Unilateral Declaration of Independence (Rhodesia)

Rhodesia's Unilateral Declaration of Independence (UDI) was a statement adopted by the Cabinet of Rhodesia on 11 November 1965, announcing that Southern Rhodesia or simply Rhodesia, a British territory in southern Africa that had governed itself since 1923, now regarded itself as an independent sovereign state. The culmination of a protracted dispute between the British and Rhodesian governments regarding the terms under which the latter could become fully independent, it was the first unilateral break from the United Kingdom by one of its colonies since the United States Declaration of Independence in 1776. The UK, the Commonwealth and the United Nations all deemed Rhodesia's UDI illegal, and economic sanctions, the first in the UN's history, were imposed on the breakaway colony. Amid near-complete international isolation, Rhodesia continued as an unrecognised state with the assistance of South Africa and (until 1974) Portugal.

The Rhodesian government, which mostly comprised members of the country's white minority of about 5%, was indignant when, amid the UK colonial government's ''Wind of Change'' policies of decolonisation, less developed African colonies to the north without comparable experience of self-rule quickly advanced to independence during the early 1960s while Rhodesia was refused sovereignty under the newly ascendant principle of "no independence before majority rule" ("NIBMAR"). Most white Rhodesians felt that they were due independence following four decades of self-government, and that the British government was betraying them by withholding it.

A stalemate developed between the British and Rhodesian prime ministers, Harold Wilson and Ian Smith respectively, between 1964 and 1965. The dispute largely surrounded the British condition that the terms for independence had to be acceptable "to the people of the country as a whole"; Smith contended that this was met, while the UK and African Nationalist Rhodesian leaders held that it was not. After Wilson proposed in late October 1965 that the UK might safeguard future black representation in the Rhodesian parliament by withdrawing some of the colonial government's devolved powers, then presented terms for an investigatory Royal Commission that the Rhodesians found unacceptable, Smith and his Cabinet declared independence. Calling this treasonous, the British colonial governor, Sir Humphrey Gibbs, formally dismissed Smith and his government, but they ignored him and appointed an "Officer Administering the Government" to take his place.

While no country recognised the UDI, the Rhodesian High Court deemed the post-UDI government legal and ''de jure'' in 1968. The Smith administration initially professed continued loyalty to Queen Elizabeth II, but abandoned this in 1970 when it declared a republic in an unsuccessful attempt to win foreign recognition. The Rhodesian Bush War, a guerrilla conflict between the government and two rival communist-backed black Rhodesian groups, began in earnest two years later, and after several attempts to end the war Smith concluded the Internal Settlement with non-militant nationalists in 1978. Under these terms the country was reconstituted under black rule as Zimbabwe Rhodesia in June 1979, but this new order was rejected by the guerrillas and the international community. The Bush War continued until Zimbabwe Rhodesia revoked its UDI as part of the Lancaster House Agreement in December 1979. Following a brief period of direct British rule, the country was granted internationally recognised independence under the name Zimbabwe in 1980.

Background

The southern African territory of Rhodesia, officially Southern Rhodesia, was a unique case in the British Empire and Commonwealth: although a colony in name, it was internally self-governing and constitutionally not unlike a dominion. This situation dated back to 1923, when it was granted responsible government within the Empire as a self-governing colony, following three decades of administration and development by the British South Africa Company. Britain had intended Southern Rhodesia's integration into the Union of South Africa as a new province, but this having been rejected by registered voters in the 1922 government referendum, the territory was moulded into a prospective dominion instead. It was empowered to run its own affairs in almost all respects, including defence.

Whitehall's powers over Southern Rhodesia under the 1923 constitution were, on paper, considerable; the British Crown was theoretically able to cancel any passed bill within a year, or alter the constitution however it wished. These reserved powers were intended to protect the indigenous black Africans from discriminatory legislation and to safeguard British commercial interests in the colony, but as Claire Palley comments in her constitutional history of the country, it would have been extremely difficult for Whitehall to enforce such actions, and attempting to do so would have probably caused a crisis. In the event, they were never exercised. A generally co-operative relationship developed between Whitehall and the colonial government and civil service in Salisbury, and dispute was rare.

