. J. Savage.

7 As a result of a recommendation in 1929 by the Oversea Sub-Committee of the Committee of Imperial Defence on local forces in the Pacific, the New Zealand Government in August 1930 had agreed to despatch to Fanning Island for the protection of the cable station a garrison of two platoons, with two machine guns, ‘when requested to do so by His Majesty's Government in Great Britain.’ This commitment was reviewed in 1937 by the New Zealand Chiefs of Staff Committee and, on this committee's recommendation, Cabinet approved an increase in the size of the force to a company of 150 men.

8 Available for the force were nine Europeans employed by Cable and Wireless Ltd., two Europeans employed by Fanning Island Plantations Ltd., and the Administrative Officer. The New Zealand Government arranged to give a short course of military training to employees of the company detailed in New Zealand for employment on Fanning Island.

page 335 on the island in peace. It might be possible for His Majesty's Government in New Zealand to arrange for members of the cable staff to receive instruction in machine-gun work.

His Majesty's Government in New Zealand would be grateful for the views of His Majesty's Government in the United Kingdom on the above points.

A copy of this despatch is being forwarded to the High Commissioner for the Western Pacific,1 for his information.

I have, &c.,

Galway

,

Governor-General

1 Sir Arthur Richards, Governor of Fiji and High Commissioner for the Western Pacific, 1936–38.

308
Despatch from the Secretary of State for Dominion Affairs to the Governor-General of New Zealand

25 February 1938No. 54

My Lord

,

I have the honour to acknowledge the receipt of Your Excellency's secret despatch of 4 November on the subject of the force which is to be sent to Fanning Island by His Majesty's Government in New Zealand on the request of His Majesty's Government in the United Kingdom in the event of an emergency.

His Majesty's Government in the United Kingdom wish to convey to His Majesty's Government in New Zealand an expression of their thanks for the offer to increase this force from two platoons to one company. His Majesty's Government in the United Kingdom welcome this offer and gladly accept it in view of the great importance of the island.

As regards the question raised in the third paragraph of your despatch, His Majesty's Government in the United Kingdom are at present in communication with the High Commissioner for the Western Pacific, and a further despatch will be sent when his reply is received.

I have, &c.,

Malcolm MacDonald

page 336

309
Despatch from the Secretary of State for Dominion Affairs to the Governor-General of New Zealand

24 August 1938No. 257

My Lord

,

With reference to the third paragraph of Mr MacDonald's secret despatch No. 54 of 25 February, I have the honour to state that the High Commissioner for the Western Pacific has now reported that Cable and Wireless, Limited, will co-operate in measures for the defence of Fanning Island. This co-operation will, it is understood, take the form of encouraging the Company's staff to volunteer for a short term of military training, mainly in the use and maintenance of automatic weapons. It is intended that the status of staff who volunteer should be regularised by their formation into a local defence force.

It has been ascertained that a member of the Company's staff will sail from Sydney for Fanning Island on 1 September and that two others will sail in April 1939. The High Commissioner for the Western Pacific1 will communicate with the Defence authorities of the Commonwealth of Australia with regard to their training.

I have, &c.,

2Duke of Devonshire, Parliamentary Under-Secretary of State for Dominion Affairs, 1936–40.

Devonshire

,2

for the Secretary of State

1 Sir Harry Luke succeeded Sir Arthur Richards in June 1938.

310
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs3
[Extract]

3 February 1939

… His Majesty's Government in New Zealand have been considering certain aspects of the defence situation. They would be grateful for the views of His Majesty's Government in the United Kingdom on the following points….

page 337

In view of the world situation and with particular reference to the importance of the trans-Pacific cable,1 would it be desirable to despatch to Fanning Island immediately the force already agreed to? It appears to His Majesty's Government in New Zealand that it would be exceedingly dangerous, if not impossible, to despatch a force after the outbreak of a war in which Japan was involved, as no adequate escort can be made available and as enemy forces may reasonably be expected to be in position on the outbreak of war. On the other hand, it might be undesirable to take such open action in peace….2

3 Viscount Caldecote (at this date Sir Thomas Inskip).

1 That the Germans appreciated the importance of the Fanning Island cable station in the 1914–18 war is shown by the promptness with which the German cruiser Nurnberg proceeded to the island after the outbreak of war and severed the cable on 7 Sep 1914. On 8 December of the same year the Nurnberg was sunk by HMS Kent in the battle of the Falkland Islands.

2 Text omitted discussed the defence of Fiji and the provision of ammunition, aircraft and air force equipment for local defence and training in New Zealand in the event of war.

