JK 1975 W3i ^ m Cornell University Library JK 1975.W31 Treaties and resolutions of the Conferen 3 1924 014 086 908 fREATIES AND RESOLUTIONS of the Conference on THE Limitation of Armament as ratified by the UNITED STATES SENATE Facts and Tables Published by Federal Trade Information Service and furnished to subscribers as a supplement to The Service Price 50 Cents The original of tiiis book is in tine Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924014086908 TREATIES AND RESOLUTIONS of the Conference on the limitation of armament OS ratified by the UNITED STATES SENATE Facts and Tables Copyright, 1922, by Federal Trade Information Service New York and Washington TABLE OF CONTENTS Official Summary and President's Statement. . .: 3 TREATIES (1) A treaty between the United States of America, the British Empire, France, Italy, and Japan, limiting naval armament 8 (2) A treaty between the same Powers, in relation to the use of submarines and noxious gases in warfare 24 (3) A treaty between the United States of America, the British Empire, France, and Japan, signed December 13, 1921, relating to their insular possessions and insular dominions in the Pacific Ocean 27 (4) Declaration accompanying the above Four-Power Treaty 28 (5) A treaty between the same Four Powers, supplementary to the above, signed February 6, 1922 29 The Brandegee Reservation 30 The Lodge Reservation 30 (6) A treaty between all Nine Powers relating to principles and policies to be followed in matters concerning China 31 (7) A treaty between the Nine Powers relating to Chinese customs tariff 34 RESOLUTIONS No. 1. Resolution for a Commission of Jurists to consider amend- ments of Laws of War 37 No. 2. Resolution limiting jurisdiction of Commission of Jurists provided in Resolution No. 1 38 No. 3. Resolution regarding a Board of Reference for Far Eastern Questions 38 No. 4. Resolution regarding Extraterritoriality in China 39 No. 5. Resolution regarding Foreign Postal Agencies in China 41 No. 6. Resolution regarding Armed Forces in China 41 No. 7. Resolution regarding Radio Stations in China and accom- panying Declarations 42 No. 8. Resolution regarding unification of railways in China and accompanying Declaration by China 43 No. 9. Resolution regarding the reduction of Chinese Military Forces 44 No. 10. Resolution regarding existing commitments of China or with respect to China 44 No. 11. Resolution regarding the Chinese Eastern Railway, approved by all the Powers, including China 45 No. 12. Resolution regarding the Chinese Eastern Railway, approved by all the Powers, other than China 45 Facts and Tables 46 Naval Armaments 48 Land Forces 50 Taxes and Debts S3 American Savings 56 Far Eastern Question 58 Treaties and Resolutions of the Conference on the Limitation of Armament The Conference on the Limitation of Armament met at Wash- ington November 11, 1921, and agreed upon a series of six treaties and twelve resolutions which are destined to effect great changes in economic conditions throughout the world. The work of the Conference was ratified by the United States Senate during the month of March, 1922. Two reservations were adopted. They are printed in the following pages with the full text of the several agreements. In their report on the Conference, the delegates of the United States included the following interpretative summary of its results : General Summary: To estimate correctly the character and value of these several treaties, resolutions and formal declarations they should be consid- ered as a whole. Each one contributes its part in combination with the others towards the estabhshment of conditions in which peaceful security will take the place of competitive preparation for war. The declared object was, in its naval aspect, to stop the race of competitive building of warships which was in process and which was so distressingly like the competition that immediately pre- ceded the war of 1914. Competitive armament, however, is the result of a state of mind in which a national expectation of attack by some other country causes preparation to meet the attack. To stop competition it is necessary to deal with the state of mind from which it results. A belief in the pacific intentions of other powers must be substituted for suspicion and apprehension. The negotiations which led to the Four Power Treaty were the process of attaining that new state of mind, and the Four Power Treaty itself was the expression of that new state of mind. It 3 Treaties and Resolutions terminated the Anglo- Japanese alliance and substituted friendly conference in place of war as the first reaction from any con- troversies which might arise in the region of the Pacific ; it would not have been possible except as part of a plan including a limita- tion and a reduction of naval armaments, but that limitation and reduction would not have been possible without the new relations established by the Four Power Treaty or something equivalent to it. The new relations declared in the Four Power Treaty could not, however, inspire confidence or be reasonably assured of con- tinuance without a specific understanding as to the relations of the powers to China. Such an understanding had two aspects. One related to securing fairer treatment of China, and the other related to the competition for trade and industrial advantages in China between the outside powers. An agreement covering both of these grounds in a rather funda- mental way was embodied in the first article of the general Nine Power Treaty regarding China. In order, however, to bring the rules set out in that article out of the realm of mere abstract propositions and make them practical rules of conduct it was neces- sary to provide for applying them so far as the present conditions of government and social order in China permit. This was done by the remaining provisions of the general Nine Power Treaty and Chinese Customs Treaty and the series of formal resolutions adopted by the Conference in its Plenary Sessions and the formal declarations made a part of the record of the Conference. The scope of action by the Conference in dealing with Chinese affairs was much limited by the disturbed conditions of govern- ment in China which have existed since the revolution of 1911, and which still exist, and which render effective action by that government exceedingly difficult and in some directions imprac- ticable. In every case the action of the Conference was taken with primary reference to giving the greatest help possible to the Chinese people in developing a stable and effective gov- ernment really representative of the people of China. Much was accomplished in that direction, and the rules of conduct set forth in the first article of the General Treaty regarding China have not 4 General Summary merely received the assent of the Powers but have been accepted and applied to concrete cases. The sum total of the action taken in the Conference regarding China, together with the return of Shantung by direct agreement between China and Japan, the withdrawal of the most unsatisfac- tory of the so-called "twenty-one demands," and the explicit declaration of Japan regarding the closely connected territory of Eastern Siberia, justify the relation of confidence and good will expressed in the Four Power Treaty and upon which the reduction of armament provided in the naval treaty may be contemplated with a sense of security. In conclusion, we may be permitted to quote the words of the President in closing the Conference : "This Conference has wrought a truly great achievement. It is hazardous sometimes to speak in superlatives, and I will be restrained. But I will say, with every confidence, that the faith plighted here today, kept in national honor, will mark the begin- ning of a new and better epoch in human progress. "Stripped to the simplest fact, what is the spectacle which has inspired a new hope for the world? Gathered about this table nine great nations of the world — not all, to be sure, but those most directly concerned with the problems at hand — have met and have conferred on questions of great import and common concern, on problems menacing their peaceful relationship, on burdens threat- ening a common peril. In the revealing light of the public opinion of the world, without surrender of sovereignty, without impaired nationality or affronted national pride, a solution has been found in unanimity, and to-day's adjournment is marked by rejoicing in the things accomplished. If the world has hungered for new assurance, it may feast at the banquet which the Confer- ence has spread. "I am sure the people of the United States are supremely gratified, and yet there is scant appreciation how marvelously you have wrought. When the days were dragging and agreements were delayed, when there were obstacles within and hindrances without, few stopped to realize that here was a conference of sovereign powers where only unanimous agreement could be made 5 Treaties and Resolutions the rule. Majorities could not decide without impinging national rights. There were no victors to command, no vanquished to yield. All had voluntarily to agree in translating the conscience of our civilization and give concrete expression to world opinion. "And you have agreed in spite of all difficulties, and the agree- ments are proclaimed to the world. No new standards of national honor have been sought, but the indictments of national dishonor have been drawn, and the world is ready to proclaim the odious- ness of perfidy or infamy. "It has been the fortune of this Conference to sit in a day far enough removed from war's bitterness, yet near enough to war's horrors, to gain the benefit of both the hatred of war and the yearning for peace. Too often, heretofore, the decades following such gatherings have been marked by the difficult undoing of their decisions. But your achievement is supreme because no seed of conflict has been sown, no reaction in regret or resentment ever can justify resort to arms. "It little matters what we appraise as the outstanding accom- plishments. Any one of them alone would have justified the Conference. But the whole achievement has so cleared the atmosphere that it will seem like breathing the refreshing air of a new morn of promise. "You have written the first deliberate and eflFective expression of great powers, in the consciousness of peace, of war's utter futility, and challenged the sanity of competitive preparation for each other's destruction. You have halted folly and lifted burdens, and revealed to the world that the one sure way to recover from the sorrow and ruin and staggering obligations of a world war is to end the strife in preparation for more of it, and turn human energies to the constructiveness of peace. "Not all the world is yet tranquilized. But here is the example, to imbue with new hope all who dwell in apprehension. At this table came understanding, and understanding brands armed con- flict as abominable in the eyes of enlightened civilization." General Summary "No intrigue, no offensive or defensive alliances, no involve- ments have wrought your agreements, but reasoning with each other to common understanding has made new relationships among Governments and peoples, new securities for peace, and new opportunities for achievement and attending happiness. "Here have been established the contacts of reason, here has come the inevitable understandings of face-to-face exchanges when passion does not inflame. The very atmosphere shamed national selfishness into retreat. Viewpoints were exchanged, differences composed, and you came to understand how common, after all, are human aspirations ; how alike, indeed, and how easily reconcilable are our national aspirations ; how sane and simple and satisfying to seek the relationships of peace and security. "When you first met, I told you of our America's thought to seek less of armament and none of war ; that we sought nothing which is another's, and we were unafraid, but that we wished to join you in doing that finer and nobler thing which no nation can do alone. We rejoice in that accomplishment * * *" THE TREATIES (1) A TREATY BETWEEN THE UNITED STATES OF AMERICA, THE BRITISH EMPIRE, FRANCE, ITALY, AND JAPAN, LIMITING NAVAL ARMAMENT. The United States of America, the British Empire, France, Italy and Japan ; Desiring to contribute to the maintenance of the general peace, and to reduce the burdens of competition in armament; Have resolved, with a view to accomplishing these purposes, to conclude a treaty to limit their respective naval armament, and to that end have appointed as their Plenipotentiaries ; The President of the United States of America : Charles Evans Hughes, Henry Cabot Lodge, Oscar W. Underwood, Elihu Root, Citizens of the United States ; His Majesty the King of the United Kingdom of Great Britain and Ireland and of the British Dominions beyond the Seas, Emperor of India: The Right Honourable Arthur James Balfour, O. M., M. P., Lord Presi- dent of His Privy Council ; The Right Honourable Baron Lee of Fareham, G. B. E., K. C. B., First Lord of His Admiralty ; The Right Honourable Sir Auckland Campbell Geddes, K. C. B., His Ambassador Extraordinary and Plenipotentiary to the United States of America; and for the Dominion of Canada : The Right Honourable Sir Robert Laird Borden, G. C. M. G., K. C. ; for the Commonwealth of Australia : Senator the Right Honourable George Foster Pearce, Minister for Home and Territories ; for the Dominion of New Zealand : The Honourable Sir John William Salmond, K. C, Judge of the Su- preme Court of New Zealand ; for the Union of South Africa: The Right Honourable Arthur James Balfour, O. M., M. P. ; for India : The Right Honourable Valingman Sankaranarayana Srinivasa Sastri, Member of the Indian Council of State; The President of the French Republic : Mr. Albert Sarraut, Deputy, Minister of the Colonies; Mr. Jules J. Jusserand, Ambassador Extraordinary and Plenipoten- tiary to the United States of America, Grand Cross of the National Order of the Legion of Honour ; General Provisions His Majesty the King of Italy : The Honourable Carlo Schanzer, Senator of the Kingdom ; The Honourable Vittorio Rolandi Ricci, Senator of the Kingdom, His Ambassador Extraordinary and Plenipotentiary at Washington ; The Honourable Luigi Albertini, Senator of the Kingdom; His Majesty the Emperor of Japan : Baron Tomosaburo Kato, Minister for the Navy, Junii, a member of the First Class of the Imperial Order of the Grand Cordon of the Rising Sun with the Paulownia Flower; Baron Kijuro Shidehara, His Ambassador Extraordinary and Plenipo- tentiary at Washington, Joshii, a member of the First Class of the Imperial Order of the Rising Sun; Mr. Masanao Hanihara, Vice Minister for Foreign Affairs, Jushii, a member of the Second Class of the Imperial Order of the Rising Sun; Who, having communicated to each other their respective full powers, found to be in good and due form, have agreed as follows : CHAPTER I GENERAL PROVISIONS RELATING TO THE LIMITATION OF NAVAL ARMAMENT Article I The Contracting Powers agree to limit their respective naval armament as provided in the present Treaty. Article II The Contracting Powers may retain respectively the capital ships which are specified in Chapter II, Part 1. On the coming into force of the present Treaty, but subject to the following provisions of this Article, all other capital ships, built or building, of the United States, the British Empire and Japan shall be disposed of as prescribed in Chapter II, Part 2. In addition to the capital ships specified in Chapter II, Part I, the United States may complete and retain two ships of the West Virginia class now under construction. On the completion of these two ships the North Dakota and Delaware shall be disposed of as prescribed in Chap- ter II, Part 2. The British Empire may, in accordance with the replacement table in Chapter 11, Part 3, construct two new capital ships not exceeding 35,000 tons (35,560 metric tons) standard displacement each. On the completion of the said two ships the Thunderer, King George V, Ajax and Centurion shall be disposed of as prescribed in Chapter II, Part 2. Treaties and Resolutions Article III Subject to the provisions of Article II, the Contracting Powers shall abandon their respective capital ship building programs, and no new capital ships shall be constructed or acquired by any of the Contracting Powers except replacement tonnage which may be constructed or acquired as specified in Chapter II, Part 3. Ships which are replaced in accordance with Chapter II, Part 3, shall be disposed of as prescribed in Part 2 of that Chapter. Article IV The total capital ship replacement tonnage of each of the Contracting Powers shall not exceed in standard displacement, for the United States 525,000 tons (533,400 metric tons) ; for the British Empire 525,000 tons (533,400 metric tons) ; for France 175,000 tons (177,800 metric tons) ; for Italy 175,000 tons (177,800 metric tons) ; for Japan 315,000 tons (320,040 metric tons). Article V No capital ship exceeding 35,000 tons (35,560 metric tons) standard displacement shall be acquired by, or constructed by, for, or within the jurisdiction of, any of the Contracting Powers. Article VI No capital ship of any of the Contracting Powers shall carry a gun with a calibre in excess of 16 inches (406 millimetres). Article VII The total tonnage for aircraft carriers of each of the Contracting Powers shall not exceed in standard displacement, for the United States 135,000 tons (137,160 metric tons) ; for the British Empire 135,000 tons (137,160 metric tons)-; for France 60,000 tons (60,960 metric tons); for Italy 175,000 tons (177,800 metric tons) ; for Japan 315,000 tons (320,040 tons). Article VIII The replacement of aircraft carriers shall be effected only as prescribed in Chapter II, Part 3, provided, however, that all aircraft carrier tonnage in existence or building on November 12, 1921, shall be considered experi- mental, and may be replaced, within the total tonnage limit prescribed in Article VII, without regard to its age. Article IX No aircraft carrier exceeding 27,000 tons (27,432 metric tons) standard displacement shall be acquired by, or constructed by, for or within the jurisdiction of, any of the Contracting Powers. However, any of the Contracting Powers may, provided that its total tonnage allowance of aircraft carriers is not thereby exceeded, build not more than two aircraft carriers, each of a tonnage of not more than 33,000 10 Gun Calibre tons (33,528 metric tons) standard displacement, and in order to effect economy any of the Contracting Powers may use for this purpose any two of their ships, whether constructed or in course of construction, which would otherwise be scrapped under the provisions of