the source of the major part of the entire export copra production. The total land area of American Samoa is 76 square miles of which 20 percent is considered arable under present tillage methods.

The islands of Tutuila and the Manu'a group are volcanic in origin, very mountainous, clothed with thick subtropical to tropical vegetation and encircled by fringing coral reefs. Steep-sided valleys and narrow coastal plains provide the only areas presently suitable for agriculture. The Samoan economy is essentially agrarian. Through their practice of shifting cultivation, the Samoans have been able to utilize the precipitous slopes of the hills for garden plots containing taro, bananas, coconuts, and tapioca.

Although practicing primitive methods of cultivation, the land formerly produced enough food to supply its population without difficulty. Coincidental with the introduction of modern medical controls, American Samoa's population has become one of the world's most rapidly increasing. During the decade 1940-50, population increased 46.7 percent. As of June 30, 1954, the population was estimated to be 22,400 with the percentage of women of child-bearing age continually increasing. Inasmuch as the economic base did not broaden proportionately, the need for new agricultural techniques, new crops, and new industries is becoming increasingly pressing.

The committee had several items on its agenda which required study while visiting on American Samoa. Among these items were:

(1) Note the progress being made on the preparation of the constitution for American Samoa and the success that has been achieved in granting additional self-government to the American Samoans.

(2) Study the steps being taken to establish a balance between American Samoa's phenomenal population increase and its agricultural production.

(3) Study additional means of improving economic conditions in American Samoa.

(4) Check on certain military matters concerning American Samoans, i. e., desirability of establishing a Marine Corps Reserve unit, continuing a recruiting program begun in 1954, and providing furloughs for Samoan youths who are serving in the armed services.

(5) Discuss various personnel matters pertaining to contract employees.

(6) Meet as many of the Americans and Samoans as possible, discuss their problems with them and thus be better able to understand their desires and requirements.

The committee felt that information should be gathered from various sources to represent actual conditions extant in American Samoa. In addition to conferences with members of the Governor's staff, informal discussions were held with a great many groups and individuals. During the Governor's reception, the feast and program at Fagasa Village and at individual conferences, the Samoans were encouraged to express themselves. On November 13, the congressional party members were honored guests at a kava ceremony held on the Malae. (See appendix 4 for address of the Honorable Sotoa, chairman, Council of Paramount Chiefs.) (See appendix 2 for organizational chart of government of American Samoa and appendix 3 for résumé of meeting with Governor's cabinet.)

III. POLITICAL PROGRESS

To facilitate an understanding and appreciation for the American Samoans' desire for an interest in the preparation of their constitution and their continued progress in local self-government, a background of their history and government is essential.

United States interest in the Samoan Islands dates from the report made by Capt. John Wilkes, of the United States exploring expedition in 1842. It was not, however, until 1872 that Comdr. Richard Meade visited the islands and was able to make a trade agreement on behalf of his Government and with the Samoan people. In 1878 a treaty was concluded with the Kingdom of Samoa which permitted the United States to establish a coaling station at Pago Pago, reputedly the best harbor in the South Pacific. Germany and Great Britain soon developed interests in Samoa and in 1889 the treaty of Berlin was negotiated under which the three powers, together with the local government of Samoa, would virtually rule the islands. The United States entered into a convention on December 2, 1899, by which Great Britain and Germany renounced in favor of the United States their claims to Tutuila and the other islands of the Samoan group east of longitude 171° west. These islands are now known as American Samoa. Concomitantly, the United States renounced its claims to the islands of the Samoan group west of longitude 171° west in favor of Germany. President McKinley placed jurisdiction over American Samoa in the Secretary of the Navy by an Executive order dated February 19, 1900, just 3 days after the ratification of the convention with Germany and Great Britain. Tutuila and Aunu'u Islands were voluntarily ceded to the United States by their chief on April 17, 1900, and those of the Manu'a group were likewise ceded on July 16, 1904. It was not until February 20, 1929, that the cession was accepted by a joint resolution of Congress, 29 years after the establishment of the naval base at Pago Pago.

The joint resolution provided that until Congress might provide for the government of the islands on civil, judicial, and military matters, powers should be vested in such persons and be exercised in such manner as the President might direct. The resolution also provided for a commission composed of Members of the United States Congress and Samoan chiefs to recommend to the Congress legislation to be enacted for American Samoa. Although the commission was duly appointed and in due course submitted its report, no legislation pertaining to a permanent government for American Samoa has yet been enacted by Congress.

From February 19, 1900, until July 1, 1951, American Samoa was administered by the Department of the Navy. By President Truman's Executive Order 10264, the Territory was placed under the administrative control of the Department of the Interior.

1. TERRITORIAL GOVERNMENT

Under naval administration, a code of laws was adopted establishing a tripartite system of government. The final authority in executive, legislative, and judicial departments remained in the naval governor. The legislative body, the fono, was the advisory council which met

annually or at the call of the Governor. The fono was composed of the governors of the three districts of American Samoa (who were appointed by the Governor from among the county chiefs), the hereditary county chiefs of each district, the district judges (two from each district) and 10 registered matais (family heads) chosen by the district councils. Thus, through appointive powers the Governor was able to influence the fono. At best, that body did not represent the rank and file of the Samoan people.

Recognizing the Samoans' increasing ability to assume legislative responsibilities, the Secretary of the Navy on February 23, 1948, by directive, amended the Code of American Samoa to provide for a bicameral legislature which was empowered to advise the Governor and to recommend legislation and regulations.

