He tried without success to alienate lands held by Africans in Uganda so they could be organized as European plantations using native laborers.
[4] Carter represented the majority view of Europeans when his Land Commission of 1914 favored the plantation system as most likely to result in economic growth.
He was opposed by the director of agriculture, S. Simpson, and the provincial commissioner of Eastern Province, Francis Spire, who both thought that the African farms should be the basis of the Ugandan economy.
However, the Colonial Office favored peasant farming over European plantations, so Carter's recommendations were rejected by the British government.
Carter's Seventh Report was approved by Sir Robert Coryndon, who had succeeded Jackson as Governor of Uganda, and was sent to London in 1920.
[4] Carter's conclusions were formulated in the Land Registration and Transfer Act of 1920, submitted to the Secretary of State for the Colonies Lord Milner for approval.
However, the ordinance had little real effect since the planters were suffering from a severe trade depression, a lack of money and an acute shortage of labor.
However, Victor Cavendish, 9th Duke of Devonshire became Colonial Secretary at the end of 1922, and in February 1923 reversed the land policies that Coryndon had approved based on Carter's recommendations.
However, a resolution of the Southern Rhodesia Legislative Council on 18 May 1921 read: "In the interest of all alike, it is not desirable that natives should acquire land indiscriminately owing to the inevitable friction which will arise with their European neighbours.
[17] The report of the Kenya Land Commission was delivered to the Secretary of State for the Colonies in September 1932, and submitted to parliament seven months later.
[6] On 7 August 1936 Carter was appointed to the Palestine Royal Commission chaired by William Robert Wellesley, Earl Peel.
It concluded that the most practical solution was partition, with a mandate for protection of the Holy Places that would ensure they would never come under Jewish control.
The Arabs would lose territory, but would obtain their national independence, and would not be swamped by the Jews or eventually subjected to Jewish rule.