Article II. The armament of any aircraft carriers exceeding 27,000 tons (27,432 metric tons) standard displacement shall be in accordance with the requirements of Article X, except that the total number of guns to be carried in case any of such guns be of a calibre exceeding 6 inches (152 millimetres), except anti-aircraft guns and guns not exceeding 5 inches (127 milli- metres), shall not exceed eight. Article X No aircraft carrier of any of the Contracting Powers shall carry a gun with a calibre in excess of 8 inches (203 millimetres). Without prejudice to the provisions of Article IX, if the armament carried includes guns exceeding 6 inches (152 millimetres) in calibre the total number of guns carried, except anti-aircraft guns and guns not exceeding 5 inches (127 millimetres), shall not exceed ten. If alternatively the armament con- tains no guns exceeding 6 inches (152 millimetres) in calibre, the number of guns is not limited. In either case the number of anti-aircraft guns and of guns not exceeding 5 inches (127 millimetres) is not limited. Article XI No vessel of war exceeding 10,000 tons (10,160 metric tons) standard displacement, other than a capital ship or aircraft carrier, shall be acquired by, or constructed by, for, or within the jurisdiction of, any of the Contracting Powers. Vessels not specifically built as fighting ships nor taken in time of peace under government control for fighting pur- poses, which are employed on fleet duties or as troop transports or in some other way for the purpose of assisting in the prosecution of hos- tilities otherwise than as fighting ships, shall not be within the limitations of this Article. Article XII No vessel of war of any of the Contracting Powers, hereafter laid down, other than a capital ship, shall carry a gun with a calibre in excess of 8 inches (203 millimetres). Article XIII Except as provided in Article IX, no ship designated in the present Treaty to be scrapped may be reconverted into a vessel of war. Article XIV No preparations shall be made in merchant ships in time of peace for the installation of warlike armaments for the purpose of converting such 11 Treaties and Resolutions ships into vessels of war, other than the necessary stiffening of decks for the mounting of guns not exceeding 6 inch (1S2 millimetres) calibre. Article XV No vessel of war constructed within the jurisdiction of any of the Con- tracting Powers for a non-Contracting Power shall exceed the limitations as to displacement and armament prescribed by the present Treaty for vessels of a similar type which may be constructed by or for any of the Contracting Powers ; provided, however, that the displacement for air- craft carriers constructed for a non-Contracting Power shall in no case exceed 27,000 tons (27,432 metric tons) standard displacement. Article XVI If the construction of any vessel of war for a non-Contracting Power is undertaken within the jurisdiction of any of the Contracting Powers, such Power shall promptly inform the other Contracting Powers of the date of the signing of the contract and the date on which the keel of the ship is laid ; and shall also communicate to them the particulars relating to the ship prescribed in Chapter II, Part 3, Section I (b), (4) and (S). Article XVII In the event of a Contracting Power being engaged in war, such Power shall not use as a vessel of war any vessel of war which may be under construction within its jurisdiction for any other Power, or which may have been constructed within its jurisdiction for another Power and not delivered. Article XVIII Each of the Contracting Powers undertakes not to dispose by gift, sale or any mode of transfer of any vessel of war in such a manner that such vessel may become a vessel of war in the Navy of any foreign Power. Article XIX The United States, the British Empire and Japan agree that the status quo at the time of the signing of the present Treaty, with regard to forti- fications and naval bases, shall be maintained in their respective terri- tories and possessions specified hereunder : (1) The insular possessions which the United States now holds or may hereafter acquire in the Pacific Ocean, except (a) those adjacent to the coast of the United States, Alaska and the Panama Canal Zone, not including the Aleutian Islands, and (b) the Hawaiian Islands ; (2) Hongkong and the insular possessions which the British Empire now holds or may hereafter acquire in the Pacific Ocean, east of the meridian of 110° east longitude, except (a) those adjacent to the coast of Canada, (b) the Commonwealth of Australia and its Territories, and (c) New Zealand; 12 U. S. Ships Retained (3) The following insular territories and possessions of Japan in the Pacific Ocean, to wit: the Kurile Islands, the Bonin Islands, Amami- Oshima, the Loochoo Islands, Formosa and the Pescadores, and any insular territories or possessions in the Pacific Ocean which Japan may hereafter acquire. The maintenance of the status quo under the foregoing provisions implies that no new fortifications or naval bases shall be established in the territories and possessions specified, that no measures shall be taken to increase the existing naval facilities for the repair and maintenance of naval forces, and that no increase shall be made in the coast defences of the territories and possessions above specified. This restriction, however, does not preclude such repair and replacement of worn-out weapons and equipment as is customry in naval and military establishments in time of peace. Article XX The rules for determining tonnage displacement prescribed in Chapter II, Part 4, shall apply to the ships of each of the Contracting Powers. CHAPTER II RULES RELATING TO THE EXECUTION OF THE TREATY- DEFINITION OF TERMS Part 1 Capital Ships Which May Be Retained by the Contracting Powers In accordance with Article II ships may be retained by each of the Contracting Powers as specified in this Part. Ships which may be retained by the United States Name: Tonnage Name: Tonnage Maryland 32,600 Nevada 27,500 California 32,300 New York 27,000 Tennessee 32,300 Texas 27,000 Idaho 32,000 Arkansas 26,000 New Mexico 32,000 Wyoming 26,000 Mississippi 32,000 Florida 21,825 Arizona 31,400 Utah 21,825 Pennsylvania 31,400 North Dakota 20,000 Oklahoma 27,500 Delaware 20,000 Total tonnage 500,650 On the completion of the two ships of the West Virginia class and the scrapping of the North Dakota and Delaware, as provided in Article II, the total tonnage to be retained by tlie United States will be 525,850 tons. 13 Treaties and Resiolutions Ships which may be retained by the British Empire Name: Tonnage Royal Sovereign 25,750 Royal Oak 25,750 Revenge 25,750 Resolution 25,750 Ramillies 25,750 Malaya 27,500 Valiant 27,500 Barham 27,500 Queen Elizabeth 27,500 Warspite 27,500 Benbow 25,000 Total tonnage Name : Tonnage Emperor of India 25,000 Iron Duke 25,000 Marlborough 25,000 Hood 41,200 Renown 26,500 Repulse 26,500 Tiger 28,500 Thunderer 22,500 King George V 23,000 Ajax 23,000 Centurion 23,000 580,450 On the completion of the two new ships to be constructed and the scrap- ping of the Thunderer, King George V , Ajax and Centurion, as provided in Article II, the total tonnage to be retained by the British Empire will be 558,950 tons. Ships which may he retained by France Tonnage Name : (metric tons) Bretagne 23,500 Lorraine 23,500 Provence 23,500 Paris 23,500 France 23,500 Tonnage Name: (metric tons) Jean Bart 23,500 Courbet 23,500 Condorcet 18,890 Diderot 18,890 Voltaire 18,890 Total tonnage 221,170 France may lay down new tonnage in the years 1927, 1929, and 1931, as provided in Part 3, Section 11. Ships which may be retained by Italy Tonnage Name: (metric tons) Andrea Doria 22,700 Caio Duilio 22,700 Conte Di Cavour 22,500 Giulio Cesare 22,500 Leonardo Da Vinci 22,500 Tonnage Name: (metric tons) Dante Alighieri 19,500 Ronia 12^600 Napoli 12,600 Vittorio Emanuele 12,600 Regina Elena 12,600 Total tonnage ; 182,800 Italy may lay down new tonnage in the years 1927, 1929, and 1931 as provided in Part 3, Section II. 14 Rules for Scrapping Ships which may be retained by Japan Name: Tonnage Name: Tonnage Mutsu 33,800 Fu-So 30,600 Nagato 33,800 Kirishima 27,500 Hi^ga 31,260 Haruna 27,500 Ise 31,260 Hiyei 27,500 Yamashiro 30,600 Kongo 27,500 Total tonnage 301,320 Part 2 Rules for Scrapping Vessels of War The following rules shall be observed for the scrapping of vessels of war which are to be disposed of in accordance with Articles II and III. I. A vessel to be scrapped must be placed in such condition that it can- not be put to combatant use. II. This result must be finally effected in any one of the following ways : (a) Permanent sinking of the vessel ; (b) Breaking the vessel up. This shall always involve the destruction or removal of all machinery, boilers and armour, and all deck, side and bottom plating; (c) Converting the vessel to target use exclusively. In such case all the provisions of paragraph III of this Part, except sub-para- graph (6), in so far as may be necessary to enable the ship to be used as a mobile target, and except sub-paragraph (7), must be previously complied with. Not more than one capital ship may be retained for this purpose at one time by any of the Contract- ing Powers. (d) Of the capital ships which would otherwise be scrapped under the present Treaty in or after the year 1931, France and Italy may each retain two seagoing vessels for training purposes exclu- sively, that is, as gunnery or torpedo schools. The two vessels retained by France shall be of the Jean Bart class, and of those retained by Italy one shall be the Dante Alighieri, the other of the Giulio Cesare class. On retaining these ships for the purpose above stated, France and Italy respectively undertake to remove and destroy their conning-towers, and not to use the said ships as vessels of war. III. (a) Subject to the special exceptions contained in Article IX, when a vessel is due for scrapping, the first stage of scrapping, which con- sists in rendering a ship incapable of further warlike service, shall be immediately undertaken. 15 Treaties and Resolutions (b) A vessel shall be considered incapable of further warlike service when there shall have been removed and landed, or else destroyed in the ship : (1) All guns and essential portions of guns, fire-control tops and revolving parts of all barbettes and turrets; (2) All machinery for working hydraulic or electric mountings ; (3) All fire-control instruments and range-finders ; (4) All ammunition, explosives and mines; (5) All torpedoes, war-heads and torpedo tubes; (6) All wireless telegraphy installations; (7) The conning tower and all side armour, or alternatively all main propelling machinery; and (8) All landing and flying-off platforms and all other aviation accessories. IV. The periods in which scrapping of vessels is to be effected are as follows : (a) In the case of vessels to be scrapped under the first paragraph of Article II, the work of rendering the vessels incapable of further warlike service, in accordance with paragraph III of this Part, shall be completed within six months from the coming into force of the present Treaty, and the scrapping shall be finally effected within eighteen months from such coming into force. (b) In the case of vessels to be scrapped under the second and third paragraphs of Article II, or under Article III, the work of ren- dering the vessel incapable of further warlike service in accord- ance with paragraph III of this Part shall be commenced not later than the date of completion of its successor, and shall be finished within six months from the date of such completion. The vessel shall be finally scrapped, in accordance with paragraph II of this Part, within eighteen months from the date of completion of its successor. If, however, the completion of the new vessel be delayed, then the work of rendering the old vessel incapable of further warlike service in accordance with paragraph III of this Part shall be commenced within four years from the laying of the keel of the new vessel, and shall be finished within six months from the date on which such work was commenced, and the old vessel shall be finally scrapped in accordance with paragraph II of this Part within eighteen months from the date when the work of rendering it incapable of further warlike service was com- menced. 16 Replacement Rules Part 3 Replacement The replacement of capital ships and aircraft carriers shall take place according to the rules in Section I and the tables in Section II of this Part. SECTION I Rules for Replacement (a) Capital ships and aircraft carriers twenty years after the date of their completion may, except as otherwise provided in Article VIII and in the tables in Section II of this Part, be replaced by new construction, but within the limits prescribed in Article IV and Article VII. The keels of such new construction may, except as otherwise provided in Article VIII and in the tables in Section II of this Part, be laid down not earlier than seventeen years from the date of completion of the tonnage to be replaced, provided, however, that no capital ship tonnage, with the exception of the ships referred to in the third paragraph of Article II, and the replacement tonnage specifically mentioned in Section II of this Part, shall be laid down until ten years from November 12, 1921. (b) Each of the Contracting Powers shall communicate promptly to each of the other Contracting Powers the following information : (1) The names of the capital ships and aircraft carriers to be replaced by new construction ; (2) The date of governmental authorization of replacement tonnage ; (3) The date of laying the keels of replacement tonnage. (4) The standard displacement in tons and metric tons of each new ship to be laid down, and the principal dimensions, namely, length at waterline, extreme beam at or below waterline, mean draft at standard displacement ; (5) The date of completion of each new ship and its standard displace- ment in tons and metric tons, and the principal dimensions, namely, length at waterline, extreme beam at or below waterline, mean draft at standard displacement, at time of completion. (c) In case of loss or accidental destruction of capital ships or air- craft carriers, they may immediately be replaced by new construction subject to the tonnage limits prescribed in Articles IV and VII and in conformity with the other provisions of the present Treaty, the regular replacement program being deemed to be advanced to that extent. (d) No retained capital ships or aircraft carriers shall be reconstructed except for the purpose of providing means of defense against air and submarine attack, and subject to the following rules: The Contracting Powers may, for that purpose, equip existing tonnage with bulge or blister or anti-air attack deck protection, providing the increase of displacement thus eflfected does not exceed 3,000 tons (3,048 metric tons) displacement 17 Treaties and Resolutions for each ship. No alterations in side armor, in calibre, number or general type of mounting of main armament shall be permitted except : (1) in the case of France and Italy, which countries within the limits allowed for bulge may increase their armor protection and the calibre of the guns now carried on their existing capital ships so as not to exceed 16 inches (406 millimeters) and (2) the British Empire shall be permitted to complete, in the case of the Renown, the alterations to armor that have already been com- menced but temporarily suspended. Section II REPLACEMENT AND SCRAPPING OF CAPITAL SHIPS UNITED STATES. Ships laid down. Ships completed. Ships scrapped (age in parentheses). Ships retained. Summary. Year Pre- Post- Jutland. 1922 A, B,t Maine (20, Missouri (20), Virginia (17), Nebraska (17), Georgia (17), New Jersey (17) , Rhode Island (17) , Connecticut (17), Louisiana (17), Vermont (16, Kansas (16), Min- nesota (16), New Hampshire (15), South Carolina (13), Michigan (13), Washington (0), South Dakota (0), Indiana (0), Montana (0), North Carolina (0), Iowa (0), Massachusetts (0), Lexington (O), Constitution (0), Constellation (0), Saratoga (0), Ranger (0), United States (0).* Delaware (12), North Dakota (12).. . 15 15 15 15 15 15 15 15 15 15 15 ■ 15 12 9 7 5 4 2 1 3 1923 3 1924 . 3 1925 3 1926 3 1927 . 3 1928 3 1929 3 1930 3 1931 C D. 3 E, F 3 1933 G. 3 1934.... 1935 H,I J C, D E.F G. Florida (23), Utah (23), Wyoming (22) Arkansas (23), Texas (21), New York (21) 5 K,L M 7 1936 Nevada (20), Oklahoma (20) Arizona (21), Pennsylvania (21) g 1937 H, I T 10 1938 N, P,0 11 1939.... 1940 ^x::.:.:. M New Mexico (21), Idaho (20) Tennessee (20) 13 14 1941 N,0 P.Q California (20), Maryland (20) 2 ships West Virginia class 15 1942 15 *The United States may retain the Oregon and Illinois, for noncombatant purposes, after complying yith. the provisions of Part 2, III, (b). TTwoWest Virginia class. Note. — A, B,C, D, etc., represent individual capital ships of 35,000 tons standard displace- ment, laid down and completed in the years specified. 18 British Replacement REPLACEMENT AND SCRAPPING OF CAPITAL SHIPS — Continued BRITISH EMPIRE. Ships laid down. Ships completed. Ships scrapped (age in parentheses). Ships retained. Summary. Year Pre- Post- Jutland. 1922,... A,B,t Commonwealth (16), Agamemnon (13). Dreadnought (15), Bellero- phon (12), St. Vincent (11), In- flexible (13), Superb (12). Neptune (10), Hercules (10), Indomitable (13), Temeraire (12), New Zealand (9), Lion (9), Princess Royal (9), Conqueror (9), Monarch (9), Orion (9), Australia (8), Agincourt (7), Erin (7), 4 building or projected.* 21 21 21 17 17 17 17 17 17 17 17 17 13 9 7 5 4 2 1 1 1923.... 1 1924 1 1925 A, B King George V (13), Ajax (12), Cen- turion (12), Thunderer (13) 1926.... 3 3 1927.... 3 1928.... 3 1929 3 1930 3 1931..,. CD 3 1932 E, P 3 1933 G.. 3 1934.... H,I J CD E,F G Iron Duke (20), Marlborough (20), Emperor of India (20), Benbow (20) 5 1933.... Tiger (21), Queen Elizabeth (20), Warspite (20). Barham (20) Malaya (20), Royal Sovereign (20).. . Revenge (21). Resolution (21) Royal Oak (22) 1936 K, L M. 7 8 1937 H,I J 10 1938 N, P.O 11 1939.... 1940 K.L..::::: M Valiant (23). Repulse (23) 13 14 1941 N,0 P,0 Ramillies (24) , Hood (21) 15 1942 . . A (171 B (17) .... 15 *The British Empire may retain the Colossus and CoUingwood for noncombatant puproses, after complying with the provisions of Part 2, III, (b). tTwo 35,000-ton ships, standard displacement. Note. — A, B, C. D, etc., represent individual capital ships of 35,000 tons standard displace- ment laid down and completed in the years specified. Note Applicable to All the Tables in Section II The order above prescribed in whicli ships are to be scrapped is in accordance with their age. It is understood that when replacement begins according to the above tables the order of scrapping in the case of the ships of each of the Contracting Powers may be varied at its option; pro- vided, however, that such Power shall scrap in each year the number of ships above stated. 