311
The Secretary of State for Dominion Affairs to the Governor-General of New Zealand
[Extract]

5 March 1939

Your telegram of 3 February….

We agree that for the reasons indicated it would be undesirable to defer the despatch of the force to Fanning Island until after an outbreak of war. We feel, however, that having regard to the difficulties involved in placing a garrison on the island in peacetime (including lack of accommodation and supplies) it would not be advisable to despatch this force at the present time. In order to avoid delay if the necessity for its despatch should arise, we suggest that the best course would be for His Majesty's Government in New Zealand to make as complete a plan as possible for operation and to collect and earmark all stores, supplies, ammunition, etc., which would be required. It would then be possible, if at any time in the opinion of His Majesty's Government in the United Kingdom the occasion had arisen for the despatch of the force, for them to inform His Majesty's Government in New Zealand immediately. For this purpose would it be possible to let us have the length of time which might be expected to elapse between receipt by the New Zealand Government of such information and the sailing of the force? …3

3 Text omitted dealt with the proposed expansion of the Fiji Defence Force, the installation of coast defence weapons and the establishment of air facilities.

page 338

312
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs

5 April 1939

Your telegram of 5 March.

His Majesty's Government in New Zealand have given consideration to the question raised in the last sentence of the first paragraph of your telegram under reference. Under present conditions the length of time between receipt of information and the sailing of the Fanning Island force would be three weeks. His Majesty's Government in New Zealand are, however, now making arrangements by which, after a period of about two months from date, the length of time referred to will be reduced to three days.

313
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs

13 June 1939

My most secret telegram of 5 April. My Ministers advise me that it has not yet been found possible to make the arrangements indicated in the last sentence of my telegram under reference, and that in the meantime the length of time between receipt of information and sailing of the Fanning Island force will remain at three weeks.1 They add that special attention is being given to the measures necessary to shorten this period.

1 By 7 Jun 1939 only 37 enlistments had been received for the force of 150.

314
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs
[Extract]

20 June 1939

My Prime Minister wishes me to inform you as follows:

With reference to the report of the Pacific Defence Conference, Part I….2

3. Paragraph 49—His Majesty's Government in New Zealand have been considering the question of stationing a platoon at Fanning Island in peace. They would point out that there is a certain amount page 339 of preliminary work such as construction of section posts, improvement of water supply, which could usefully be performed by a platoon in peace, and for that reason they are considering the advisability of sending such a force to the island as a temporary measure, pending a decision regarding its permanent location there. They would be glad of the views of His Majesty's Government in the United Kingdom on the question of both the temporary and permanent stationing of the platoon at Fanning Island.

4. The substance of this telegram is being repeated to His Majesty's Government in the Commonwealth of Australia.

2 Two paragraphs dealing with the defence of Fiji and the equipment of the Tongan Defence Force have been omitted.

315
The Secretary of State for Dominion Affairs to the Governor-General of New Zealand1
[Extract]

14 July 1939

Your telegram of 20 June….2

3. His Majesty's Government in the United Kingdom would welcome the proposal that a platoon from New Zealand should be stationed at Fanning Island in time of peace, whether permanent or for the temporary purposes mentioned in your telegram, if His Majesty's Government in New Zealand, after consideration of defence requirements generally, should decide in favour of such a course. It is assumed that His Majesty's Government in New Zealand would be willing to bear the costs of the necessary arrangements for reception of the force and its subsequent maintenance….

1 Repeated to the Commonwealth of Australia.

2 Paragraphs 1 and 2 are omitted. The first dealt with the defence of Fiji and the expansion and training of the Fiji Defence Force; the second with the formation of an infantry company for the defence of Tonga.

316
The Assistant High Commissioner for the Western Pacific (Suva)3 to the Governor-General of New Zealand

18 July 1939

Reference Defence Conference Report, Part I, page 22 (d) (1), Fanning Island,4 I should be glad to know whether a decision has been reached.

3 Mr C. J. J. T. Barton, CMG, OBE.

4 This reference read: ‘Garrison of one platoon from New Zealand to be stationed there [Fanning Island] in peace.’

page 340

317
The Deputy of the Governor-General of New Zealand1 to the Secretary of State for Dominion Affairs

16 August 1939

Your telegram of 14 July [No. 315].