The 1923 constitution was drawn up in non-racial terms, and the electoral system it devised was similarly open, at least in theory. Voting qualifications regarding personal income, education and property, similar to those of the Cape Qualified Franchise, were applied equally to all, but since most blacks did not meet the set standards, both the electoral roll and the colonial parliament were overwhelmingly from the white minority of about 5%. The result was that black interests were sparsely represented if at all, something that most of the colony's whites showed little interest in changing; they claimed that most blacks were uninterested in Western-style political process and that they would not govern properly if they took over. Bills such as the Land Apportionment Act of 1930, which earmarked about half of the country for white ownership and residence while dividing the rest into black purchase, tribal trust and national areas, were variously biased towards the white minority. White settlers and their offspring provided most of the colony's administrative, industrial, scientific and farming skills, and built a relatively balanced, partially industrialised market economy, boasting strong agricultural and manufacturing sectors, iron and steel industries and modern mining enterprises. Everyday life was marked by discrimination ranging from job reservation for whites to petty segregation of trains, post office queues and the like. Whites owned most of the best farmland, and had far superior education, wages and homes, but the schooling, healthcare, infrastructure and salaries available to black Rhodesians were nevertheless very good by African standards.

In the wider Imperial context, Southern Rhodesia occupied a category unto itself because of the "special quasi-independent status" it held. The Dominions Office, formed in 1925 to handle British relations with the dominions of Australia, Canada, New Zealand, Newfoundland, South Africa and the Irish Free State (the Statute of Westminster 1931 delineated the rights of the dominions more clearly in that year), also dealt with Southern Rhodesia, and Imperial Conferences included the Southern Rhodesian Prime Minister alongside those of the dominions from 1932. This unique arrangement continued following the advent of Commonwealth Prime Ministers' Conferences in 1944. Southern Rhodesians of all races fought for Britain in the Second World War, and the colonial government gradually received more autonomy regarding external affairs. During the immediate post-war years, Southern Rhodesian politicians generally thought that they were as good as independent as they were, and that full autonomy in the form of dominionship would make little difference to them. Post-war immigration to Southern Rhodesia, mainly from Britain, Ireland and South Africa, caused the white community to swell from 68,954 in 1941 to 221,504 in 1961. The black population grew from 1,400,000 to 3,550,000 over the same period. Rhodesian authorities actively promoted immigration and reproduction of whites to boost their numbers while encouraging family planning for blacks to curtail their numbers. They hoped that by altering the demographic content of the territory enough they could have a stronger position from which to petition the British government for more autonomy.

Federation and the Wind of Change

Believing full dominion status to be effectively symbolic and "there for the asking", Prime Minister Godfrey Huggins (in office from 1933 to 1953) twice ignored British overtures hinting at dominionship, and instead pursued an initially semi-independent Federation with Northern Rhodesia and Nyasaland, two colonies directly administered from London. He hoped that this might set in motion the creation of one united dominion in south-central Africa, emulating the Federation of Australia half a century before. The Federation of Rhodesia and Nyasaland, defined in its constitution as indissoluble, began in 1953, mandated by the results of a mostly white referendum, with Southern Rhodesia, the most developed of the three territories, at its head, Huggins as Federal Prime Minister and Salisbury as Federal capital.

Coming at the start of the decolonisation period, the Federation of self-governing Southern Rhodesia with two directly ruled British protectorates was later described by the British historian Robert Blake as "an aberration of history—a curious deviation from the inevitable course of events". The project faced black opposition from the start, and ultimately failed because of the shifting international attitudes and rising black Rhodesian ambitions of the late 1950s and early 1960s, often collectively called the Wind of Change. Britain, France and Belgium vastly accelerated their withdrawal from Africa during this period, believing colonial rule to be no longer sustainable geopolitically or ethically. The idea of "no independence before majority rule", commonly abbreviated to "NIBMAR", gained considerable ground in British political circles. When Huggins (who had been recently ennobled as Lord Malvern) asked Britain to make the Federation a dominion in 1956, he was rebuffed. The opposition Dominion Party responded by repeatedly calling for a Federal unilateral declaration of independence (UDI) over the next few years. Following Lord Malvern's retirement in late 1956, his successor Sir Roy Welensky pondered such a move on at least three occasions.