19 REPLACEMENT AND SCRAPPING OF CAPITAL SHIPS — Continued FRANCE. Ships laid down. Ships completed. Ships scrapped (age in parentheses). Ships retained. Summary. Year Pre- Post- Jutland. 1922 7 7 7 7 7 7 7 7 5 5 4 4 2 1 1923 1924 . 1925 1926 1927 1928 1929 35 000 tons 1930 35,000 tons . Jean Bart (17) , Courbet (17) (*) 1931 35 000 tons (*) 1932 35,000 tons . 35,000 tons . France (18) (*) 1933 (*) 1934 35,000 tons . 35,000 tons . 35,000 tons . Paris (20), Bretagne (20) (*) 1935 (*) 1936 (*) 1937 (*) 1938 (*) 1939 (*) 1940 (*) 1941 (*) 1942 (*) *Within tonnage limitations; number not fixed. Note. — France expressly reserves the right of employing the capital ship tonnage allotment as she may consider advisable, subject to the limitations that the displacement of individual ships should not surpass 35,000 tons, and that the total capital ship tonnage should keep within the limits imposed by the present Treaty. ITALY. Ships laid down. Ships completed. Ships scrapped (age in parentheses). Ships retained. Summary. Year Pre- Post- Jutland. 1922 6 6 6 6 6 6 6 6 6 5 5 4 4 3 1 1923 1924 1925 1926 1927 35,000 tons . 1928 1929 1930 1931 35,000 tons . 35,000 tons . Dante Alighieri (19) p. 1932 1933 25,000 tons . 35,000 tons . (*) 1934 1935 35,000 tons . 45,000 tons . 25,000 tons . Guilio Cesare (21) 1936 Conte di Cavour (21), Duilio (21) , . . Andrea Doria (21) .... 1937 *Within tonnage limitations; number not fixed. Note. — Italy expressly reserves the right of employing the capital ship tonnage allotment as she may consider advisable, subject solely to the limitations that the displacement of in- dividual ships should not surpass 35,000 tons, and the total capital ship tonnage should keep within the limits imposed by the present Treaty. 20 Definitions REPLACEMENT AND SCRAPPING OF CAPITAL SHIPS — Continued JAPAN. Ships laid down. Ships completed. Ships scrapped (age in parentheses). Ships retained. Summary. Year Pre- Post- Jutland. 1922 Hizen (20), Mikasa (20). Kashima (16), Katori (16), Satsuma (12), Ak (11), Settsu (10), Ikoma (14), Ibuki (12), Kurama (11), Amagi (0), Akagi (0). Kaga (0), Tosa (0), Takao (0), Atago (0). Projected program 8 ships not laid down.* 8 8 8 8 8 8 8 8 8 8 8 8 8 7 5 4 3 2 1 2 1923 2 1924 . 2 1925 2 1926 2 1927. . . 2 1928 2 1929 2 1930 2 1931 A 2 1932 B 2 1933 C 2 1934 D A Kongo (21) 3 1935 . . E B Hiyei (21), Haruna (20) 4 1936 p. C. Kirishima (21) 5 1937 G D Fuso (22^ 6 1938 H E Yamashiro (21) 7 1939 I. P. Ise (22) 8 1940 G Hiuga (22) 9 1941 . . H. . Nagato (21) 9 1942 I Mutsu (21) *Japan may retain the Shikishima and Asahi for noncombatant purposes, after complying with the provisions of Part 2, III, (b). Note. — ^A, B, C, D, etc., represent individual capital ships of 35,000 tons standard displace- ment, laid down and completed in the years specified. PART 4 Definitions For the purposes of the present Treaty, the following expressions are to be understood in the sense defined in this Part. Capital Ship A capital ship, in the case of ships hereafter built, is defined as a vessel of war, not an aircraft carrier, whose displacement exceeds 10,000 tons (10,160 metric tons) standard displacement, or which carries a gun with a calibre exceeding 8 inches (203 millimetres). 21 Treaties and Resolutions Aircraft Carrier An aircraft carrier is defined as a vessel of war with a displacement in excess of 10,000 tons (10,160 metric tons) standard displacement, designed for the specific and exclusive purpose of carrying aircraft. It must be so constructed that aircraft can be launched therefrom and landed thereon, and not designed and constructed for carrying a more powerful arma- ment than that allowed to it under Article IX or Article X as the case may be. Standard Displacement The standard displacement of a ship is the displacement of the ship complete, fully manned, engined, and equipped ready for sea, including all armament and ammunition, equipment, outfit, provisions and fresh water for crew, miscellaneous stores and implements of every description that are intended to be carried in war, but without fuel or reserve feed water on board. The word "ton" in the present Treaty, except in the expression "metric tons," shall be understood to mean the ton of 2240 pounds (1016 kilos). Vessels now completed shall retain their present ratings of displace- ment tonnage in accordance with their national system of measurement. However, a Power expressing displacement in metric tons shall be con- sidered for the application of the present Treaty as owning only the equivalent displacement in tons of 2240 pounds. A vessel completed hereafter shall be rated at its displacement tonnage when in the standard condition defined herein. CHAPTER III MISCELLANEOUS PROVISIONS Article XXI If during the term of the present Treaty the requirements of the national security of any Contracting Power in respect of naval defence are, in the opinion of that Power, materially affected by any change of circumstances, the Contracting Powers will, at the request of such Power, meet in con- ference with a view to the reconsideration of the provisions of the Treaty and its amendment by mutual agreement. In view of possible technical and scientific developments, the United States, after consultation with the other Contracting Powers, shall arrange for a conference of all the Contracting Powers which shall convene as soon as possible after the expiration of eight years from the coming into force of the present Treaty to consider what changes, if any, in the Treaty may be necessary to meet such developments. 22 Suspension of Treaty Article XXII Whenever any Contracting Power shall become engaged in a war which in its opinion affects the naval defence of its national security, such Power may after notice to the other Contracting Powers suspend for the period of hostilities its obligations under the present Treaty other than those under Articles XIII and XVII, provided that such Power shall notify the other Contracting Powers that the emergency is of such a character as to require such suspension. The remaining Contracting Powers shall in such case consult together with a view to agreement as to what temporary modifications if any should be made in the Treaty as between themselves. Should such con- sultation not produce agreement, duly made in accordance with the con- stitutional methods of the respective Powers, any one of said Contracting Powers may, by giving notice to the other Contracting Powers, suspend for the period of hostilities its obligations under the present Treaty, other than those under Articles XIII and XVII. On the cessation of hostilities the Contracting Powers will meet in conference to consider what modifications, if any, should be made in the provisions of the present Treaty. Article XXIII The present Treaty shall remain in force until December 31st, 1936, and in case none of the Contracting Powers shall have given notice two years before that date of its intention to terminate the Treaty, it shall continue in force until the expiration of two years from the date on which notice of termination shall be given by one of the Contracting Powers, whereupon the Treaty shall terminate as regards all the Contracting Powers. Such notice shall be communicated in writing to the Government of the United States, which shall immediately transmit a certified copy of the notifica- tion to the other Powers and inform them of the date on which it was received. The notice shall be deemed to have been given and shall take effect on that date. In the event of notice of termination being given by the Government of the United States, such notice shall be given to the diplomatic representatives at Washington of the other Contracting Pow- ers, and the notice shall be deemed to have been given and shall take effect on the date of the communication made to the said diplomatic representatives. Within one year of the date on which a notice of termination by any Power has taken effect, all the Contracting Parties shall meet in con- ference. Article XXIV The present Treaty shall be ratified by the Contracting Powers in accordance with their respective constitutional methods and shall take effect on the date of the deposit of all the ratifications, which shall take 23 Treaties and Resolutions place at Washington as soon as possible. The Government of the United States will transmit to the other Contracting Powers a certified copy of the proces-verbal of the deposit of ratifications. The present Treaty, of which the French and English texts are both authentic, shall remain deposited in the Archives of the Government of the United States, and duly certified copies thereof shall be transmitted by that Government to the other Contracting Powers. In faith whereof the above-named Plenipotentiaries have signed the present Treaty. Done at the City of Washington the sixth day of February, One Thou- sand Nine Hundred and Twenty-Two. Charles Evans Hughes Arthur James Balfour Henry Cabot Lodge V. S. Srinivasa Sastri Oscar W. Underwood A. Sarraut Elihu Root Jusserand Arthur James Balfour Carlo Schanzer Lee of Fareham V. Rolandi Ricci A. C. Geddes Luigi Albertini R. L. Borden T. Kato G. F. Pearce K. Shidehara John W. Salmond M. Hanihara (2) A TREATY BETWEEN THE SAME POWERS, IN RELATION TO THE USE OF SUBMARINES AND NOXIOUS GASES IN WARFARE. The United States of America, the British Empire, France, Italy and Japan, hereinafter referred to as the Signatory Powers, desiring to make more effective the rules adopted by civilized nations for the protection of the lives of neutrals and noncombatants at sea in time of war, and to prevent the use in war of noxious gases and chemicals, have determined to conclude a Treaty to this effect, and have appointed as their Plenipo- tentiaries : (The Plenipotentiaries who negotiated this Treaty are the same as those listed on page 8.) Who, having communicated their Full Powers, found in good and due form, have agreed as follows : Article I The Signatory Powers declare that among the rules adopted by civilized nations for the protection of the lives of neutrals and noncombatants at sea in time of war, the following are to be deemed an established part of international law; 24 Visit and Search (1) A merchant vessel must be ordered to submit to visit and search to determine its character before it can be seized. A merchant vessel must not be attacked unless it refuse to submit to visit and search after warning, or to proceed as directed after seizure. A merchant vessel must not be destroyed unless the crew and passengers have been first placed in safety. (2) Belligerent submarines are not under any circumstances exempt from the universal rules above stated ; and if a submarine cannot capture a merchant vessel in conformity with these rules the existing law of nations requires it to desist from attack and from seizure and to permit the merchant vessel to proceed unmolested. Article II The Signatory Powers invite all other civilized Powers to express their assent to the foregoing statement of established law so that there may be a clear public understanding throughout the world of the standards of conduct by which the public opinion of the world is to pass judgment upon future belligerents. Article III The Signatory Powers, desiring to insure the enforcement of the humane rules of existing law declared by them with respect to attacks upon and the seizure and destruction of merchant ships, further declare that any person in the service of any Power who shall violate any of those rules, whether or not such person is under orders of a governmental superior, shall be deemed to have violated the la>vs of war and shall be liable to trial and punishment as if for an act of piracy and may be brought to trial before the civil or military authorities of any Power within the jurisdiction of which he may be found. Article IV The Signatory Powers recognize the practical impossibility of using submarines as commerce destroyers without violating, as they were vio- lated in the recent war of 1914-1918, the requirements universally accepted by civilized nations for the protection of the lives of neutrals and non- combatants, and to the end that the prohibition of the use of submarines as commerce destroyers shall be universally accepted as a part of the law of nations they now accept that prohibition as henceforth binding as between themselves and they invite all other nations to adhere thereto. Article V The use in war of asphyxiating, poisonous or other gases, and all analogous liquids, materials or devices, having been justly condemned by the general opinion of the civilized world and a prohibition of such use having been declared in treaties to which a majority of the civilized Powers are parties, 2S Treaties and Resolutions The Signatory Powers, to the end that this prohibition shall be uni- versally accepted as a part of international law binding alike the con- science and practice of nations, declare their assent to such prohibition, agree to be bound thereby as between themselves and invite all other civilized nations to adhere thereto. Article VI The present Treaty shall be ratified as soon as possible in accordance with the constitutional methods of the Signatory Powers and shall take effect on the deposit of all the ratifications, which shall take place at Washington. The Government of the United States will transmit to all the Signatory Powers a certified copy of the proces-verbal of the deposit of ratifications. The present Treaty, of which the French and English texts are both authentic, shall remain deposited in the Archives of the Government of the United States, and duly certified copies thereof will be transmitted by that Government to each of the Signatory Powers. Article VII The Government of the United States will further transmit to each of the Non-Signatory Powers a. duly certified copy of the present treaty and invite its adherence thereto. Any Non-Signatory Power may adhere to the present Treaty by com- municating an Instrument of Adherence to the Government of the United States, which will thereupon transmit to each of the Signatory and Adhering Powers a certified copy of each Instrument of Adherence. In faith whereof, the above-named Plenipotentiaries have signed the present Treaty. Done at the City of Washington, the sixth day of February, One Thou- sand Nine Hundred and Twenty-Two. [L.S.] Charles Evans Hughes [L.S.] Arthur James Balfour [L. S.] Henry Cabot Lodge [L.S.] V. S. Srinivasa Sastri [L. S.] Oscar W. Underwood [L.S.] A. Sarraut [L.S.] Elihu Root [L.S.] Jusserand IL.S.J Arthur James Balfour [L.S,] Carlo Schanzer [L.S.] Lee of Fareham [L.S.] V. Rolandi Ricci [L.S.] A. C. Geddes [L.S.] Luigi Albertini [L.S.] R. L. Borden [L.S.] T. Kato [L.S.] G. F. Pearce [L.S.] K. Shidehara [L.S.] John W. Salmond [L.S.] M. Hanihara 26 The Four Power Treaty (3) A TREATY BETWEEN THE UNITED STATES OF AMERICA, THE BRITISH EMPIRE, FRANCE, AND JAPAN, SIGNED DECEMBER 13, 1921, RELATING TO THEIR INSULAR POS- SESSIONS AND INSULAR DOMINIONS IN THE PACIFIC OCEAN. The United States of America, the British Empire, France and Japan, With a view to the preservation of the general peace and the main- tenance of their rights in relation to their insular possessions and insular dominions in the region of the Pacific Ocean, Have determined to conclude a Treaty to this effect and have appointed as their Plenipotentiaries : (The Plenipotentiaries who negotiated this Treaty are the same as those listed on page 8 with the following in addition.) Mr. Rene Viviani, Deputy, Former President of the Council of Minis- ters, for the President of the French Republic, and Prince lyesato Tokugawa, Junii, a member of the First Class of the Imperial Order of the Rising Sun, for His Majesty, the Emperor of Japan. Who, having communicated their Full Powers, found in good and due form, have agreed as follows : I The High Contracting Parties agree as between themselves to respect their rights in relation to their insular possessions and insular dominions in the region of the Pacific Ocean. If there should develop between any of thfe High Contracting Parties a controversy arising out of any Pacific question and involving their said rights which is not satisfactorily settled by diplomacy and is likely to affect the harmonious accord now happily subsisting between them, they shall invite the other High Contracting Parties to a joint conference to which the whole subject will be referred for consideration and adjust- ment. II If the said rights are threatened by the aggressive action of any other Power, the High Contracting Parties shall communicate with one another fully and frankly in order to arrive at an understanding as to the most efficient measures to be taken, jointly or separately, to meet the exigencies of the particular situation. Ill This Treaty shall remain in force for ten years from the time it shall take eflfect, and after the expiration of said period it shall continue to be in force subject to the right of any of the High Contracting Parties to terminate it upon twelve months' notice. 27 Treaties and Resolutions IV This Treaty shall be ratified as soon as possible in accordance with the constitutional methods of the High Contracting Parties and shall take effect on the deposit of ratifications, which shall take place at Washing- ton, and thereupon the agreement between Great Britain and Japan, which was concluded at London on July 13, 1911, shall terminate. The Govern- ment of the United States will transmit to all the Signatory Powers a certified copy of the proces-verhal of the deposit of ratifications. The present Treaty, in French and in English, shall remain deposited in the Archives of the Government of the United States, and duly certified copies thereof will be transmitted by that Government to each of the Signatory Powers. In faith whereof the above-named Plenipotentiaries have signed the present Treaty. Done at the City of Washington, the thirteenth day of December, One Thousand Nine Hundred and Twenty-One. [L. S.1 Charles Evans Hughes [L.S.] Arthur James Balfour [L. S.] Henry Cabot Lodge [L. S.] V. S. Srinivasa Sastri [L. S.] Oscar W. Underwood [L.S.1 Rene Viviani [L.S.1 Elihu Root [L.S.] A. Sarraut [L.S.] Arthur James Balfour [L. S.] Jusserand [L. S.] Lee of Fareham [L. S.l T. Kato [L. S.l A. C. Geddes [L.S.1 K. Shidehara [L. S.l R. L. Borden [L. S.l Tokugawa lyesato [L. S.l G. F. Pearce [L. S.] M. Hanihara [L. S.] John W. Salmond (4) DECLARATION ACCOMPANYING THE ABOVE FOUR- POWER TREATY. In signing the Treaty this day between The United States of America. The British Empire, France and Japan, it is declared to be the under- standing and intent of the Signatory Powers : 1. That the Treaty shall apply to the Mandated Islands in the Pacific Ocean; provided, however, that the making of the Treaty shall not be deemed to be an assent on the part of The United States of America to the mandates and shall not preclude agreements between The United States of America and the Mandatory Powers respectively in relation to the mandated islands. 