and Newfoundland could not take any direct part at all, because there is no place in a Conference of nations for the artificial subdivisions of a national unit. If the acting heads of those provincial Colonies were recognised as the peers of the Premiers of Canada and New Zealand, then the acting heads of the several Australian States might, and certainly would, claim the same recognition. It is only their petty affectation of undiminished State sovereignty that has delayed the much-needed appointment of a federal High Commissioner. Under the circumstances, the obvious policy for a British Prime Minister who wished to make a beginning of Imperial organization would be to start the system of the Conference in conjunction with the acting heads of Canada and New Zealand only, which countries alone have provided themselves so far with the necessary equipment. It is safe to prophesy that an Australian High Commissioner would be forthcoming speedily in that event—or perhaps a Minister for External Affairs, the latter department being assigned specifically to the federal authority by the terms of the Commonwealth Act. Likewise the actual initiation of the Imperial Conference would stimulate the South African Colonies and Newfoundland to acquire the necessary status through provincial federation. There is no place for them otherwise in the organization of the Empire, so long as Imperial federation is not acceptable all round.
If the principle of the Conference offers the only alternative to a policy of mere negation, perpetuating the risks of the present position, then it seems futile to reject the Conference on the plea that, by recognising State independence, it prejudices the chances of a genuine Imperial federation. Mr. Deakin was right when he said that there was no real opposition in the ideas of alliance and federation, though there may be a sequence. I have pointed out that one essential feature of 'federation,' in the proper meaning of that term, is the association of States on the basis of equality, regardless of size. An alliance which recognised equality, if