Attempting to advance the case for Southern Rhodesian independence, particularly in the event of Federal dissolution, the Southern Rhodesian Prime Minister Sir Edgar Whitehead brokered the 1961 constitution with Britain, which he thought would remove all British powers of reservation over Southern Rhodesian bills and acts, and put the country on the brink of full sovereignty. Despite its containing no independence guarantees, Whitehead, Welensky and other proponents of this constitution presented it to the Southern Rhodesian electorate as the "independence constitution" under which Southern Rhodesia would become a dominion on a par with Australia, Canada and New Zealand if the Federation dissolved. White dissenters included Ian Smith, MP for Gwanda and Chief Whip for the governing United Federal Party (UFP) in the Federal Assembly, who took exception to the constitution's omission of an explicit promise of Southern Rhodesian independence in the event of Federal dissolution, and ultimately resigned his post in protest. A referendum of the mostly white electorate approved the new constitution by a majority of 65% on 26 July 1961. The final version of the constitution included a few extra provisions inserted by the British, one of which—Section 111—reserved full powers to the Crown to amend, add to or revoke certain sections of the Southern Rhodesian constitution by Order in Council at the request of the British government. This effectively negated the relinquishment of British powers described elsewhere in the document, but the Southern Rhodesians did not initially notice it.

The black Rhodesian movement in Southern Rhodesia, founded and organised by urban black elites during the late 1950s, was repeatedly banned by the colonial government because of the political violence, industrial sabotage and intimidation of potential black voters that characterised its campaign. The principal nationalist group, led by the Bulawayo trade unionist Joshua Nkomo, renamed itself with each post-ban reorganisation, and by the start of 1962 was called the Zimbabwe African People's Union (ZAPU). Attempting to win black political support, Whitehead proposed a number of reforms to racially discriminatory legislation, including the Land Apportionment Act, and promised to implement these if his UFP won the next Southern Rhodesian election. But intimidation by ZAPU of prospective black voters impeded the UFP's efforts to win their support, and much of the white community saw Whitehead as too radical, and soft on what they saw as black extremism. In the December 1962 Southern Rhodesian election, the UFP was defeated by the Rhodesian Front (RF), a newly formed alliance of conservative voices headed by Winston Field and Ian Smith, in what was widely considered a shock result. Field became Prime Minister, with Smith as his deputy.

Federal dissolution; the roots of mistrust

Meanwhile, secessionist black Rhodesian parties won electoral victories in Northern Rhodesia and Nyasaland, and Harold Macmillan's Conservative administration in Britain moved towards breaking up the Federation, resolving that it had become untenable. In February 1962, the British Secretary of State for Commonwealth Relations, Duncan Sandys, secretly informed the Nyasaland nationalist leader Hastings Banda that secession would be allowed. A few days later, he horrified Welensky by telling him that "we British have lost the will to govern". "But we haven't", retorted Julian Greenfield, Welensky's Law Minister. Macmillan's Deputy Prime Minister and First Secretary of State, R A Butler, who headed British oversight of the Federation, officially announced Nyasaland's right to secede in December 1962. Four months later, he informed the three territories that he was going to convene a conference to decide the Federation's future.

As Southern Rhodesia had been the UK's legislative partner in forming the Federation in 1953, it would be impossible (or at least very difficult) for Britain to dissolve the union without Southern Rhodesia's co-operation. Field could therefore potentially hamstring the British by refusing to attend the conference until they pledged to grant his country full independence. According to Field, Smith and other RF politicians, Butler made several such guarantees orally to ensure their co-operation at the conference, but repeatedly refused to give anything on paper. The Southern Rhodesians claimed that Butler justified his refusal to give a written promise by saying that binding Whitehall to a document rather than his word would be against the Commonwealth's "spirit of trust"—an argument that Field eventually accepted.; ; "Let's remember the trust you emphasised", Smith warned, according to Field's account wagging his finger at Butler; "if you break that you will live to regret it." Southern Rhodesia attended the conference, which was held at Victoria Falls over a week starting from 28 June 1963, and among other things it was agreed to formally liquidate the Federation at the end of the year. In the House of Commons afterwards, Butler flatly denied suggestions that he had "oiled the wheels" of Federal dissolution with secret promises to the Southern Rhodesians.