2. That the controversies to which the second paragraph of Article I refers shall not be taken to embrace questions which according to prin- ciples of international law lie exclusively within the domestic jurisdiction of the respective Powers. 28 Japanese Islands Washington, D. C, December 13, 1921. Charles Evans Hughes Henry Cabot Lodge Oscar W. Underwood Elihu Root Arthur James Balfour Lee of Fareham A. C. Geddes R. L. Borden G. F. Pearce John W. Salmond Arthur James Balfour V. S. Srinivasa Sastri Rene Viviani A. Sarraut Jusserand T. Kato K. Shidehara Tokugawa lyesato M. Hanihara (5) A TREATY BETWEEN THE SAME POUR POWERS, SUPPLE- MENTARY TO THE ABOVE, SIGNED FEBRUARY 6, 1922 The United States of America, the British Empire, France and Japan have, through their respective Plenipotentiaries, agreed upon the follow- ing stipulations supplementary to the Quadruple Treaty signed at Wash- ington on December 13, 1921 : The term "insular possessions and insular dominions'' used in the aforesaid Treaty shall, in its application to Japan, include only Karafuto (or the Southern portion of the island of Sakhalin), Formosa and the Pescadores, and the islands under the mandate of Japan. The present agreement shall have the same force and effect as the said Treaty to which it is supplementary. The provisions of Article IV of the aforesaid Treaty of December 13, 1921, relating to ratification shall be applicable to the present Agreement, which in French and English shall remain deposited in the Archives of the Government of the United States, and duly certified copies thereof shall be transmitted by that Government to each of the other Contracting Powers. In faith whereof the respective Plenipotentiaries have signed the present Agreement. Done at the City of Washington, the sixth day of February, One Thou- sand Nine Hundred and Twenty-two. [L. S.] Charles Evans Hughes [L. S.] Henry Cabot Lodge [L. S.] Oscar W. Underwood [L.S.] Elihu Root [L. S.] Arthur James Balfour [L. S.] Lee of Fareham [L. S.] A. C. Geddes [L. S.] R. L. Borden [L. S.] G, F. Pearce [L. S.] John W. Salmond [L.S.1 Arthur James Balfour [L.S.1 V. S. Srinivasa Sastri [L. S.l A. Sarraut [L. S.] Jusserand [L. S.] T. Kato [L.S.] K. Shidehara [L. S.] M. Hanihara 29 Tre^aties and Resolutions RESOLUTION OF RATIFICATION OF THE FOUR-POWER PACT EMBODYING THE BRANDEGEE RESERVATION The following is the text of the resolution of ratification of the Four Power Treaty, adopted by the Senate of the United States on March 24, 1922, by a vote of 67 to 27. The reservation proposed by Senator Brande- gee, of Connecticut, is set in italics. Resolved (two-thirds of the Senators present concurring therein). That the Senate advise and consent to the ratification of Executive N, Sixty- seventh Congress, second session, a treaty between the United States, the British Empire, France, and Japan relating to their insular possessions and insular dominions in the Pacific Ocean, concluded at Washington Decem- ber 13, 1921, subject to the following reservation and understanding, which is hereby made a part and condition of this resolution of ratification: The United States understands that under the statement in the preamble or under the terms of this treaty there is no commitment to armed force, no alliance, no obligation to join in any defense. RESOLUTION OF RATIFICATION OF THE SUPPLEMENTARY AGREEMENT TO THE FOUR-POWER TREATY, DESCRIBED AS THE LODGE RESERVATION The following is the text of the resolution of ratification of the Supple- mentary Agreement to the Four Power Treaty, adopted by the Senate of the United States on March 27, 1922, by a vote of 74 to 0. That portion of the Resolution, constituting the Reservation proposed by Senator Lodge of Massachusetts is set in italics. Resolved {two-thirds of the Senators present concurring therein). That the Senate advise and consent to the ratification of Executive O, Sixty- seventh Congress, second session, an agreement between the United States, the British Empire, France, and Japan, supplementary to the treaty between the same four powers relating to their insular possessions and insular dominions, and defining the application of the term "insular posses- sions and insular dominions" as relating to Japan, signed at Washington February 6, 1922, subject to the following reservation and understanding, which is hereby made a part and condition of this resolution of ratifica- tion and which repeats the declaration of intent and understanding made by the representatives of the powers signatories of the Four Power Treaty relating to their insular possessions and insular dominions in the Pacific Ocean: 1. That the Four Power Treaty relating to Pacific possessions shall apply to the mandated islands in the Pacific Ocean; provided, however, that the making of the treaty shall not be deemed to be an assent on the part of the United States of America to the mandates and shall not preclude agreements between the United States of America and the mandatory powers, respectively, in relation to the mandated islands. 30 The Nine Power Treaty 2. That the controversies to which the second paragraph of Article I of the Pour Power Treaty relating to Pacific possessions refers shall not be taken to embrace questions which, according to principles of inter- national law, lie exclusively within the domestic jurisdiction of the tcspective powers. (6) A TREATY BETWEEN ALL NINE POWERS RELATING TO PRINCIPLES AND POLICIES TO BE FOLLOWED IN MAT- TERS CONCERNING CHINA. The United States of America, Belgiurtij the British Empire, China, France, Italy, Japan, the Netherlands and Portugal : Desiring to adopt a policy designed to stabilize conditions in the Far East, to safeguard the rights and interests of China, and to promote inter- course between China and the other Powers upon the basis of equality of opportunity ; Have resolved to conclude a treaty for that purpose and to that end have appointed as their respective Plenipotentiaries : (The Plenipotentiaries who negotiated this Treaty are the same as those listed on page 8 with the following in addition.) Baron de Cartier de Marchienne, Commander of the Order of Leopold and of the Order of the Crown, His Ambassador Extraordinary and Plenipotentiary at Washington, for His Majesty, the King of the Belgians ; Mr. Sao-Ke Alfred Sze, Envoy Extraordinary and Minister Plenipo- tentiary at Washington; Mr. V. K. Wellington Koo, Envoy Extraor- dinary and Minister Plenipotentiary at London; Mr. Chung-Hui Wang, former Minister of Justice, for the President of the Republic of China; Jonkheer Frans Beelaerts van Blokland, Her Envoy Extraordinary and Minister Plenipotentiary; Jonkheer Willem Hendrik de Beaufort, Minister Plenipotentiary, Charge d'Affaires at Washington, for Her Majesty, the Queen of The Netherlands, and Mr. Jose Francisco de Horta Machado de Franca, Viscount d'Alte, Envoy Extraordinary and Minister Plenipotentiary at Washington; Mr. Ernesto Julio de Carvalhoe Vasconcelos, Captain of the Portu- guese Navy, Technical Director of the Colonial Office, for the Presi- dent of the Portuguese Republic. Who, having communicated to each other their full powers, found to be in good and due form, have agreed as follows : Article I The Contracting Powers, other than China, agree : (1) To respect the sovereignty, the independence, and the territorial and administrative integrity of China; 31 Treaties and Resolutions (2) To provide the fullest and most unembarrassed opportunity to China to develop and maintain for herself an effective and stable gov- ernment ; (3) To use their influence for the purpose of effectually establishing and maintaining the principle of equal opportunity for the commerce and industry of all nations throughout the territory of China; (4) To refrain from taking advantage of conditions in China in order to seek special rights or privileges which would abridge the rights of subjects or citizens of friendly States, and from countenancing action inimical to the security of such States. Article II The Contracting Powers agree not to enter into any treaty, agreement, arrangement, or understanding, either with one another, or, individually or collectively, with any Power or Powers, which would infringe or impair the principles stated in Article I. Article III With a view to applying more effectually the principles of the Open Door or equality of opportunity in China for the trade and industry of all nations, the Contracting Powers, other than China, agree that they will not seek, nor support their respective nationals in seeking (a) any arrangement which might purport to establish in favour of their interests any general superiority of rights with respect to commercial or economic development in any designated region of China; (b) any such monopoly or preference as would deprive the nationals of any other Power of the right of undertaking any legitimate trade or industry in China, or of participating with the Chinese Government, or with any local authority, in any category of public enterprise, or which by reason of its scope, duration or geographical extent is calculated to frustrate the practical application of the principle of equal opportunity. It is understood that the foregoing stipulations of this Article are not to be so construed as to prohibit the acquisition of such properties or rights as may be necessary to the conduct of a particular commercial, industrial, or financial undertaking or to the encouragement of invention and research. China undertakes to be guided by the principles stated in the foregoing stipulations of this Article in dealing with applications for economic rights and privileges from Governments and nationals of all foreign countries, whether parties to the present Treaty or not. Article IV The Contracting Powers agree not to support any agreements by their respective nationals with each other designed to create Spheres of Influ- ence or to provide for the enjoyment of mutually exclusive opportunities in designated parts of Chinese territory. 32 Chinese Railways Article V China agrees that, throughout the whole of the railways in China, she will not exercise or permit unfair discrimination of any kind. In par- ticular there shall be no discrimination whatever, direct or indirect, in respect of charges or of facilities on the ground of the nationality of passengers or the countries from which or to which they are proceeding, or the origin or ownership of goods or the country from which or to which they are consigned, or the nationality or ownership of the ship or other means of conveying such passengers or goods before or after their trans- port on the Chinese Railways. The Contracting Powers, other than China, assume a corresponding obligation in respect of any of the aforesaid railways over which they or their nationals are in a position to exercise any control in virtue of any concession, special agreement or otherwise. Article VI The Contracting Powers, other than China, agree fully to respect China's rights as a neutral in time of war to which China is not a party ; and China declares that when she is a neutral she will observe the obli- gations of neutrality. Article VII The Contracting Powers agree that, whenever a situation arises which in the opinion of any one of them involves the application of the stipula- tions of the present Treaty, and renders desirable discussion of such application, there shall be full and frank communication between the Contracting Powers concerned. Article VIII Powers not signatory to the present Treaty, which have Governments recognized by the Signatory Powers and which have treaty relations with China, shall be invited to adhere to the present Treaty. To this end the Government of the United States will will make the necessary communica- tions to nonsignatory Powers and will inform the Contracting Powers of the replies received. Adherence by any Power shall become effective on receipt of notice thereof by the Government of the United States. Article IX The present Treaty shall be ratified by the Contracting Powers in accordance with their respective constitutional methods and shall take effect on the date of the deposit of all the ratifications, which shall take place at Washington as soon as possible. The Government of the United States will transmit to the other Contracting Powers a certified copy of the proces-verbal of the deposit of ratifications. The present Treaty, of which the French and English texts are both authentic, shall remain deposited in the archives of the Government of 33 Treaties and Resolutions. the United States, and duly certified copies thereof shall be transmitted by that Government to the other Contracting Powers. In faith whereof the above-named Plenipotentiaries have signed the present Treaty. Done at the City of Washington the Sixth day of February One Thousand Nine Hundred and Twenty-Two. [L. S.] Charles Evans Hughes [L. S.] V. K. Wellington Koo [L.S.] Henry Cabot Lodge [L. S.] Chung-Hui Wang [L. S.] Oscar W. Underwood [L. S.] A. Sarraut [L.S.] Elihu Root [L. S.] Jusserand [L. S.] Baron de Cartier de Marchienne [L. S.] Carlo Schanzer [L. S.] Arthur James Balfour [L. S.] V. Rolandi Ricci [L. S.] Lee of Fareham [L. S.] Luigi Albertini [L. S.] A. C. Geddes [L. S.] T. Kato [L.S.] R. L. Borden [L. S.] K. Shidehara [L. S.] G. F. Pearce [L. S.] M. Hanihara [L. S.] John W. Salmond [L.S.] Beelaerts van Blokland [L.S.] Arthur James Balfour [L. S.] W. de Beaufort [L. S.] V. S. Srinivasa Sastri [L. S.] Alte [L. S.] Sao-Ke Alfred Sze [L. S.] Ernesto de Vasconcellos (7) A TREATY BETWEEN THE NINE POWERS RELATING TO CHINESE CUSTOMS TARIFF The United States of America, Belgium, the British Empire, China, France, Italy, Japan, The Netherlands and Portugal : With a view to increasing the revenues of the Chinese Government, have resolved to conclude a Treaty relating to the revision of the Chinese customs tariff and cognate matters, and to that end have appointed as their Plenipotentiaries : (The Plenipotentiaries who negotiated this Treaty are the same as those listed on page 8 with the additional Plenipotentiaries listed on page 31.) Who, having communicated to each other their full powers, found to be in good and due form, have agreed as follows : Article I The representatives of the Contracting Powers having adopted, on the fourth day of February, 1922, in the City of Washington, a Resolution, which is appended as an Annex to this Article, with respect to the revision of Chinese Customs duties, for the purpose of making such duties equivalent to an effective 5 per centum ad valorem, in accordance with existing treaties concluded by China with other nations, the Contracting Powers hereby confirm the said Resolution and undertake to accept the tariff rates fixed as a result of such revision. The said tariff rates shall 34 Chinese Tariff become effective as soon as possible but not earlier than two months after publication thereof. Annex With a view to providing additional revenue to meet the needs of the Chinese Government, the Powers represented at this Conference, namely the United States of America, Belgium, the British Empire, China, France, Italy, Japan, The Netherlands, and Portugal agree : That the customs schedule of duties on imports into China adopted by the Tariff Revision Commission at Shanghai on December 19, 1918, shall forthwith be revised so that the rates of duty shall be equivalent to 5 per cent, effective, as provided for in the several commercial treaties to which China is a party. A Revision Commission shall meet at Shanghai, at the earliest prac- ticable date, to effect this revision forthwith and on the general lines of the last revision. This Commission shall be composed of representatives of the Powers above named and of representatives of any additional Powers having Governments at present recognized by the Powers represented at this Conference and who have treaties with China providing for a tariff on imports and exports not to exceed 5 per cent, ad valorem and who desire to participate therein. The revision shall proceed as rapidly as possible with a view to its completion within four months from the date of the adoption of this Reso- lution by the Conference on the Limitation of Armament and Pacific and Far Eastern Questions. The revised tariff shall become effective as soon as possible but not earlier than two months after its publication by the Revision Commission. The Government of the United States, as convener of the present Con- ference, is requested forthwith to communicate the terms of this Resolu- tion to the Governments of Powers not represented at this Conference but who participated in the Revision of 1918, aforesaid. Article II Immediate steps shall be taken, through a Special Conference, to pre- pare the way for the speedy abolition of likin and for the fulfilment of the other conditions laid down in Article VIII of the Treaty of Septem- ber 5th, 1902, between Great Britain and China, in Articles IV and V of the Treaty of October 8th, 1903, between the United States and China, and in Article I of the Supplementary Treaty of October 8th, 1903, between Japan and China, with a view to levying the surtaxes provided for in those articles. , ... The Special Conference shall be composed of representatives of the Signatory Powers, and of such other Powers as may desire to participate and may adhere to the present Treaty, in acordance with the provisions of Article VIII, in sufficient time to allow their representatives to take part. 35 Treaties and Resolutions It shall meet in China within three months after the coming into force of the present Treaty, on a day and at a place to be designated by the Chinese Government. Article III The Special Conference provided for in Article II shall consider the interim provisions to be applied prior to the abolition of likin and the fulfillment of the other conditions laid do-wn in the articles of the Treaties mentioned in Article II ; and it shall authorize the levying of a surtax on dutiable imports as from such date, for such purposes, and subject to such conditions as it may determine. The surtax shall be at a uniform rate of 2J/^ per centum ad valorem, provided, that in case of certain articles of luxury which, in the opinion of the Special Conference, can bear a greater increase without unduly impeding trade, the total surtax may be increased but may not exceed 5 per centum ad valorem. Article IV Following the immediate revision of the customs schedule of duties on imports into China, mentioned in Article I, there shall be a further revision thereof to take effect at the expiration of four years following the comple- tion of the aforesaid immediate revision, in order to ensure that the customs duties shall correspond to the ad valorem rates fixed by the Special Conference provided for in Article II. Following this further revision there shall be, for the same purpose, periodical revisions of the customs schedule of duties on imports into China every seven years, in lieu of the decennial revision authorized by existing treaties with China. In order to prevent delay, any revision made in pursuance of this Article shall be effected in accordance with rules to be prescribed by the Special Conference provided for in Article II. Article V In all matters relating to customs duties there shall be effective equality of treatment and opportunity for all the Contracting Powers. Article VI The principle of uniformity in the rates of customs duties levied at all the land and maritime frontiers of China is hereby recognized. The Special Conference provided for in Article II shall make arrangements to give practical effect to this principle; and it is authorized to make equitable adjustments in those cases in which a customs privilege to be abolished was granted in return for some local economic advantage. In the meantime, any increase in the rates of customs duties resulting from tariff revision, or any surtax hereafter imposed in pursuance of the present Treaty, shall be levied at a uniform rate ad valorem at all land and maritime frontiers of China. 