I am advised that His Majesty's Government in New Zealand propose to despatch to Fanning Island a detachment of two officers and thirty other ranks. The detachment will leave New Zealand by HMS Leith2 on or about 4 September, and will carry out the preliminary work referred to in my telegram of 20 June [No. 314]. On completion of the preliminary work, the question of stationing the detachment at Fanning Island permanently in peace will be considered by His Majesty's Government in New Zealand.

The High Commisioner for the Western Pacific is being communicated with, and His Majesty's Government in the Commonwealth of Australia are being advised of the action to be taken.

1 Rt. Hon. Sir Michael Myers, PC, GCMG, KC; then Chief Justice of New Zealand.

2 HMS Leith, sloop, 990 tons, two 4·7-inch guns; at this time attached to the New Zealand Division of the Royal Navy.

318
The Deputy of the Governor-General of New Zealand to the High Commissioner for the Western Pacific

16 August 1939

Your secret telegram of 18 July [No. 316].

His Majesty's Government in New Zealand have decided to despatch to Fanning Island a detachment of two officers and thirty other ranks. The detachment will leave New Zealand by HMS Leith on or about 4 September and will carry out certain preliminary work. The question of stationing it permanently at Fanning Island in peace will be further considered when the preliminary work is completed.

The New Zealand Government would be grateful if you would approach Messrs Burns Philp regarding supply of labour for the construction of native huts, landing of stores, and the use of launches and lighters, for which they will reimburse Messrs Burns Philp. Probably twenty natives and one foreman would be required.

It is requested that all negotiations and discussions regarding the despatch of this detachment be kept most secret; and that the need for secrecy be impressed on Messrs Burns Philp and on Cable and Wireless, Limited.

page 341

319
The High Commissioner for the Western Pacific to the Governor-General of New Zealand

22 August 1939

The decision communicated in your telegram of 16 August is noted with satisfaction. All arrangements are in train.

320
The Governor-General of New Zealand to the High Commissioner for the Western Pacific

25 August 1939

My secret telegram of 16 August [No. 318]. fanning island.

My Ministers state that the arrangements outlined in my telegram under reference are now subject to reconsideration in view of subsequent developments, and that a further communication will be sent to you in due course.

321
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs

25 August 1939

My most secret telegram of 16 August [No. 317].

In view of the instructions now transmitted to the Chief of the Naval Staff1 in New Zealand by the Admiralty, with reference to the movements of HMS Leith,2 the arrangements proposed for the transport to Fanning Island of the preliminary force contemplated will no longer be feasible.

His Majesty's Government in New Zealand would be grateful for a very early intimation of the views of His Majesty's Government in the United Kingdom as to whether it would be advisable to arrange for this detachment or for the full establishment contemplated to be despatched by a special vessel, and, if so, at what date they would consider this most desirable. His Majesty's Government in New Zealand would be glad also of any views that His Majesty's Government in the United Kingdom might have to express as to the possibility of escort or the risk involved.

1 Rear-Admiral H. E. Horan, DSC, RN (then Commodore); Chief of New Zealand Naval Staff, Jun 1938–Apr 1940.

2 She was ordered to Singapore.

page 342

322
The Secretary of State for Dominion Affairs to the Governor-General of New Zealand

28 August 1939

Your telegram of 25 August.

His Majesty's Government in the United Kingdom would be grateful if the preliminary force could move at once to Fanning Island. It is considered that it would be advisable that the force should be escorted, and it is suggested that it might be transported in a cruiser of the New Zealand Naval Forces. In the present circumstances the despatch of the full establishment does not appear to be necessary.

323
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs

29 August 1939

Your telegram of 28 August.

My acting Prime Minister informs me that a force of two officers and thirty men1 will leave New Zealand for Fanning Island direct at 5 p.m. tomorrow, 30 August, in HMS Leander.2

His Majesty's Government in the Commonwealth of Australia and the High Commissioner for the Western Pacific are being advised accordingly.

1 No. 1 Platoon, A Company, New Zealand Regular Force.

2 HMNZS Leander, 6-inch cruiser, 7270 tons, attached to the New Zealand Division of the Royal Navy.

324
The Secretary of State for Dominion Affairs to the Governor-General of New Zealand

30 August 1939

Your telegram of 29 August. fanning island.

His Majesty's Government in the United Kingdom much appreciate the action taken and, in particular, the speed with which it was executed.

page 343

325
The Governor-General of New Zealand to the Secretary of State for Dominion Affairs1

7 September 1939

My telegram of 29 August [No. 323]. The force arrived at Fanning Island on the afternoon of 5 September, New Zealand time.