Field's government was startled by Britain's announcement in October 1963 that Nyasaland would become fully independent on 6 July 1964. While no date was set for Northern Rhodesian statehood, it was generally surmised that it was going to follow shortly thereafter. Smith was promptly sent to London, where he held a round of inconclusive Southern Rhodesian independence talks with the new British Prime Minister, Sir Alec Douglas-Home. Around the same time, the presence and significance of Section 111 of the 1961 constitution emerged in Southern Rhodesia, prompting speculation in political circles that a future British government might, if it were so inclined, go against previous conventions by legislating for Salisbury without its consent, withdrawing devolved powers or otherwise altering the Southern Rhodesian constitution. Fearing what the Labour Party might do if it won the next British general election (which was projected for late 1964), the Southern Rhodesians stepped up their efforts, hoping to win independence before Britain went to the polls, and preferably not after Nyasaland. The Federation dissolved as scheduled at the end of 1963.

Positions and motivations

British government stance

The British government's refusal to grant independence to Southern Rhodesia under the 1961 constitution was largely the result of the geopolitical and moral shifts associated with the Wind of Change, coupled with the UK's wish to avoid opprobrium and loss of prestige in the United Nations (UN) and the Commonwealth. The issue gained international attention in Africa and worldwide as a flashpoint for questions of decolonisation and racism. By the early 1960s, general consensus in the post-colonial UN—particularly the General Assembly, where the communist bloc and the Afro-Asian lobby were collectively very strong—roundly denounced all forms of colonialism, and supported communist-backed black nationalist insurgencies across southern Africa, regarding them as racial liberation movements. Amid the Cold War, Britain opposed the spread of Soviet and Chinese influence into Africa, but knew it would become an international pariah if it publicly expressed reservations or backed down on NIBMAR in the Southern Rhodesia question. Once the topic of Southern Rhodesia came to the fore in the UN and other bodies, particularly the Organisation of African Unity (OAU), even maintaining the ''status quo'' became regarded as unacceptable internationally, causing the UK government a great deal of embarrassment.

In the Commonwealth context, too, Britain knew that simply granting independence to Southern Rhodesia was out of the question as many of the Afro-Asian countries were also Commonwealth members. Statehood for Salisbury without majority rule would split the Commonwealth and perhaps cause it to break up, a disastrous prospect for British foreign policy. The Commonwealth repeatedly called on Britain to intervene directly should Southern Rhodesian defiance continue, while liberals in Britain worried that if left unchecked Salisbury might drift towards South African-style apartheid. Anxious to avoid having to choose between Southern Rhodesia and the Commonwealth, Whitehall attempted to negotiate a middle way between the two, but ultimately put international considerations first, regarding them as more important.

At party level, the Labour Party, in opposition until October 1964, was overtly against Southern Rhodesian independence under the 1961 constitution and supportive of the black Rhodesian movement on ideological and moral grounds. The Liberal Party, holding a handful of parliament seats, took a similar stance. The Conservative Party, while also following a policy of decolonisation, was more sympathetic to the Southern Rhodesian government's position, and included members who openly supported it.

Southern Rhodesian government view

The Southern Rhodesian government found it bizarre that Britain was making independent states out of Northern Rhodesia and Nyasaland, less developed territories with little experience of self-rule, while withholding sovereign statehood from Southern Rhodesia, the Federation's senior partner, which had already been self-governing for four decades and which was one of the most prosperous and developed countries in Africa. The principle of majority rule, the basis for this apparent inconsistency, was considered irrelevant by the Southern Rhodesians. They had presumed that in the event of Federal dissolution they would be first in line for independence without major adjustments to the 1961 constitution, an impression confirmed to them by prior intergovernmental correspondence, particularly the oral promises they claimed to have received from Butler. When it did not prove forthcoming they felt cheated. Salisbury contended that its predominantly white legislature was more deserving of independence than the untried black Rhodesian leaders as it had proven its competence over decades of self-rule.

The RF claimed that the bloody civil wars, military coups and other disasters that plagued the new majority-ruled African states to the north, many of which had become corrupt, autocratic or communist one-party states very soon after independence, showed that black Rhodesian leaders were not ready to govern. Influenced strongly by the white refugees who had fled south from the Congo, it presented chaotic doomsday scenarios of what black Rhodesian rule in Southern Rhodesia might mean, particularly for the white community. Proponents of the RF stand downplayed black Rhodesian grievances regarding land ownership and segregation, and argued that despite the racial imbalance in domestic politics—whites made up 5% of the population, but over 90% of registered voters—the electoral system was not racist as the franchise was based on financial and educational qualifications rather than ethnicity. They emphasised the colony's proud war record on Britain's behalf, and expressed a wish in the Cold War context to form an anti-communist, pro-Western front in Africa alongside South Africa and Portugal.