36 Laws of War Article VII The charge for transit passes shall be at the rate of 2]/^ per centum ad valorem until the arrangements provided for by Article II come into force. Article VIII Powers not signatory to the present Treaty whose Governments are at present recognized by the Signatory Powers, and whose present treaties with China provide for a tariff on imports and exports not to exceed 5 per centum ad valorem, shall be invited to adhere to the present Treaty. The Government of the United States undertakes to make the neces- sary communications for this purpose and to inform the Governments of the Contracting Powers of the replies received. Adherence by any Power shall become effective on receipt of notice thereof by the Government of the United States. Article IX The provisions of the present Treaty shall override all stipulations of treaties between China and the respective Contracting Powers which are inconsistent therewith, other than stipulations according most favored nation treatment. Article X The present Treaty shall be ratified by the Contracting Powers in accordance with their respective constitutional methods and shall take effect on the date of the deposit of all the ratifications, which shall take place at Washington as soon as possible. The Government of the United States will transmit to the other Contracting Powers a certified copy of the proces-verbal of the deposit of ratifications. The present Treaty, of which the English and French texts are both authentic, shall remain deposited in the Archives of the Government of the United States, and duly certified copies thereof shall be transmitted by that Government to the other Contracting Powers. In faith whereof the above-named Plenipotentiaries have signed the present Treaty. Done at the City of Washington the sixth day of February, One Thou- sand Nine Hundred and Twenty-Two. THE RESOLUTIONS NO. 1. RESOLUTIONS FOR A COMMISSION OF JURISTS TO CONSIDER AMENDMENT OF LAWS OF WAR The United States of America, the British Empire, France, Italy and Japan have agreed : — I. That a Commission composed of not more than two members repre- senting each of the above-mentioned Powers shall be constituted to consider the following questions : — 37 Treaties and Resolutions (a) Do existing rules of International Law adequately cover new methods of attack or defense resulting from the introduction or development, since the Hague Conference of 1907, of new agencies of warfare? (b) If not so, what changes in the existing rules ought to be adopted in consequence thereof as a part of the law of nations? II. That notices of appointment of the members of the Commission shall be transmitted to the Government of the United States of America within three months after the adjournment of the present Conference, which after consultation with the Powers concerned will fix the day and place for the meeting of the Commission. III. That the Commission shall be at liberty to request assistance and advice from experts in International Law and in land, naval and aerial warfare. IV. That the Commission shall report its conclusions to each of the Powers represented in its membership. Those Powers shall thereupon confer as to the acceptance of the report and the course to be followed to secure the consideration of its recom- mendations by the other civilized Powers. Adopted by the Conference on the Limitation of Armament, at the Sixth Plenary Session, February 4th, 1922. NO. 2. RESOLUTION LIMITING JURISDICTION OF COMMISSION OF JURISTS PROVIDED IN RESOLUTION NO. 1 Resolved, That it is not the intention of the Powers agreeing to the appointment of a Commission to consider and report upon the rules of International Law respecting new agencies of warfare that the Commis- sion shall review or report upon the rules or declarations relating to submarines or the use of noxious gases and chemicals already adopted by the Powers in this conference. Adopted by the Conference on the Limitation of Armament at the Sixth Plenary Session, February 4th, 1922. NO. 3. RESOLUTION REGARDING A BOARD OF REFERENCE FOR FAR EASTERN QUESTION • The representatives of the Powers assembled at the present Conference at Washington, to wit ; The United States of America, Belgium, the British Empire, China, France, Italy, Japan, The Netherlands and Portugal : Desiring to provide a procedure for dealing with questions that may arise in connection with the execution of the provisions of Articles III and V of the Treaty to be signed at Washington on February 6th, 1922, with reference to their general policy designed to stabilize conditions in the Far East, to safeguard the rights and interests of China, and to pro- 38 Chinese Extraterritoriality mote intercourse between China and the other Powers upon the basis of equality of opportunity ; Resolve that there shall be established in China a Board of Reference to which any questions arising in connection w'lth the execution of the aforesaid Articles may be referred for investigation and report. The Special Conference provided for in Article II of the Treaty to be signed at Washington on February 6th, 1922, with reference to the Chinese Customs Tariff, shall formulate for the approval of the Powers concerned a detailed plan for the constitution of the Board. Adopted by the Conference on the Limitation of Armament at the Sixth Plenary Session February 4th, 1922. NO. 4. RESOLUTION REGARDING EXTRATERRITORIALITY IN CHINA The representatives of the Powers hereinafter named, participating in the discussion of Pacific and Far Eastern questions in the Conference on the Limitation of Armament, to wit, the United States of America, Belgium, the British Empire, France, Italy, Japan, the Netherlands, and Portugal, — Having taken note of the fact that in the Treaty between Great Britain and China dated September 5, 1902, in the Treaty between the United States of America and China dated October 8, 1903, and in the Treaty between Japan and China dated October 8, 1903, these several Powers have agreed to give every assistance towards the attainment by the Chinese Government of its expressed desire to reform its judicial system and to bring it into accord with that of Western nations, and have declared that they are also "prepared to relinquisTi extraterritorial rights when satisfied that the state of the Chinese laws, the arrangements for their administration, and other considerations warrant" them in so doing; Being sympathetically disposed towards furthering in this regard the aspiration to which the Chinese delegation gave expression on Novem- ber 16, 1921, to the effect that "immediately, or as soon as circumstances will permit, existing limitations upon China's political, jurisdictional and administrative freedom of action are to be removed" ; Considering that any determination in regard to such action as might be appropriate to this end must depend upon the ascertainment and appre- ciation of complicated states of fact in regard to the laws and the judicial system and the methods of judicial administration of China, which this Conference is not in a position to determine ; Have resolved That the Governments of the Powers above named shall establish a Commission (to which each of such Governments shall appoint one mem- ber) to inquire into the present practice of extraterritorial jurisdiction in China, and into the laws and the judicial system and the methods of judicial administration of China, with a view to reporting to the Govern- 39 Treaties and Resolutions ments of the several Powers above named their findings of fact in regard to these matters, and their recommendations as to such means as they may find suitable to improve the existing conditions of the administration of justice in China, and to assist and further the efforts of the Chinese Gov- ernment to effect such legislation and judicial reforms as would warrant the several Powers in relinquishing, either progressively or otherwise, their respective rights of extraterritoriality; That the Commission herein contemplated shall be constituted within three months after the adjournment of the Conference in accordance with detailed arrangements to be hereafter agreed upon by the Governments of the Powers above named, and shall be instructed to submit its report and recommendations within one year after the first meeting of the Com- mission; That each of the Powers above named shall be deemed free to accept or to reject all or any portion of the recommendations of the Commission herein contemplated, but that in no case shall any of the said Powers make its acceptance of all or any portion of such recommendations either directly or indirectly dependent on the granting by China of any special concession, favor, benefit or immunity, whether political or economic. Additional Resolution That the non-signatory Powers, having by treaty extraterritorial rights in China, may accede to the resolution affecting extraterritoriality and the administration of justice in China by depositing within three months after the adjournment of the Conference a written notice of accession with the Government of the United States for communication by it to each of the signatory Powers. Additional Resolution That China, having taken note of the resolutions affecting the establish- ment of a Commission to investigate and report upon extraterritoriality and the administration of justice in China, expresses its satisfaction with the sympathetic disposition of the Powers hereinbefore named in regard to the aspiration of the Chinese Government to secure the abolition of extraterritoriality in China, and declares its intention to appoint a repre- sentative who shall have the right to sit as a member of the said Com- mission, it being understood that China shall be deemed free to accept or to reject any or all of the recommendations of the Commission. Further- more, China is prepared to cooperate in the work of this Commission and to afford to it every possible facility for the successful accomplishment of its tasks. Adopted by the Conference on the Limitation of Armament at the Fourth Plenary Session, December 10, 1921. 40 Troops in China NO. 5. RESOLUTION REGARDING FOREIGN POSTAL AGENCIES IN CHINA A. Recognizing the justice of the desire expressed by the Chinese Gov- ernment to secure the abolition of foreign postal agencies in China, save or except in leased territories or as otherwise specifically provided by treaty, it is resolved: (1) The four Powers having such postal agencies agree to their aban- donment subject to the following conditions : (a) That an efficient Chinese postal service is maintained; (b) That an assurance is given by the Chinese Government that they contemplate no change in the present postal administration so far as the status of the foreign Co-Director General is concerned. (2) To enable China and the Powers concerned to make the necessary dispositions, this arrangement shall come into force and effect not later than January 1, 1923. B. Pending the complete withdrawal of foreign postal agencies, the four Powers concerned severally undertake to afford full facilities to the Chinese customs authorities to examine in those agencies all postal matter (excepting ordinary letters, whether registered or not, which upon ex- ternal examination appear plainly to contain only written matter) passing through them, with a view to ascertaining whether they contain articles which are dutiable or contraband or which otherwise contravene the customs regulations or laws of China. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session February 1st, 1922. NO. 6. RESOLUTION REGARDING ARMED FORCES IN CHINA Whereas . The Powers have from time to time stationed armed forces, including police and railway guards, in China to protect the lives and property of foreigners lawfully in China ; And whereas . • . • /-u- It appears that certain of these armed forces are maintained in China without the authority of any treaty or agreement; And whereas The Powers have declared their intention to withdraw their armed forces now on duty in China without the authority of any treaty or agree- ment, whenever China shall assure the protection of the lives and property of foreigners in China; And whereas . China has declared her intention and capacity to assure the protection of the lives and property of foreigners in China ; Now ,. , , ,... To the end that there may be clear understanding of the conditions upon which in each case the practical execution of those intentions must depend ; It is resolved : „,..., ti That the Diplomatic Representatives in Pekin of the Powers now in Conference at Washington, to wit, the United States of America, Belgium, the British Empire, France, Italy, Japan, The Netherlands and Portugal will be instructed by their respective Governments, whenever China shall 41 Treaties and Resolutions so request, to associate themselves with three representatives of the Chinese Government to conduct collectively a full and impartial inquiry into the issues raised by the foregoing declarations of intention made by the Powers and by China and shall thereafter prepare a full and compre- hensive report setting out without reservation their findings of fact and their opinion with regard to the matter hereby referred for inquiry, and shall furnish a copy of their report to each of the nine Governments con- cerned which shall severally make public the report with such comment as each may deem appropriate. The representatives of any of the Powers may make or join in minority reports stating their differences, if any, from the majority report. That each of the Powers above named shall be deemed free to accept or reject all or any of the findings of fact or opinions expressed in the report but that in no case shall any of the said Powers make its acceptance of all or any of the findings of fact or opinions either directly or indirectly dependent on the granting by China of any special concession, favor, benefit or immunity, whether political or economic. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session, February 1st, 1922. NO. 7. RESOLUTION REGARDING RADIO STATIONS IN CHINA AND ACCOMPANYING DECLARATIONS The representatives of the Powers hereinafter named participating in the discussion of Pacific and Far Eastern questions in the Conference on the Limitation of Armament — to wit : The United States of America, Bel- gium, The British Empire, China, France, Italy, Japan, The Netherlands and Portugal, Have resolved 1. That all radio stations in China whether maintained under the pro- visions^ of the international protocol of September 7, 1901, or in fact maintained in the grounds of any of the foreign legations in China, shall be limited in their use to sending and receiving government messages and shall not receive or send commercial or personal or unofficial messages, including press matter: Provided, however, that in case all other tele- graphic communication is interrupted, then, upon official notification accompanied by proof of such interruption to the Chinese Ministry of Communications, such stations may afford temporary facilities for com- mercial, personal or unofficial messages, including press matter, until the Chinese Government has given notice of the termination of the interrup- tion ; 2. All radio stations operated within the territory of China by a foreign government or the citizens or subjects thereof under treaties or conces- sions of the Government of China, shall limit the messages sent and received by the terras of the treaties or concessions under which the respective stations are maintained ; 3. In case there be any radio station maintained in the territory of China by a foreign government or citizens or subjects thereof without the authority of the Chinese Government, such station and all the plant, apparatus and material thereof shall be transferred to and taken over by the Government of China, to be operated under the direction of the Chinese Ministry of Communications upon fair and full compensation to the owners for the value of the installation, as soon as the Chinese Ministry of Communications is prepared to operate the same effectively for the general public benefit ; 4. If any questions shall arise as to the radio stations in leased terri- 42 Radio in China tories, in the South Manchurian Railway Zone or in the French Concession at Shanghai, they shall be regarded as matters for discussion between the Chinese Government and the Governments concerned. S. The owners or managers of all radio stations maintained in the terri- tory of China by foreign powers or citizens or subjects thereof shall confer with the Chinese Ministry of Communications for the purpose of seeking a common arrangement to avoid interference in the use of wave lengths by wireless stations in China, subject to such general arrangements as may be made by an international conference convened for the revision of the rules established by the International Radio Telegraph Convention signed at London, July S, 1912. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session, February 1st, 1922. Declaration Concerning the Resolution on Radio Stations in China of December 7, 1921 The Powers other than China declare that nothing in paragraphs 3 or 4 of the Resolutions of 7th December, 1921, is to be deemed to be an expres- sion of opinion by the Conference as to whether the stations referred to therein are or are not authorized by China. They further give notice that the result of any discussion arising under paragraph 4 must, if it is not to be subject to objection by them, conform with the principle of the Open Door of equality or opportunity approved by the Conference. Chinese Declaration Concerning Resolution of December 7th Regarding Radio Stations in China The Chinese Delegation takes this occasion formally to declare that the Chinese Government does not recognize or concede the right of any foreign Power or of the nationals thereof to install or operate without its express consent, radio stations in legation grounds, settlements, concessions, leased territories, railway areas or other similar areas. NO. 8. RESOLUTION REGARDING UNIFICATION OF RAILWAYS IN CHINA AND ACCOMPANYING DECLARATION BY CHINA The Powers represented in this Conference record their hope that to the utmost degree consistent with legitimate existing rights, the future develop- ment of railways in China shall be so conducted as to enable the Chinese Government to effect the unification of railways into a railway system under Chinese control, with such foreign financial and technical assistance as may prove necessary in the interests of that system. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session February 1st, 1922. Statement Regarding Chinese Railways Made on January 19, 1922, by the Chinese Delegation The Chinese Delegation notes with sympathetic appreciation the expres- sion of the hope of the Powers that the existing and future railways of China may be unified under the control and operation of the Chinese Gov- ernment with such foreign financial and technical assistance as may be needed. It is our intention as speedily as possible to bring about this result. It is our purpose to develop existing and future railways in accord- ance with a general programme that will meet the economic, industrial and commercial requirements of China. It will be our policy to obtain such foreign financial and technical assistance as may be needed from the Powers in accordance with the principles of the Open Door or equal oppor- 43 Treaties and Resolutions tunity; and the friendly support of these Powers will be asked for the effort of the Chinese Government to bring all the railways of China, now existing or to be built, under its effective and unified control and operation. NO. 9. RESOLUTION REGARDING THE REDUCTION OF CHINESE MILITARY FORCES Whereas the Powers attending this Conference have been deeply impressed with the severe drain on the public revenue of China through the maintenance in various parts of the country, of military forces, exces- sive in number and controlled by the military chiefs of the provinces without coordination. And whereas the continued maintenance of these forces appears to be mainly responsible for China's present unsettled political conditions. And whereas it is felt that large and prompt reductions of these forces will not only advance the cause of China's political unity and economic development but will hasten her financial rehabilitation; Therefore, without any intention to interfere in the internal problems in China, but animated by the sincere desire to see China develop and main- tain for herself an effective and stable government alike in her own interest and in the general interest of trade ; And being inspired by the spirit of this Conference whose aim is to reduce, through the limitation of armament, the enormous disbursements which manifestly constitute the greater part of the encumbrance upon enterprise and national prosperity; It is resolved: That this Conference express to China the earnest hope that immediate and effective steps may be taken by the Chinese Government to reduce the aforesaid military forces and expenditures. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session, February 1st, 1922. NO. 10. RESOLUTION REGARDING EXISTING COMMITMENTS OF CHINA OR WITH RESPECT TO CHINA The Powers represented in this Conference, considering it desirable that there should hereafter be full publicity with respect to all matters affecting the political and other international obligations of China and of the several Powers in relation to China, are agreed as follows : I. The several Powers other than China will at their earliest con- venience file with the Secretariat General of the Conference for trans- mission to the participating Powers, a list of all treaties, conventions, exchange of notes, or other international agreements which they may have with China, or with any other Power or Powers in relation to China, which they deem to be still in force and upon which they may desire to rely. In each case, citations will be given to any official or other publi- cation in which an authoritative text of the documents may be found. In any case in which the document may not have been published, a copy of the text (in its original language or languages) will be filed with the Secretariat General of the Conference. Every Treaty or other international agreement of the character de- scribed which may be concluded hereafter shall be notified by the Gov- ernments concerned within sixty (60) days of its conclusion to the Powers who are signatories of or adherents to this agreement. II. The several Powers other than China will file with the Secretariat General of the Conference at their earliest convenience for transmission to the participating Powers a list, as nearly complete as may be possible, of all those contracts between their nationals, of the one part, and the 44 Chinese Eastern Railway Chinese Government or any of its administrative subdivisions or local authorities, of the other part, which involve any concession, franchise, option or preference with respect to railway construction, mining, forestry, navigation, river conservancy, harbor works, reclamation, electrical com- munications, or other public works or public services, or for the sale of arms or ammunition, or which involve a lien upon any of the public revenues or properties of the Chinese Government or of any of its administrative subdivisions. There shall be, in the case of each docu- ment so listed, either a citation to a published text, or a copy of the text itself. Every contract of the public character described which may be con- cluded hereafter shall be notified by the Governments concerned within sixty (60) days after the receipt of information of its conclusion to the Powers who are signatories of or adherents to this agreement. III. The Chinese Government agrees to notify in the conditions laid down in this agreement every treaty agreement or contract of the charac- ter indicated herein which has been or may hereafter be concluded by that Government or by any local authority in China with any foreign Power or the nationals of any foreign Power whether party to this agreement or not, so far as the information is in its possession. IV. The Governments of Powers having treaty relations with China, which are not represented at the present Conference, shall be invited to adhere to this agreement. The United States Government, as convenor of the Conference, under- takes to communicate this agreement to the Governments of the said Powers, with a view to obtaining their adherence thereto as soon as possible. Adopted by the Conference on the Limitation of Armament at the Fifth Plenary Session February 1st, 1922. NO. 11. RESOLUTION REGARDING THE CHINESE EASTERN RAILWAY, APPROVED BY ALL THE POWERS INCLUDING CHINA. Resolved, That the preservation of the Chinese Eastern Railway for those in interest requires that better protection be given to the railvvay and the persons engaged in its operation and use, a more careful selection of personnel to secure efficiency of service, and a more economical use of funds to prevent waste of the property. That the subject should immediately be dealt with through the proper Diplomatic channels. c- , Adopted by the Conference on the Limitation of Armament at the Sixth Plenary Session, February 4th, 1922. NO 12 RESOLUTION REGARDING THE CHINESE EASTERN RAILWAY, APPROVED BY ALL THE POWERS OTHER THAN CHINA. The Powers other than China in agreeing to the resolution regarding the Chinese Eastern Railway, reserve the right to insist hereafter upon the responsibility of China for performance or non-performance of the obligations towards the foreign stockholders, bondholders and creditors of the Chinese Eastern Railway Company which the Powers deem to result from the contracts under which the railroad was built and the action of China thereunder and the obligations which they deem to be in the nature of a trust resulting from the exercise of power by the Chinese Govern- ment over the possession and administration of the railroad. 45 Treaties and Resolutions FACTS AND TABLES World Naval and Military Forces. The Cost of War The taxing power of Governments is based on the willingness of the nations to pay the price of security. Civilization, bringing benefits to man- kind, develops most rapidly beneath the shelter of peace. Thus, taxes and peace have an intimate relation. Thomas Jefferson, in the American Declaration of Independence, wrote that mankind are more disposed to suffer, while evils are sufferable, than to right themselves by abolishing the forms to which they are accustomed. But the price of security, for the people of all civilized nations, has reached the appalling total of nine-tenths of their taxes. A candid survey of this burden at length has brought the world to a realization that this cost of security is too disproportionate to the benefits derived, to warrant longer continuation of the established method. This sentiment was crystallized in the issuance, on August 11, 1921, by Warren G. Harding, President of the United States, of an invitation to the principal armed powers to attend a Conference on the Limitation of Armaments. The invitation was grasped eagerly by a debt-burdened world and the Conference met at Washington on November 11, 1921, the anni- versary of the signing of the Armistice which terminated the European War. It concluded its deliberations on February 6, 1922, having drawn up a series of treaties and resolutions which are set out textually in subse- quent pages. When the Conference was called, appropriations were being made at a rate of more than $5,000,000,000 a year to maintain the military and naval forces of the world. Nearly $20,000,000,000 has been expended for this purpose by the principal nations since November, 1918. Approximately 30 per cent, of this disbursement was made by the United States. Defense is the principle upon which the parliaments of forty-five nations have been authorizing this prodigal scale of expenditure. Preparedness against attack from without is the universal explanation, yet this policy has drawn the nations into a post-armistice rate of military and naval expenditure more than twice that of the 1913 peace period. The series of smaller wars which raged in Central and Southern Europe soon after the Armistice and in the Balkans gave color to the claim that arms could not safely be laid aside. The group of smaller nations which engaged with Soviet Russia, following the peace conference, helped increase the cost. At one time United States Government officials listed more than twenty nations engaged in warfare following the signing of Peace of Versailles. Despite the reductions of forces of the principal belligerents, following the Versailles Peace, the great powers, and most of the smaller ones, still spent at a rate never before equaled except during the war period. In the fiscal year ended June 30, 1921, the United States Navy and Army cost the nation $1,751,989,000 in round numbers. No other nation spent a like sum. England was second, with a bill totaling $1,081,244,000. France, during the nearest period for which reports are available dis- bursed a total of $357,940,000. Her expenditures since have been slightly reduced in scale. Italy .spent $228,510,000, while the bill of Japan was at 46 Post-Armistice Costs the rate of $272,142,000 for a year. Japan also has effected reductions, but on precisely what scale is not yet clear. Belgium's bill is at the rate of $51,190,000 a year. Poland, according to the most recent complete reports, spent $168,830,000 for war during the first nine months of her career as a nation. The war, of course, was responsible for the inception of this carnival of spending. The extent to which the nations have increased their expendi- tures for armies and navies is shown by comparisons with the pre-war period. For the United Kingdom this increase on the basis of the last fiscal year, was 190 per cent. In the United States the increase was 489 per cent. Belgium's armament bill for 1920 was 540 per cent, greater than in 1913. The increase for Sweden, not engaged in tlie Great War, amounted to 145 per cent. Argentina is the only country credited with a decrease in war ex- penditures compared with the pre-war period. That country's cost of maintaining her army and navy, computed by experts of tlie Brussels Financial Conference called by the League of Nations, was to be 22 per cent, below 1913. The comparison, however, was made between the budgets of 1913 and 1918. Since 1918, however, Argentina's budget probably has increased. The United States in 1920 spent 34 per cent, of the total ordinary revenues in support of the military and naval establishments. England's forces took 24.4 per cent, of her total revenue. France in 1920 spent 11.8 per cent, of her revenues to maintain her forces, while Italy's ratio was 23.8 per cent. Japan, during the fiscal year 1920, spent 47.9 per cent, of her revenue for armament. Greece, during the fiscal year 1920-21, ranked highest in percentage of expenditure for defense. Her bill was 61.1 per cent, of her total revenue. Poland's army expenditures took 46.6 per cent, of her income. China, commonly regarded as the world's most peaceful nation, expended 41.9 per cent, of her revenues for maintenance of fighting forces. China's bill was $115,460,000 for the fiscal year 1918-19. Expenditures now are on a larger scale. Germany, intended by the allies to be completely disarmed under the peace treaty, disbursed a sum on armed forces during the year 1920-21, which represented 34.9 per cent, of her total revenue and stands as one of the world's highest proportionate expenditures for defense. Russia, whose land forces probably represent the largest standing army in Europe, is known to have had an enormous war bill since the Soviet power began to rise. It is impossible to translate into American currency the total because of the confusion in exchange. At one period the Soviet armies numbered more than 1,000,000 rifles. According to the official Soviet budget, the War Ministry in 1920 cost 122,800,000,000 roubles. The new states set up by the Treaty of Versailles are making large out- lays for armament. The budget of the fiscal year 1921 of Czecho- slovakia furnishes an example. This nation's budget shows ordinary revenue for the year of 12,057,436,000 crowns and ordinary expenditures amounting to 9,172,265,000 crowns. Of the expenditures there was paid out under the heading of National Defense a total of 2,368,830,110 crowns. This is 22 per cent, of the expenditures for all purposes. For education the amount spent was 608,344,891, or six per cent. Compiled from official announcements of 37 g:overnments, the table on page 48 gives a picture of expenditures of the principal nations for armies and navies. Owing to the fact that the fiscal period varies for the differ- 47 Treaties and Resolutions NATIONAL DEFENSIVE ARMAMENTS Cost to Thirty-seven Nations of Maintaining Navies and Annies for One- Year Period (Conversions into dollars are at rates current at the period of the Conference) Per Cent. Per Cent. Spent to Maintain Increase Total Nation, Year Army and Navy Over 1913 Budget United States, 1921 $1,751,989,000 489 34.0 United Kingdom, 1921 1,081,244,000 190 24.4 France, 1920 357,940,000 182 11.8 Japan, 1920 272,142,000 184 47.9 Italy, 1921 228,510,000 704 23.8 Poland, 1920 168,830,000 ... 46.6 India, 1921 134,983,000 102 26.8 China, 1919 115,460,000 27 41.9 Spain, 1921 94,360,000 ... 34.3 Greece, 1921 59,520,000 ... 61.1 Belgium, 1920 51,190,000 500 8.6 Sweden, 1920 43,030,000 145 22 2 Switzerland, 1919-20 33,940,000 ... 34.3 Netherlands, 1920 27,380,000 100 11.7 Argentina, 1920 25,000,000 . 180 Brazil, 1921 22,872,000 ... 25.0 Germany, 1921 15,000,000 ... 34.9 New Zealand, 1921 14,682,000 520 117 Australia, 1920 14,042,000 .. 40 Canada, 1921 12,767,000 ... 2 4 Denmark, 1920 11,410,000 120 10 Austria, 1921 9,650,000 ... 41 Norway, 1920 8,000,000 105 10 6 South Africa, 1921 5,128,000 8 3 5 Chili, 1921 10,260,000 ... 33 Portugal, 1921 6,382,000 422 271 Turkey, 1921 6,199,000 ... 280 Siam, 1921 4,900,000 20 15 Uruguay, 1921 4,800,000 . 17 7 Finland, 1919 3,550,000 . 217 Bulgaria, 1921 1,600,000 394 7 Rumania, 1921 28,900,000 . 33 Venezuela, 1921 1,700,000 18 6 Esthonia, 1920 500,000 Latvia, 1920 100,000 ... 