1 Rt. Hon. Anthony Eden had taken over on 3 Sep 1939.

326
The Prime Minister of New Zealand to the Secretary of State for Dominion Affairs2

19 February 1941

His Majesty's Government in New Zealand consider in view of the deterioration of the position in the Pacific that the garrison at Fanning Island, which consists of one platoon, should be reinforced by another platoon consisting of approximately one officer and thirty-two other ranks. Unless His Majesty's Government in the United Kingdom signify any objection, His Majesty's Government in New Zealand propose to despatch this platoon by the first available vessel.

2 Viscount Cranborne. This telegram was repeated to the High Commissioner for the Western Pacific.

327
The Secretary of State for Dominion Affairs to the Prime Minister of New Zealand3

Your telegram of 19 February.

His Majesty's Government in the United Kingdom welcome the proposal of His Majesty's Government in New Zealand to send a second platoon to Fanning Island by the first available vessel.

His Majesty's Government in the United Kingdom much appreciate the decision of His Majesty's Government in New Zealand, conveyed in your telegram No. 59 of 18 February,4 to mount and man the 6-inch gun which has been allocated to Fanning Island, and to provide all stores necessary for mounting and accommodation for personnel. page 344 Information as to the date when the gun will arrive at Fanning Island will be sent as soon as possible. The United Kingdom authorities are experiencing some difficulty in securing the range-finding gear required, and it would be most helpful if this gear could be provided from New Zealand. We should be glad to learn as soon as possible whether suitable gear is available in New Zealand and, if so, whether it could be released for Fanning Island.

3 Repeated to the High Commissioner for the Western Pacific.

4 Not published.

328
The Prime Minister of New Zealand to the Secretary of State for Dominion Affairs

28 February 1941

His Majesty's Government in New Zealand propose to send both the extra platoon and the battery personnel to Fanning Island on 24 March. The latter party of one officer and twenty-nine other ranks would be employed in preparing the site ready for the mounting of the gun when it arrives. His Majesty's Government in New Zealand much regret that it is not possible to supply range-finding equipment from New Zealand and would much appreciate it if the necessary gear could accompany the gun.

329
The Prime Minister of New Zealand to the Secretary of State for Dominion Affairs
[Extract]

7 March 1941

… 3. The decision of His Majesty's Government in the United Kingdom to instal one 6-inch gun at Fanning Island is welcomed and His Majesty's Government in New Zealand have already accepted responsibility for mounting and manning this gun. The recommendation of the New Zealand Chiefs of Staff was, however, for a two-gun battery, and His Majesty's Government in New Zealand would be grateful if consideration could be given to the question whether the one gun now proposed is adequate for the purpose….1

1 See Defence of the South Pacific, No. 248, for text omitted.

The United Kingdom Government replied on 31 March that demands for 6-inch guns were so heavy that it was not possible to make a second gun available.

page 345

330
The Prime Minister of New Zealand to the Secretary of State for Dominion Affairs
[Extract]

19 February 1942

… 3. In regard to Fanning Island, the responsibility for the defence of this was assumed by His Majesty's Government in New Zealand prior to the outbreak of war in 1939, and the garrison which was sent there has since been increased and now comprises 5 officers, 108 other ranks, with rifles, two MMGs, eight MGs, one 3-inch mortar, 250 grenades, 145,000 rounds SAA, one 6-inch QFC gun with 150 rounds. With the entry of Japan into the war and her initial successes, the scale of attack against which preparations must be made has increased considerably, and His Majesty's Government in New Zealand are in no position to provide adequate forces or equipment for the defence of this island. As the only trans-Pacific cable now available passes through Fanning Island, it is a major concern of the United Nations that the island be adequately protected. Moreover, because of the distance of Fanning Island from New Zealand, it is extremely difficult to supply the forces on this island from New Zealand.

4. For the foregoing reasons, and as it seems essential that His Majesty's Government in New Zealand should, in view of their responsibilities in the Anzac area, contain their strength there so that it might be more effective, they would propose that the defence of Fanning Island be assumed by the United States Government, and they would be glad, provided His Majesty's Government in the United Kingdom see no objection, if arrangements could be made for this proposal to be considered by the Combined Chiefs of Staff in Washington….1

331
The Prime Minister to the New Zealand Minister, Washington

2 April 1942

Your telegram No. 60 of 11 March.2 Arrangements must be made very shortly for the relief and provisioning of the garrison on Fanning Island, but before doing so we would be glad to learn whether there is any prospect of the United States Government assuming, as we proposed, responsibility for the defence of this island.