These factors combined with what RF politicians and supporters saw as British decadence, chicanery and betrayal to create the case they put forward that UDI, while dubious legally and likely to provoke international uproar, might nevertheless be in their eyes justifiable and necessary for the good of the country and region if an accommodation could not be found with Whitehall.

Road to UDI

First steps, under Field

Field's failure to secure independence concurrently with the end of the Federation caused his Cabinet's support for him to waver during late 1963 and early 1964. The RF caucus in January 1964 revealed widespread dissatisfaction with him on the grounds that the British seemed to be outwitting him. The Prime Minister was put under immense pressure to win the colony's independence. Field travelled to England later that month to press Douglas-Home and Sandys for independence, and raised the possibility of UDI on a few occasions, but returned empty-handed on 2 February.

The RF united behind Field after Sandys wrote him a terse letter warning him of the likely Commonwealth reaction to a declaration of independence, but the Prime Minister then lost his party's confidence by failing to pursue a possible route to at least ''de facto'' independence devised by Desmond Lardner-Burke, a lawyer and RF MP for Gwelo. During March 1964, the Legislative Assembly in Salisbury considered and passed Lardner-Burke's motion that the Governor, Sir Humphrey Gibbs, should submit a petition to the Queen requesting alteration of Section 111 of the 1961 constitution so that the Royal Assent described therein would be exercised at the request of the Southern Rhodesian government rather than that of its British counterpart. This would both remove the possibility of British legislative interference and pave the way for an attempted assumption of independence by Order in Council.

The RF's intention was partly to test whether or not the British would attempt to block this bill after Gibbs had granted Royal Assent to it, but this issue never came to a head because Sandys persuaded Field not to forward it to Gibbs for ratification on the grounds that it had not been unanimously passed. Lord Salisbury, one of Southern Rhodesia's main supporters in Britain, despaired at Field's lack of action, telling Welensky that as he saw it "the simple time to have declared independence, whether right or wrong, would have been when the Federation came to an end". The RF hierarchy interpreted this latest backtrack by Field as evidence that he would not seriously challenge the British on the independence issue, and forced his resignation on 13 April 1964. Smith accepted the Cabinet's nomination to take his place.

Smith replaces Field; talks with Douglas-Home

Smith, a farmer from the Midlands town of Selukwe who had been seriously wounded while serving in the British Royal Air Force during the Second World War, was Southern Rhodesia's first native-born Prime Minister. Regarded in British political circles as a "raw colonial"—when he took over, Smith's personal experience of the UK comprised four brief visits—he promised a harder line than Field in independence talks.; ; The RF's replacement of Field drew criticism from the British Labour Party, whose leader Harold Wilson called it "brutal", while Nkomo described the new Smith Cabinet as "a suicide squad ... not interested in the welfare of all the people but only in their own". Smith said he was pursuing a middle course between black Rhodesian rule and apartheid so that there would still be "a place for the white man" in Southern Rhodesia; this would benefit the blacks too, he claimed. He held that the government should be based "on merit, not on colour or nationalism", and insisted that there would be "no African nationalist government here in my lifetime".

Salisbury's blunt refusal to be part of the Wind of Change caused the Southern Rhodesian military's traditional British and American suppliers to impose an informal embargo, and prompted Whitehall and Washington to stop sending Southern Rhodesia financial aid around the same time. In June 1964, Douglas-Home informed Smith that Southern Rhodesia would not be represented at the year's Commonwealth Prime Ministers' Conference, despite Salisbury's record of attendance going back to 1932, because of a change in policy to only include representatives from fully independent states. This decision, taken by Britain to preempt the possibility of open confrontation with Asian and black African leaders at the conference, deeply insulted Smith. Lord Malvern equated Britain's removal of Southern Rhodesia's conference seat with "kicking us out of the Commonwealth", while Welensky expressed horror at what he described as "this cavalier treatment of a country which has, since its creation, staunchly supported, in every possible way, Britain and the Commonwealth".