220 Lithuania, 1920 250,000 72 7 Luxemburg, 1920 8o!o00 ... \z Russia, Mexico, all others 700,000 Totals spent $5,268,040,000 48 Standing Armies ent nations, it is impossible to make an exact comparison of expenditures. In some cases also it was necessary to take budgets of the fiscal year 1919-20 instead of 1920-21. Standing armies of the world now show a strength twice that of the pre- war era. The British empire at the close of her last fiscal year had under arms a total of 550,000 men. In 1913-14, she had peace forces on land numbering 186,000 officers and men. The United States in the fiscal year ended June 30, 1921, maintained an army of 220,000. In 1913, the American army was less than 100,000 men all ranks. At the last formal announce- ments the principal armies of the world and their cost were as follows : Number of Men Country Under Arms Cost Per Year Great Britain 550,000 $ 671,550,000 France 660,000 302,600,000 Italy 250,000 164,900,000 Japan 250,000 155,900,000 United States 220,000 1,101,600,000 Total 1,930,000 $2,396,550,000 Some reductions have been made in the number of men under arms but for all practical purposes this table represents the peace strength and peace cost of the land forces of the principal powers three years after the sign- ing of the armistice. Germany, although required by the peace treaty to disband her army and retain only sufficient troops for police purposes, until recently had under arms a total of more than 1,000,000 men. The regular arrny, supposed to number 100,000, was swelled by groups of self-organized civic guards and rifle clubs. A canvass of the standing armies of the world shows that although the world nominally is at peace, more than 7,000,000 men now are enlisted in active land forces. Compulsory military service now is bringing soldiers into training in every part of the world each year by millions. Nearly 1,000,000,000 per- sons, or nearly half of the world's population, now are living under the conscription system. Frorn one to three years is taken from the early life of one-half of all the males in the world, during which time they give their entire time to learn- ing war. The practice of arms thus is shown still to be the first civic duty of the male as the principal governments of the world now are organized. A marshaling of all the reserves by all countries which prac- tice compulsory service would bring to the colors a total of roughly 250,000,000 men. Among the principal countries in which conscription or universal service is used to recruit and maintain armies are these : France, Japan, Italy, Belgium, Holland, China, Spain, Portugal, Greece, Poland, Mexico, Swit- zerland, Roumania, Argentina, Brazil, Chile, Peru, Australia, Esthonia, and Finland. More than 4,000,000 men now are under arms in these countries alone and the strength of their reserves and the number of trained men they could throw into the field totals more than 100,000,000. Below is a table showing the strength of the standing armies of the world for 1921. Some reductions have since been made. In some cases the strength given represents a larger figure than the actual intended peace organization. This is because the figures are based on reports of the num- 49 Treaties and Resiolutions ber really under arms due to failure to completely demobilize after the Great War or because of recent mobilization to war strength as a result of a fear that hostilities were about to break out. LAND FORCES Principal Nations of the World China Great Britain . . Belgium Poland Spain Czecho-Slovakia Algeria Chile Bolivia Costa Rica .... Egypt Finland Lithuania Persia Austria Ind. China Fr. Dut. E. Indies . Uruguay Venezuela United States . . Italy Germany Russia Brit. India Denmark Argentina Australia Canada Cuba ,000,000 550,000 100,000 700,000 217,000 150,000 20,000 20,000 4,000 1,000 17,000 37,000 50,000 43,000 30,000 25,000 42,000 11,000 4,000 220,000 250,000 100,000 600,000 300,000 78,000 20,000 4,000 5,000 3,000 Esthonia 90,000 Morocco 12,000 Afghanistan 99,000 Nicaragua 2,000 Peru 11,000 Portugal 30,000 Switzerland 140,000 Bulgaria 20,000 Ecuador 5,000 France 660,000 Japan 250,000 Turkey 50,000 Roumania 250,000 Jugo-Slav 200,000 Abyssinia lOOjOOO Brazil 54,000 Bel. Congo 16,000 Colombia 6,000 Ecuador 5,500 Mexico 100,000 New Zealand 30,000 Guatemala 85,000 Norway 118,000 Greece 200,000 Salvador 16,000 Sweden 86,000 Ukrania 60,000 Netherlands 270,000 4,601,000 2,965,500 Cost of the World's Navies Maintaining the great navies of the world cost slightly more than $1,000,000,000 in 1921. The cost for 1920 was more than $1,155,600,000. The chief contention in favor of the upbuil^nig of great sea power has been that it represents a kind of international insurance against attack. The known strength of the principal navies in dreadnoughts alone is as follows : Great Britain 39; United States 19; Japan 11; France 7; and Italy 5. Russia is rated as having five dreadnoughts in the Baltic fleet. But two are known to have been destroyed and the rest are in a state of disrepair. Of the other world navies, only Argentina, perhaps, could threaten in terms of dreadnoughts. Argentina has two or three less than Italy, the weakest among the naval powers. Brazil's navy is rated as including two dreadnoughts. England's naval appropriation for the last fiscal year totals $305,172,300 or only about 10 per cent, below that of the fiscal year ended March 31,' 50 Naval Competition 1921. The United States spent about $414,000,000 on the navy in 1921. During the previous fiscal year which ended June 30, 1921, the cost was $650,373,836, or nearly double that of England. Japan this year is spend- ing $54,500,000, France $62,014,000 and Italy $52,490,000. Extensive building programs were in progress in all five countries when the Conference assembled. New plans of battle and sea fighting, constantly being invented, have cost each nation millions in ships which must be scrapped. The Maryland, the latest American dreadnought, may make almost worthless the first ships of the fleets of France, Italy and Japan. France in 1920 halted construc- tion and practically scrapped all the incomplete ships of the Normandie super-dreadnought class, which cost millions to lay down. Many destroy- ers, torpedo boats and submarines were discarded as being ineffective fighting machines. England in November, 1920, at one move, scrapped more than 600 vessels and sold 1,200 for a fraction of their original cost. All of the pre- dreadnoughts were discontinued, which meant the discarding of more than 20 battleships, which at that time were more powerful than the best ships of the world's second group navies. The original Dreadnought was one of the ships struck from the list by Great Britain. In this class went into the discard all the 12-inch-gun ships. The Dreadnought, put into com- mission in 1906, served just 13 years and then became useless, in the view of the naval experts. At her beginning, she was hailed as the world's finest and most powerful fighting ship. Her launching marked an epoch in naval history. Her armament startled the world. King Edward christened her. Immediately all nations began to discard ships made obso- lete by the new type. A spasm of designing and building followed. The supremacy of the Dreadnought soon began to be threatened. The rapidity with which great ships costing millions become useless is what makes naval power a costly form of insurance against attack. The cost of building a great battleship now is in excess of $40,000,000. The Maryland cost $42,000,000. Building cost has soared 366 per cent, since the Dreadnought came out. She cost approximately $9,000,000. In 1910, in the United States, a first-class fighting ship was built for $6,000,000. In 1917 the figure was $13,000,000. The Maryland and the new Iowa represent the present cost of big vessels in the United States. Destroyers cost about $2,500,000 each to build. More than 650 now are in commission by the five principal navies. The wholesale scrapping of millions of dollars worth of ships and guns by practically all the principal navies of the world in 1920 indicates that a new world race for naval supremacy would have begun had not the Washington Conference been called. The newest ships of war, costing forty millions of dollars each may never fire a shot except in target practice. The British Navy, with due formality, last summer laid up a ship built in 1854 which never during her entire existence fired a shot in anger and, what is more, during hei whole existence made only two trips away from the dock. At the time she was launched this ship astonished the naval world in a manner similar to that of the Dreadnought. Naval insurance cost the United States $1,500,000,000 in ships that never went into battle, between the period of the Spanish-American and the European War. This is the sum of American naval appropriations from 1899 to 1913. From the Spanish war to the end of the fiscal year 1921, 51 Treaties and Resolutions the regular naval appropriations of the United States totaled roughly $6,986,000,000, exclusive of deficiency authorizations. The average cost to the world in 1920 of each ship, on the basis of the major fleets of the principal nations, was $730,000. The strength of the five principal navies, according to classes of ships, as far as it has been publicly announced for 1921, is shown in the following table : NAVAL STRENGTH Dread- Pre- Cruis- De- Scouts Country Total noughts Dread. ers stroyers Subs. Torp. etc. United States ...465 19 19 29 267 110 17 4 Great Britain ... .407 39 .. 80 190 98 Japan 228 11 13 25 105 40 34 France 259 7 9 28 63 49 63 40 Italy 221 5 4 25 49 50 88 .. The figures as to naval strength are changing so frequently, as ships are scrapped or withdrawn from the lists as obsolete, that a new series of announcements any day may necessitate wholesale revisions of tables of naval strength. Only the naval experts of the various governments know the exact line-up from day to day. Economic Costs of Armament What war and a continuation of the recent rates of expenditure for arms means to the average man and woman in the United States, Japan, England, France, Italy, China and the other nations is made clear in the report of the International Financial Conference, which met under the auspices of the League of Nations at Brussels. Dealing with one phase of the significance of the situation to the average man, the report presents this table : Govt. Govt. Pre-War Revenue Post-War Revenue Income Per Capita Income Per Capita Country Per Capita Pre-War Per Capita Post-War United States $364 $7.50 $730 $70.00 United Kingdom 243 19.00 416 100.00 France 185 ,22.00 239 ' 34.00 Canada 180 17.00 335 33.00 Germany 149 8.00 72 11.00 Italy 110 14,00 88 12.00 Japan 30 6.50 76 8.00 Although the third column in this table, which shows the post-war income per capita, is on the basis of economic conditions in 1920, when business was better than now, the table nevertheless indicates the present proportions and the enormous advantage that people of the United States enjoy over the inhabitants of other nations in the world. The table makes it clear that despite the fact that the United States is spending greater sums for armament than any other nation, the people of the United States on the average are compelled to pay only one-tenth of their average income in taxation. Compare this with the fact that the official table shows Great Britain is forced to take 24 per cent, of the average income of her people, France 14 per cent., Germany 15 per cent., Italy 14 per cent., and Japan 11 per cent. 52 Taxes and Debts England last year was spending $14.06 on her army for every resident of the United Kingdom. The United States spent $10.50 in the last fiscal year. England's navy last year cost $8.94 per capita, while that of the United States cost $6.19. Taking together the world's big armies and navies, England spent $23, the United States $16.69, France $9.14, Japan $2.35 and Italy $5.91. For France, Italy and Japan the total per capita is lower than for the United States and is especially noticeable in the case of Japan. It must be remembered, however, that whereas the United States collected a total of $70 for each resident for all governmental pur- poses, France took away but $34, Italy $12 and Japan but $8. Japan, there- fore, spent more than 25 per cent, of her total income for armament. It should be remembered, however, that for every Japanese dollar of income value that is available for taxation purposes, the American people have more than nine. The United States has available as taxable income nearly two dollars for every British dollar of income, more than three for every French, more than ten for every German and eight for every Italian. The table given above showing revenue of the principal governments per capita includes government income from postal, telephone, telegraph, sale of government property, taxes on business and other levies, as well as the direct taxes paid by the people. Direct taxes per capita, that is, those paid from the household pocketbook, as computed by the League of Nations experts, were reported officially as follows up to 1920 : TAXATION PER CAPITA IN DOLLARS Country Direct Indirect Country Direct Indirect Belgium $ 7.10 $ 5.10 Holland 12.60 8.20 France 11.10 13.80 Spain 5.00 4.00 Italy 2.80 5.90 Switzerland 3.80 3.50 Portugal 70 1.20 Sweden 10.30 7.20 United Kingdom... 48.90 27.70 Denmark 14.90 10.50 Australia 10.80 11.80 Greece 1.60 4.00 British India 0.01 .41 United States .... 37,00 16.80 New Zealand 32.80 19.80 Japan 3.00 2.60 These computations now are somewhat lower for all countries but the decrease has been in about the same per cent, for the entire world so that the proportions between the different nations have changed little. National Debts National debt, steadily rising for every nation of the world, automatically becomes an international safety valve to check the outpouring of millions in the race for supremacy in armament. Rising debt was one of tlic world economic factors which caused President Harding and Secretary of State Hughes to decide that the time was opportune for a discussion of arms limitation at Washington. The national debt of England rose 900 per cent, during the war. The debts of Italy and France increased more than 300 per cent. The debt of Germany is thirty-three times as great as before the war and that of the United States nineteen times as great. The American debt, however, still is smaller than that of any of the five great powers, if there is taken into account the fact that about one-half of it represents loans to foreign gov- ernments and, therefore, is reimbursable. Mounting interest charges, billions that must be disbursed annually for pensions and the expenditure of other billions for reconstruction charges S3 Treaties and Resolutions are other factors tending to act in favor of arms limitation. Stated in dollars, the gross debts of some of the great powers, according to the most painstaking reports available, stand like this : Country Debt Country Debt Great Britain $37,000,000,000 Austria 17,000,000,000 United States 24,000,000,000 Hungary 8,000,000,000 France 30,000,000,000 Belgium 2,000,000,000 Italy 15,000,000,000 Japan 1,300,000,000 Germany 40,000,000,000 This table is cited merely to indicate the proportions of debt as between the various countries. The actual amounts vary from day to day when stated in dollars because of changes in rates of exchange. Expenditures for pensions have increased 1,909 per cent, in the French budget as compared with 1913. Reconstruction charges in 1920 repre- sented nearly 40 per cent, of the total ordinary expenditures. Belgium is spending 876 per cent, more for pensions than in 1913 and her outlay under this head represents nearly 5 per cent, of her total expenditure. Italy's pension cost has risen 983 per cent., while subsidies for food made neces- sary as a result of the war took 25 per cent, of her total outlay. Italy's expenditure for interest on her war debt required 19 per cent, of her total expenditures in 1920-21. Her interest charges were 603 per cent, greater than in 1913. The United Kingdom budget shows these increases : Pensions 990 per cent, over 1913, interest on war debt 1,690 per cent, greater than in pre-war days, with reconstruction charges taking nearly 3 per cent, of her total expenditures and subsidies for food more than 5 per cent. Holland, although not a belligerent, is experiencing an increase of 226 per cent, in annual outlay to meet debt charges. Similar increases are recorded for Spain, Switzerland, Norway, Sweden, Portugal and the South American republics. China's debt service has been swelled hundreds of per cent. Disbursements of the leading powers for pensions and interest charges on the public debt for the last complete fiscal year for which figures are available are shown as follows : Interest On Nation Pensions Public Debt United Kingdom $559,033,000 $1,276,500,000 United States 258,715,000 999,145,000 France 478,150.000 666,800,000 Italy 51,060;00O 182,000,000 Belgium 28,430,000 67,600,000 The present pension charges of the United States are being carried mainly as a result of conflicts before the Great War. The insurance system of compensation for soldiers and sailors adopted by the United States immediately upon entering the war practically pays for itself so that except for administrative charges, this government has practically no pension list as a result of the European War. Fifteen per cent, is the lowest income tax rate enjoyed during the war by people of England, Ireland, Scotland and Wales. After the Armistice, continuing staggering expenses of the military and naval forces and of reconstruction, made it necessary for the Government to continue this rate. In the United States the lowest rate during the war was 6 per cent. After the war it was reduced to 4 per cent, on net income. Net income in the United States means income above $1,000 for single persons and $2,500 for married individuals. Net income in the United 54 Relative Costs Kingdom means all earned income above £150 for single persons and above £250 for married persons. In terms of American money, this means approximately $600 for single persons and $1,000 for married persons. In France, Italy and Belgium, the income tax rates are correspondingly high as in England. These tax rates, applicable to the plain people of the powers mentioned, indicate to what extent the people of the armed powers will be relieved by an abandonment of armaments. Forty-seven millions of residents of the British Isles paid income taxes totaling $1,328,905,800 in the fiscal year ended March 31, 1920. During practically the same period the United States income tax yielded $1,269,- 630,104. But the population of the United States is 105,000,000, or more than double that of the United Kingdom. The average income tax in England was $28. In the United States it was $12. The highest range of the normal rate of income tax payments in England is six shillings to the pound. This is 30 per cent. In the United States the highest range is 6 per cent. Under the British income tax, many persons earning $9,000 a year would be obliged to turn over to the Government one-third of their earnings except for the exemptions allowed for children and dependents. When a comparison is made of these heavy imposts with the figures showing the amounts expended by the nations for warlike purposes, it will be seen how light would become the tax burden, were the cost of armament cancelled or even materially reduced. To turn the expenditures into the channels of peace would bring extraordinary public facihties. The cost of a Panama Canal is light in comparison with the cost of a battle. Even the cost of a week of naval target practice would erect a national theatre. As an indication of the proportion of public revenue spent for warlike purposes, following are figures from the budget of the French Republic showing the amounts expended for various purposes : For the Fiscal Year of 1920 Finance (including debt interest) 13,340,100,000 francs War Ministry 4,236,600,000 francs Marine (Navy) 868,200,000 francs Justice 125,300,000 francs Foreign Affairs 306,100,000 francs Interior 1,379,400,000 francs Education 1,176,600,000 francs Commerce and Industry 14,900,000 francs Posts and Telegraphs 1,475,900,000 francs Labor and Social Assistance 153,100,000 francs Colonies . . . 