2 Not published. Reported a statement made by Sir John Dill that the Americans ‘did not feel justified in extending their work beyond Christmas Island’, but that they might be agreeable to supplying the Fanning Island garrison with food and other essentials.

page 346

332
The New Zealand Minister, Washington, to the Prime Minister

4 April 1942

Your telegram of 2 April. fanning island.

I saw Admiral King this morning and he issued instructions for an American force to relieve the Fanning Island garrison.

I arranged to leave all help on the island which may be required by the United States force. Fanning is a United Kingdom possession and it may be necessary to obtain approval from the United Kingdom Government.

Will you please attend to this and advise me. In the meantime King's order will proceed and I will keep you advised of progress. The preliminary order will provide for the transfer of our men as well as replacement.

333
The Prime Minister of New Zealand to the Secretary of State for Dominion Affairs1

8 April 1942

Your telegram [No. 268] of 5 April.2

His Majesty's Government in New Zealand feel now, as they have felt on similar occasions in the past, that it would be inadvisable to raise, in connection with the proffered assistance from the United States of America, any matters which the Americans might regard as unnecessarily formal or might perhaps construe as obstructive. For that reason they would be inclined to deprecate the use of the phrase ‘not only for formal reasons but also’ in the reply which His Majesty's Government in the United Kingdom propose to make to the United States Government, and for their part they propose to take the line in such cases that United States assistance will be welcomed in all areas for which the New Zealand Government are responsible, that prior notification is of course always desirable in order that any necessary preparations may be made, but that where prior notification is not considered feasible by the United States authorities the position will be quite understood.

His Majesty's Government in New Zealand have already at various times and in general terms let it be known to the United States Government that they agree to the use by United States forces of New Zealand and territories administered by them, including the Cook

1 Rt. Hon. C. R. Attlee.

page 347 Islands, Western Samoa and the Kermadecs, and, so far as they are concerned, of Fiji, Tongatabu, and other British administered islands in the South Pacific, for the defence of which they are responsible.

The New Zealand Minister at Washington has advised me of the agreement by the United States authorities to undertake the defence of Fanning Island as proposed in my telegram [No. 330], and the New Zealand Government take it that the general approval contemplated in your telegram under reply adequately covers the question of the United Kingdom Government's consent to this use of Fanning Island as well as of Fiji, other British administered islands in the Pacific, and of Tongatabu. So far as Tongatabu is concerned, the New Zealand Government take it that any necessary negotiations with the Tongan Government will be undertaken by His Majesty's Government in the United Kingdom.1

1 On 17 April the Dominions Secretary replied that the New Zealand Government's assumptions in this paragraph were correct, and that the Tongan Government had given its approval.

334
The Prime Minister to the New Zealand Minister, Washington

8 April 1942

Your telegram of 4 April [No. 332].

We note and approve your arrangements for Fanning Island and greatly appreciate United States assistance. It may well be that the best means of relieving our force would be for them to leave the island on the vessel that brings the American troops, even if that vessel should be returning to America, and we assume that you will keep us advised of the possibilities in this respect.

The Secretary of State for Dominion Affairs advises that Admiral King has asked the Joint Staff Mission in Washington for authority for the United States forces to use any Pacific islands under United Kingdom or Dominion control, and that His Majesty's Government in the United Kingdom propose to agree.

This will, of course, cover the case of Fanning Island, our proposals for which are in any case already known to the United Kingdom Government.

At the same time as the United Kingdom Government give this general consent to American use of the Pacific Islands, will you please inform the United States Government that the New Zealand Government will at all times welcome United States forces to this Dominion and to any islands administered by New Zealand. Prior notification is of course desirable in order that any necessary preparations may be made, but in any case where such prior notification page 348 is not considered feasible by the United States authorities, we will quite understand the position. As regards the British administered islands in the Pacific for which New Zealand has assumed defence responsibility, a similar position will arise so far as we are concerned, but the formal approval must come from His Majesty's Government in the United Kingdom.

335
The New Zealand Minister, Washington, to the Prime Minister

16 April 1942

Your telegram of 8 April.

Admiral King advises me that the orders issued to Admiral Nimitz with regard to relieving the garrison at Fanning Island include instructions that he is to transport the relieved garrison to New Zealand in due course. I will advise you when further information is available.

336
The New Zealand Minister, Washington, to the Prime Minister

16 April 1942

Admiral King now advises that relief and transportation for Fanning Island will leave Pearl Harbour about 19 April, arriving Fanning Island about 24 April. The relieved garrison should arrive at New Zealand approximately three weeks later.