At 10 Downing Street in early September 1964, impasse developed between Douglas-Home and Smith over the best way to measure black public opinion in Southern Rhodesia. A key plank of Britain's Southern Rhodesia policy was that the terms for independence had to be "acceptable to the people of the country as a whole"—agreeing to this, Smith suggested that white and urban black opinion could be gauged through a general referendum of registered voters, and that rural black views could be obtained at a national ''indaba'' (tribal conference) of chiefs and headmen. Douglas-Home told Smith that although this proposal satisfied him personally, he could not accept it as he did not believe the Commonwealth, the United Nations or the Labour Party would also do so. He stressed that such a move towards accommodation with Smith might hurt the Conservatives' chances in the British general election the next month, and suggested that it might be in Smith's best interests to wait until after the election to continue negotiations. Smith accepted this argument. Douglas-Home assured Smith that a Conservative government would settle with him and grant independence within a year.

Attempting to form a viable white opposition to the Rhodesian Front, the UFP resurrected itself around Welensky, renamed itself the Rhodesia Party, and entered the Arundel and Avondale by-elections that had been called for 1 October 1964. Perturbed by the prospect of having to face the political heavyweight Welensky in parliament at the head of the opposition, the RF poured huge resources into winning both of these former UFP safe seats, and fielded Clifford Dupont, Smith's deputy, against Welensky in Arundel. The RF won both seats comfortably, and the Rhodesia Party soon faded away. Spurred on by this success, Smith organised the ''indaba'' for 22 October, and called a general independence referendum for 5 November 1964. Meanwhile, Wilson wrote a number of letters to black Southern Rhodesians, assuring them that "the Labour Party is totally opposed to granting independence to Southern Rhodesia so long as the government of that country remains under the control of the white minority".

Wilson's Labour government; Salisbury's tests of opinion

Labour defeated the Conservatives by four seats in the British general election on 15 October 1964, and formed a government the next day. Both Labour and the Conservatives told Smith that a positive result at the ''indaba'' would not be recognised by Britain as representative of the people, and the Conservatives turned down Salisbury's invitation to send observers. Smith pressed on, telling parliament that he would ask the tribal chiefs and headmen "to consult their people in the traditional manner", then hold the ''indaba'' as planned. On 22 October 196 chiefs and 426 headmen from across the country gathered at Domboshawa, just north-east of Salisbury, and began their deliberations. Smith hoped that Britain, having taken part in such ''indabas'' in the past, might send a delegation at the last minute, but none arrived, much to his annoyance, particularly as the British government's Commonwealth Secretary Arthur Bottomley was only across the Zambezi in Lusaka at the time.

While the chiefs conferred, Northern Rhodesia became independent Zambia on 24 October 1964, emulating Nyasaland, which had achieved statehood as Malawi three months earlier. Reasoning that it was no longer necessary to refer to itself as "Southern" in the absence of a northern counterpart, Southern Rhodesia began calling itself simply Rhodesia. The same day, the commander of the Rhodesian Army, Major-General John "Jock" Anderson, resigned, announcing publicly that he was doing so because of his opposition to UDI, which he said he could not go along with because of his oath of allegiance to the Queen. Interpreting this as a sign that Smith intended to declare independence if a majority backed it in the referendum, Wilson wrote a stiff letter to Smith on 25 October, warning him of the consequences of UDI, and demanding "a categorical assurance forthwith that no attempt at a unilateral declaration of independence on your part will be made". Smith expressed confusion as to what he had done to provoke this, and ignored it.

When the ''indaba'' ended on 26 October, the chiefs and headmen returned a unanimous decision to support the government's stand for independence under the 1961 constitution, attesting in their report that "people who live far away do not understand the problems of our country". This verdict was rejected by the nationalist movement on the grounds that the chiefs received governmental salaries; the chiefs countered that the black MPs in parliamentary opposition also received such salaries, but still opposed the government. Malvern, who was becoming perturbed by the RF's actions, dismissed the ''indaba'' as a "swindle", asserting that the chiefs no longer had any real power; the British simply ignored the whole exercise. On 27 October, Wilson released a firm statement regarding Britain's intended response to UDI, warning that Rhodesia's economic and political ties with Britain, the Commonwealth and most of the world would be immediately severed amid a campaign of sanctions if Smith's government went ahead with UDI. This was intended to discourage white Rhodesians from voting for independence in the referendum, for which the RF campaign slogan was "Yes means Unity, not UDI". Wilson was pleased when Douglas-Home, his leading opponent in the House of Commons, praised the statement as "rough but right". On 5 November 1964, Rhodesia's mostly white electorate voted "yes" to independence under the 1961 constitution by a margin of 89%, prompting Smith to declare that the British condition of acceptability to the people as a whole had been met.