The newly created Legislature of American Samoa consisted of an upper house or house of ali'i, comprised of 12 persons who held the highest titles as set forth in the Code of American Samoa. These members were not elected by direct vote but derived their office from their traditional status.

The lower house or house of representatives contained 54 elected members. Two of these members were elected by secret ballot and represented the permanent residents of American Samoa not living under the customary social system (matai system). The remaining 52 members represented the primary village units within the territory. They were not elected by secret ballot but rather in open meeting in the traditional Samoan manner.

Firm in the belief that the Samoans are politically mature and that status within their society is dependent upon the roles they play in their own administrative machinery, the Secretary of the Interior approved on November 21, 1952, a reorganization plan of the legislative branch that had been drafted by the fono. The plan provided for a legislature composed of two houses, the house of senate was to be comprised of 15 titled members elected in accordance with Samoan customs. The house of representatives was to be composed of 17 members to be elected by universal suffrage in secret ballot. Following an intensive territorywide educational program which explained the new system and particularly the secret ballot, the population was registered and during January 1953, qualified voters went to the polls. The election was particularly successful in securing legislators representative of all the people. Twelve of the eighteen representatives elected, including two women, were not holders of Samoan chiefly titles. It is under this legislative plan that American Samoa is presently being administered."

In its sessions throughout the past 2 years, the legislature has made considerable progress toward attaining its objective of becoming a responsible and independent territorial lawmaking body.. In his inaugural address on November 12, 1953, Gov. Richard Barrett Lowe indicated clearly that the program of his administration would be to relinquish appropriate authority to capable hands as soon as they were ready to assume the responsibility. In keeping with this policy, he appointed a member of his staff to serve as legislative liaison officer to assist in matters of administration, and he invited the district governors, who are the executive heads of local Samoan government to attend meetings of the legislature. These steps assisted in raising the level of debate in the legislature from problems of a petty or local nature to those which concern policy and the Territory as a whole.

Although the members of many non-self-governing assemblies tend to prolong their sessions unduly, the American Samoan Legislature established a record of brevity in the conduct of its affairs. During 1953, the legislature met on 5 separate occasions for a total of 26 days. During 1954 the legislature met for only 23 days, of which 17 were regular sessions and 6 were special sessions called by the Governor.

While the visiting committee members were in Tutuila, the legislature was called into special joint session, addressed by Congressman Aspinall. The committee was greatly impressed by the ceremony and dignity with which the meetings were conducted, with the active public interest shown in the proceedings, and with the depth and breadth of the subjects discussed. Very pertinent questions were asked of the visitors during the second portion of the session from which the Governor and his staff withdrew, thus permitting a friendly exchange of comments between the congressional party and members of the legislature. (See appendix 5 for a transcription of the proceedings of a portion of the special session.)

During the 81st Congress, H. R. 4500 was introduced to provide organic legislation for American Samoa. Considerable data were collected and hearings were held in American Samoa during November 1949. Similar legislation has not been introduced since. The apparent consensus concerning the need or desirability for organic legislation may be summed up by quoting a statement made by Governor Lowe before the legislature on January 12, 1954:

The leaders of American Samoa have given considerable attention to the problem of organi legislation. In weighing the advantages of organic legislation against the disadvantages, it has become clear that most Samoans are not in favor of immediate action along this line. At least most of the leaders feel that such legislation should be postponed for some years to come or until the Samoan people are better trained to handle the problems which are likely to arise from it. I am inclined to agree with this viewpoint but at the same time I should like to see more tangible steps taken toward self-government.

Governor Lowe then outlined his plan for the establishment of the constitutional committee.

In response to a resolution passed by the legislature during January 1954, Executive Order No. 10 calling for the establishment of a constitutional committee, was issued. Governor Lowe, in speaking before a special joint session of the legislature, stated:

*** It is my pleasure to inform you that the Department of the Interior has authorized the preparation of a Territorial constitution for American Samoa. *** A Territorial constitution locally developed will, as you have pointed out in your resolution, bring many of the benefits of organic legislation and at the same time permit the people of Samoa to maintain their Territorial system of land tenure and their Territorial social organization so long as it meets their needs.

The constitutional committee was duly organized and began assembling source material in preparation of the document. It was hoped that the first draft could be forwarded to the Department of the Interior within a year, but at the time of the congressional party's visit, in mid-November, only the bill of rights had been completed. At that time, the constitutional committee was busily engaged with the second portion of the constitution, concerning the structure of the government of American Samoa.

2. SAMOAN LOCAL GOVERNMENT

Throughout the past 150 years of contact with and influence by westerners, Samoans, have survived as a stronghold of Polynesian culture. Ámong the important features of this country is the Samoan's love for and ability in local government. Status within the Samoan society depends largely on the acquisition of political knowledge and ability. Samoan leaders are elected by the family or district controlling the title according to their personal fitness and political awareness rather than according to the rule of primogeniture. Selfgovernment, as it exists today, is the key to the Samoans' ability to adapt themselves to the American method of indirect rule through which their administration has developed over the past 55 years. Because the Samoans have always taken an active interest in their political affairs, they have attained a large degree of local self-government, as is shown on the accompanying chart.

The table of organization of the administration of American Samoa political affairs reveals a definite chain of command from the village mayors through the county chiefs and the district governors to the Samoan Affairs Office and eventually to the Governor of American Samoa.