251,200,000 francs Agriculture 162,900,000 francs Public Works 2,114,300,000 francs Sea Transport and Merchant Marine 228,000,000 francs Total 25,532,600,000 francs Since 1914, France has expended more than 166,000,000,000 francs in con- nection with military items exclusive of interest on the public debt which totaled in excess of 25,000,000,000 francs. During the same period France's total disbursements for all other purposes amounted to but slightly more than 16,000,000,000 francs. In dollars at the current rates of exchange these figures mean war $11,857,000,000; interest, $1,785,000,000; all other purposes, $1,142,000,000. 55 Treaties and Resolutions American Savings It is possible to estimate, with reasonable accuracy, the immediate sav- ing to the taxpayers of the United States through the inauguration of the naval limitation program. Experts estimate that approximately five billions of dollars will be saved to the taxpayers of this nation during the fifteen years of the life of the new naval treaty. Under the plan, which has been accepted by the five great naval powers, the United States scraps 30 capital ships. The cost of maintaining a capital ship is placed by naval authorities at three million dollars a year. Upon the item of maintenance alone, therefore, there is an annual saving of $90,000,000. In the case of the older capital ships the cost of maintenance is reckoned at something less than three millions of dollars, but naval authorities assert that general overhead charges which must be added, make ninety million dollars a year a conservative figure. Extended over a period of fifteen years, the duration of the naval treaty, and compounded at 6 per cent., this amount reaches the impressive total of $2,089,490,548. Under the same plan, the United States scraps 13 capital ships now under construction. The approximate cost of the modem capital ship is $40,000,- 000, making the total cost of these 13 new ships, if completed, $520,000,000. Mr. Hughes has stated that the United States already has expended approximately $330,000,000 on the ships under construction, which com- pared with the cost of completing, shows a difference of $190,000,000, or the amount saved by the decision to scrap these ships. Funds for meeting this obligation probably would not be required immediately, and therefore the statisticians compound the amount at six per cent, over a period of twelve years instead of fifteen, giving a total of $347,084,790. The existing yards, docks and other shore establishments of the United States are regarded as somewhat below adequate for the navy at its pres- ent strength. They are, however, thought to be sufficient for the reduced navy contemplated under the treaty. Naval experts figure that at a normal rate of expansion of the American navy, such as might have been expected if no limitation agreement had been reached, the appro- priation for shore establishments would have to be increased at least $10,000,000 a year. With the treaty in operation, this $10,000,000 annually will be saved, and, computed over a period of 15 years and compounded as before, becomes $200,000,000, approximately. Under the old conditions of competition in armament, American naval experts believed the United States, in order to maintain a position of naval strength commensurate with her size, wealth, population and territorial interests, should build at least two capital ships a year. With the new building program previously contemplated by Great Britain, and with the Japanese navy assuming alarming proportions under the so-called eight- eight program, experts declare that nothing short of a two capital ship a year program would have been adequate for the safety of the United States. The estimated cost of a modern capital ship today is $40,000,000. If we are to judge by the way in which the cost of these sea-monsters has mounted in the past ten years, the expenditure necessary for laying down the modern ship of the future would have been much greater had there been no limitation on building. Two battleships a year, over a period of 15 years, they therefore assert, would have cost the United States, including compound interest, $2,322,419,035. Totaling the various items — maintenance, halting construction on new ships, shore establishments, and the estimated saving through the abolish- ment of competition — we have the sum of $4,958,994,374, as representing 56 Achievements of Conference the grand total of saving to the taxpayers of the United States in fifteen years. "Productive labor," invitation to the Conference read, "is staggering under an economic burden too heavy to be borne unless the present vast public expenditures are greatly reduced. It is idle to look for stability or the assurance of social justice, or the security of peace, while wasteful and unproductive outlays deprive effort of its just reward and defeat the reasonable expectation of progress. The enormous disbursements in the rivalries of armaments manifestly constitute the greater part of the encumbrance upon enterprise and national prosperity; and avoidable or extravagant expense of this nature is not only without economic justifica- tion but is a constant menace to the peace of the world rather than an assurance of its preservation." Briefly stated the achievements of the Conference are as follows : 1. It has brought about an agreement to abrogate the Anglo-Japanese Alliance. 2. It has removed the war cloud which for years has darkened our western horizon. 3. It has brought about an agreement of the five leading naval powers to limit naval armament, the most costly of the modern engines of war. 4. By providing in the Four Power treaty a simple and effective machin- ery for the friendly discussion of differences that may arise in the Pacific, it has inaugurated a new era. 5. It has brought about the ostracism of the submarine as a ruthless destroyer of commerce, and branded as pirates those who are guilty of such practices as characterized the last war. 6. It has brought about the formal condemnation of the deadly poison gas, which wrought such havoc in France. 7. It has achieved the settlement of the troublesome Yap controversy. 8. It has brought about an agreement between the United States, Great Britain, Japan, France, Italy and Holland for the distribution and control of the former German cables in the Pacific. 9. By the Nine Power treaty respecting China, it has brought about the acceptance of the Root Resolutions, calculated to prevent injustice to China and friction among the powers as a result of clashes of inter- ests in China ; and by the specific terms of that agreement it has guaranteed the Open Door, removed the evils of special privilege, rid China of foreign troops, foreign postoffices, and foreign leaseholders, and put her in a fair way to work out her destiny as a sovereign and independent nation. 10. It has brought about the settlement of the difficult Shantung ques- tion. 11. It has brought about a declaration of principles, pledging the nations to respect the integrity of Siberia and to make no encroachments upon her territory. 12. It has inaugurated a new era of open diplomacy, thoroughly dis- proving the theories of the old school diplomats and demonstrating that delicate international negotiations may be carried on successfully with the full knowledge of the people. 13. It has demonstrated the force of a righteously indignant public opinion when applied to a recalcitrant nation. 14. It has contributed immeasureably to the good will and good under- standing of the peoples of the world, by fostering a willingness on the part of men of all nationalities to discuss their differences before a disas- trous war has taken place, rather than at the peace table after millions of lives have been lost and billions of treasure have been spent. 57 Treaties and Resolutions Seduction of Land Forces Material reduction in size of the land forces of the nations which par- ticipated in the Conference had been planned to take effect simultaneously with the naval limitation. The American delegation had been especially- desirous of such an achievement and the American people had counted upon it. But early in the deliberations it became evident that European statesmen, especially those of France, would not consent to such a pro- gram. At one time this division threatened the continuation of the Con- ference, so strong were the conflicting views. The existence of the Red Army of Russia, reputed to number a million men, and of the gymnasia of Germany in which, it was reported, Germans privately were maintaining a tradition of militarism, created among Frenchman an apprehension that the substantial reduction of their land forces would jeopardize the peace of Europe and invite attack. This view did not lack supporters among countries other than France, for it was realized that neither Germany nor Russia would be a party to the Con- ference agreements and therefore would not be bound to limit armament. This objection did not apply to sea forces, for the European War, the Russian Revolution and the Treaty of Versailles left both powers without formidable navies. Thus it developed that the Conference agreements are silent on land forces, excepting in the case of China, the reduction of whose land forces is recommended. The existence of the Russian Army is a source of grave concern to all the Allied nations, and it is felt that until it has been demobilized there will be no guarantee of tranquillity in Europe. It was this view which influenced the United States to decline Italy's invitation to attend the Genoa Conference. No settlement of lasting value could be reached there, the American Government believed, while the necessity to maintain large standing armies, as insurance against Russian aggression, prevented the economies without which the European budgets could not be balanced. Therefore, the Genoa Conference would be political and not economic, and the United States considered that it had no part to play in European politics. The success of the Washington Conference has been such, however, that it is expected the Genoa discussions will lead to a European disarmament conference, in which Russia and Germany shall participate, with the result that an agreement can be reached which will make possible a world- wide reduction of land forces. With the burden of these army costs sub- stantially lightened, Europe would be in a position to reduce her taxation and her rehabilitation would be accelerated. The very absence of soldiery, in itself, would encourage more rapid development toward stabilization by putting out of sight the alarming suggestion of war. The Far Eastern Question The Far Eastern Question was brought before the Conference on the Limitation of Armament because the inclusion in any agreement of Japan, one of the principal powers attending, must depend upon the adjustment of important economic problems of the Orient in which several of the Occidental signatories were concerned. First, there was the problem of Japanese immigration into the United States. The California alien land laws had brought a threat of war of the sort which stimulates competitive armament. The Japanese naval 58 Shantung program and the plans of the Imperial General Staff were alarming to Western nations having interests in the Orient. Before the calling of the Conference, the Far East was looked upon as a region ripe for war. Anglo-Japanese Alliance The Anglo-Japanese Alliance was regarded with some jealousy by other nations. The effects of this treaty and of the other related problems were causing increasing apprehension. Therefore, while technically outside the plan of a conference on the limitation of armament, it was thought proper to adjust these questions which, if unsettled, would cause the powers to hesitate before laying aside their arms. The effect of the Four Power Treaty is to abrogate the Anglo-Japanese Alliance, admitting the United States and France — both nations having large Oriental interests — to a more general agreement. An agreement to join in common counsel is substituted for what, in effect, was a militaristic alliance. The Four Power Treaty also supplants, as to the United States, the Root-Takahira Understanding of 1908 which provided that Japan and the United States should consult upon any event threatening "the status quo * * * on the principle of equal opportunity." Thus, a general arrange- ment between four nations is substituted for separate agreements between three of them as individuals. The Nine Power Treaty The Nine Power Treaty, relating to China, was adopted, largely at the instance of the United States, in order that the principle of the Open Door — that is equality of opportunity in China for all nations — might be affirmed. It was feared that the previous declarations arising from the Hay Tenets were falling into neglect and needed affirmation to continue their binding influence for the benefit of China and to forestall any clashes between nations having interests there. The United States is authorized to invite nations not represented at the Conference to adhere to this treaty. The beneficent effect of this treaty is expected to be the removal of certain causes of friction between nations having interests in China. These difficulties had become so numerous and vexatious that they were forcing China into a weak position in which she might fall a prey to foreign aggression inimical to the pacific intents of the Conference. The Chinese tariff, extraterritorial judicial jurisdiction, foreign postal services, maintenance of foreign military garrisons, leased territories mfrmgmg Chinese integrity and Spheres of Influence in violation of the Open-Door Policy were the principal discordant factors in the Chinese situation which the Conference considered and took steps toward removing. It is expected that the agreements enunciated in respect of the Chinese rail- ways will rehabilitate their credit and enhance their efficiency. Leased Territories in China France agreed to surrender Kwangchouwan, a leased territory, Great Britain released Wei-hai-wei, and Japan released Shantung, the former German lease awarded Japan by the Treaty of Versailles. Under this important agreement, Japan is to remove her troops and the Tsingtao- Tsinanfu Railway is to be returned to China on payment of 53,000,000 gold marks, plus the amount Japan expended for permanent improvements during her control. China is to give her fifteen year notes, redeemable 59 Treaties and Resolutions in five years and pending redemption China must select a Japanese subject for the post of traffic manager and another to serve as chief accountant. The latter shall serve jointly with a Chinese chief accountant. These officials may be removed for cause. They shall all be under a Chinese managing director. Shantung This Shantung agreement was not made the subject of a conference treaty or resolution but was a result of the Conference, it being reached at collateral meetings of Japanese and Chinese delegates. Island of Yap Similarly, collateral meetings of American and Japanese delegates reached an agreement on the vexed question involving the Island of Yap. It provides that Japan shall retain her mandate, but the United States gains free access on an equal footing in all that relates to the landing and operation of cables. The same rights extend to radio-telegraphic facilities. Americans may reside in the island without restriction and may hold property and conduct business. Consent to the administration by Japan of mandated islands in the Pacific is given subject to the condi- tions regarding Yap and subject also to the right of the United States to have the benefit of engagements of Japan as set forth in the terms of the mandates. The Pacific Cables The question of the allocation of former German cables in the Pacific also was settled coincidentally with the Conference, but not in the Con- ference itself. As the result of negotiations between Secretary Hughes, Baron Shidehara, for Japan, and Jonkheer Van Karnabeek, for The Netherlands, an agreement was reached whereby the cable from Guam to Yap was awarded to the United States ; that from Yap to Menado, Dutch Celebes, went to the Netherlands ; and the line from Yap to the Japanese mainland was awarded to Japan. This agreement has the informal approval of the Allied powers and undoubtedly will be made a part of the general cable treaty which is to be negotiated when the question of allocating the former German cables in the Atlantic had been completed. Japanese in Siberia Though the question of Siberia was upon the agenda of the Conference for treatment in much the same manner as that of China, the problem resolved itself into only two parts, namely, the question of the continued presence of Japanese troops in Russian territory, and that relating to the affairs of the Chinese Eastern Railroad. As regards the evacuation of Japanese troops from Siberia, the Japanese delegation after a lengthy statement as to the reason for the presence of those troops, declared it to be the "fixed and settled policy of Japan to respect the territorial integrity of Russia, and to observe the principle of non-intervention in the internal affairs of that country, as well as the principle of equal opportunity for the commerce and industry of all nations in every part of the Russian possessions." Just so soon as Japan should become convinced that it would be safe to withdraw her forces, the Japanese spokesman declared, those troops would be withdrawn. In reply, Secretary of State Hughes vigorously set forth the attitude of the United States toward any attempt at territorial aggrandizement at the expense of Siberia, reminding Japan that the United States on several previous occasions had indicated its opposition to the continued occupation of Russian territory. 60 Fostered by enterprise, sound policieg and conservative management, the daily reports of Federal Trade Information Service have assumed in ten years the importance of a semi-official gazette, recognized by government departments and by busi- ness interests generally throughout the United States. The Federal Trade Information Service is a complete governmental service, possessing three distinct features. First: The information contained in the daily reports, gathered by expert reporters, telegraphed to New York via private wire, printed with extraordinary speed and furnished to patrons throughout the United States in sealed envelopes as letter mail. 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