Stalemate develops between Smith and Wilson

Smith wrote to Wilson the day after the referendum, asking him to send Bottomley to Salisbury for talks. Wilson replied that Smith should instead come to London. The British and Rhodesians exchanged often confrontational letters for the next few months. Alluding to the British financial aid pledged to Salisbury as part of the Federal dissolution arrangements, Wilson's High Commissioner in Salisbury, J B Johnston, wrote to the Rhodesian Cabinet Secretary Gerald B Clarke on 23 December that "talk of a unilateral declaration of independence is bound to throw a shadow of uncertainty on the future financial relations between the two governments". Smith was furious, seeing this as blackmail, and on 13 January 1965 wrote to Wilson: "I am so incensed at the line of your High Commissioner's letter that I am replying directly to you ... It would appear that any undertakings given by the British government are worthless ... such immoral behaviour on the part of the British government makes it impossible for me to continue negotiations with you with any confidence that our standards of fair play, honesty and decency will prevail."

The two premiers were brought together in person in late January 1965, when Smith travelled to London for Sir Winston Churchill's funeral. Following an episode concerning Smith's non-invitation to a luncheon at Buckingham Palace after the funeral—noticing the Rhodesian's absence, the Queen sent a royal equerry to Smith's hotel to retrieve him, reportedly causing Wilson much irritation—the two Prime Ministers inconclusively debated at 10 Downing Street. They differed on most matters, but agreed on a visit to Rhodesia the next month by Bottomley and the Lord Chancellor, Lord Gardiner, to gauge public opinion and meet political and commercial figures. Bottomley and Gardiner visited Rhodesia from 22 February to 3 March, collected a wide cross-section of opinions, including some from black Rhodesians, and on returning to Britain reported to the House of Commons that they were "not without hope of finding a way towards a solution that will win the support of all communities and lead to independence and prosperity for all Rhodesians". Bottomley also condemned black-on-black political violence, and dismissed the idea of introducing majority rule through military force.

The RF called a new general election for May 1965 and, campaigning on an election promise of independence, won all 50 "A"-roll seats (the voters for which were mostly white). Josiah Gondo, leader of the United People's Party, became Rhodesia's first black Leader of the Opposition. Opening parliament on 9 June, Gibbs told the Legislative Assembly that the RF's strengthened majority amounted to "a mandate to lead the country to its full independence", and announced that the new government had informed him of its intent to open its own diplomatic mission in Lisbon, separate from the British embassy there. The British and Rhodesians argued about this unilateral act by Salisbury, described by the historian J R T Wood as the "veritable straw in the wind", alongside the independence issue until Portugal accepted the mission in late September, much to Britain's fury and Rhodesia's delight. Hoping to bring Smith to heel by stonewalling him, Wilson's ministers deliberately delayed and frustrated the Rhodesian government in negotiations. Rhodesia was again excluded from the Commonwealth Prime Ministers' Conference in 1965. The UK's refusal of aid, the Lisbon mission, the informal arms embargo and other issues combined with this to cause the Rhodesian government's sense of alienation from Britain and the Commonwealth to deepen. In his memoirs, Smith accused the British of "resorting to politics of convenience and appeasement". Wilson, meanwhile, became exasperated by what he saw as Rhodesian inflexibility, describing the gap between the two governments as "between different worlds and different centuries".

Final steps to UDI

Amid renewed rumours of an impending Rhodesian UDI, Smith travelled to meet Wilson in London at the start of October 1965, telling the press that he intended to resolve the independence issue once and for all. Both the British and the Rhodesians were surprised by the large numbers of Britons who came out to support Smith during his visit. Smith accepted an invitation from the BBC
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