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By Root 861 0

'consent to forty or fifty nations thrusting interfering fingers into the life's existence of the British Empire'.30 The position changed dramatically in the run-up to the San Francisco Conference. It was clear that it was unacceptable not just to the United States but also New Zealand and Australia, who had indicated that they remained advocates of the existing mandate system. Added to this it was unlikely that much in the way of international support could be garnered. But most importantly it was now obvious that this subject would not be discussed in private but in open session, in front of a 'motley assembly', where the future of Britain's colonies would no doubt be painfully scrutinized. A new memorandum, released to the War Cabinet in March 1945, recommended that the continuation of mandates be therefore endorsed in principle but with some insistence on revisions to remove their worst features. Ideally discussions about trusteeship could be avoided and resolved later by an ad hoc, and presumably less uncertain and potentially emotive body. The great danger remained that American elements would demand that the whole of the Colonial Empire be placed under international review and, potentially, pressure would be applied that it be placed under trusteeship.31 Attending the London meetings the following month the Dominions had been informed of the changes which, once again, had been reached without any prior communication with them and they remained unconvinced.32 Despite Cranborne's best efforts the alliance departed for San Francisco in questionable spirit.33

The Conference was conducted on a typically American grand scale and as one commentator put it, 'confusion reigned at almost every level'. No less that 2,636 journalists were accredited as part of the propaganda campaign orchestrated by the authorities in Washington. A total of 282 delegates represented their countries and were assisted by staffs and a secretariat totalling over 2,500 people. At 4.30 pm on the afternoon of 25 April 1945, American Secretary of State Edward Stettinius Jr. struck his gavel three times on the podium to convene the first plenary session of the United Nations Conference on World Organization. The Conference opened on the same day as American and Russian troops met on the banks of the River Elbe. For working purposes the Conference was divided into 12 committees with sections of the Dumbarton Oaks documents assigned to each for review and revision. These committees reported in turn to one of four Commissions, which in turn reported to plenary sessions of the entire Conference. Coordination was theoretically the responsibility of a Steering Committee supported by a smaller Executive Committee. In reality the most important work was done by the informal group made up of the representatives of the four Great Powers, joined later by France. Along with China, however, the French delegate had little real voice; power rested with 'the Big Three'.34

The part played by the Dominions during the Conference and their relationship with the British delegation can be gauged from a series of 'racy and interesting' letters that had been sent back to London by a member of the British delegation. In the summer of 1944 it had been proposed that Ben Cockram, who had been the Political Secretary to Lord Harlech in South Africa, should move to the Washington Embassy as the DO representative. With the rank of Counsellor, he would replace Stephen Holmes who was departing for the High Commission in Ottawa. He was to be considered a full member of the embassy staff with full diplomatic privileges and an impressive array of allowances.35 Cockram held an Oxford doctorate and had been part-educated at an American university. With nearly 20 years' experience of Dominion affairs he was well-respected and there was no opposition from the FO to his appointment. His role would be to act as the DO's 'eyes and ears', working within the Embassy to gather what information he could about specific issues that involved or affected the Dominions. Having previously prepared a detailed