OJorncU Hmttcraitjj Hthrarg 3tljara, Sf*ni f nrk W^ ..F. . Willcox-. N 24 '37 QCL 3 /gi ^/ ;^' - y — Cornell University Library JX 1975.L662 Second year book of the League of Nation n 19?4 nn? 416 484 The original of tliis 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/cu31924007416484 [THE UNITED STATES IN THE! COMMONWEALTH of NATIOifJSj League of Nations Second Year Book LEVERMORE m Av ■ BROOKLYN . NEW YORK THE BROOKLYN DAILY EAGLE . 1922 PRICE ONE DOLLAR AJAD FIITY CEN.TS Second Year Book of the League of Nations January 1, 1921 — February 6, 1922 Including the Complete Story of the Washington Conference, With the Complete Texts of Treaties and Agreements, By CHARLES H. LEVERMORE, Ph.D. Secretary of the League of Nations Union and of the New York Peace Society. Member of the American Historical Association, Published by rtie Brooklyn Daily ICagle 198? tOUH.I t l\E>7MZ0 A3 fCt ■iU' members of the Council, the Council asked on February 25 the contending delegations whether they would accept the results of an investigation by an Allied Commission into the conflicting claims to Smyrna and Thrace, and whether, with that exception, they would accept the remaining terms of the Treaty of Sevres.* The answers were not delivered to the Council until March 4, when the Greek Premier stated that the Greek National Assembly had rejected the proposal, and the chief of the Angora delegation, speaking for all the Turks, ac- cepted the proposal of an Allied Commission and accepted the treaty of Sevres, provided the requirements could "be adapted to conditions indispensable to the existence of a free and independent Turkey." This question ended, there- fore, in a deadlock. Efforts by representatives of the Ar- menians and by organizations — missionary and other — in England and the United States to Induce the Council to safe- guf.rd the rights and lives of Armenians in Turkey, failed. No Power was willing to undertake a policy that would have meant coercion of the forces of Kemal Pasha. After the fail- uie of this attempt to make peace between Turks and Greeks, the French Government began informal negotiations with the Turkish Nationalists for an agreement concerning Cilioia (Little Armenia) and the northern boundary of French Syria. International Court in Palestine On February 28 it was announced that, with the sanction of Sir Herbert Samuel, British Commissioner in Palestine, a. Court of Justice for the Jews in that country had been established on February 24. This Court, elected by a conference of rabbis, is to consist of four representatives of the Ashkena- zim (Jews of the German rite) and four of the Sephardim (.lews of the Spanish rite) with a, chief rabbi as the pre- siding officer in . each quartette. Supreme Council GERMAN REPABATIONS~On Tuesday, March 1, a dele- gation from the German Government, headed by Foreign Min- ister Simons, placed before the Council the terms of reparation ♦For text of the treaty of Sevres see Current History tor January, 1921, pp. 164-84. 44 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. payments which it was authoiizert in Berlin to offer as a sub- stitute for the terms proposed at Paris. In substance the German offer was as follows: That the total capital sum which Germany shall pa.\ he fixed definitely. On this amnunt Germany would pay interest and provide a sinking fund, in the usual manner. That the amount of Germany's annual payment as pro- posed in Paris be discounted 8 per cent. That the total amount of Germany's war bill, which is to be payable over a period of thirty years, shall not exceed 50,000,000,000 gold marks, from which shall be deducted the amount Germany already has paid. This is estimated by the Germans to amount to 20,000,000,000 marks. (The Repara- tions Commission's estimate is less than half of this amount.) That the balance of the reparations bill, or 30,000,000,000 gold marks ($7,500,000,000) be funded by an international loan or a series of loans, which would be guaranteed by Ger- man bonds bearing a low rate of interest and be tax free in all countries. Germany would discharge her obligations to the Allies by paying off these loans. (The Allies had demanded a payment of 226,000,000,000 gold marks ($56,500,000,000) in annuities extending over a period of forty-two years.) That amortization of these loans begin five years hence at an initial rate of 1 per cent, which shall increase gradually. That Germany shall pay, in addition to the interest and sinking fund on the loans, an amount not to exceed 1,000,- 000,000 gold marks annually. Part of this would be in kind. That reparation debts not covered by the loan shall bear interest at 5 per cent, to May, 1926, when the Allies and Ger- mans would again confer to adjust the German indebtedness. That Germany accept the principle of the export tax, although the amount of it as fixed by the Allies (12 per cent.) was subject to modification. That Germany help to restore the devastated areas of northern France with German labor and that the cost of this be deducted from the reparations account. Dr. Simons appended to this summary of Germany's offer, of which detailed analyses were given to the Allied Premiers, the stipulation that the Berlin Government would attemptto carry out this program only on two conditions. These were: First, that the plebiscite in Upper SSIesia should result favor- ably to Germany, and second, that German commerce would be freed from existing impediments such as tariff walls and trade regulations. On the following day the financial experts of the Allies submitted to the Council a statement condemning the German proposals, and characterizing them as meriting neither exam- ination nor discussion. 45 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. On Thursday, March 1, Lloyd George on behalf of the Council delivered an ultimatum to the German deleg-ation. He thrust aside their offer as unworthy of attention, and gave them four days in which to accept the Paris terms or make a new offer that would deserve consideration. If no favor- able reply should be forthcoming by Monday, March 7, the Allied forces would occupy Dusseldorf, Duisburg and Ruhrort, on the right bank of the Rhine, the ports of the Ruhr valley, would levy a, sales tax on German goods in Allied countries, and would establish a customs line on the Rhine, all duties collected by the German customs service there to be paid to the Reparations Commission. Duisburg and Ruhrort are vir- tually one community, the largest river port in the world. It handles more than 20,000,000 tons of shipping annually. It is Germany's chief coal center. The speech included a blistering description of the de- struction inflicted by the Germans upon northern France and Belgium. In the latter case he quoted the statement of Governor-General von Bissing, June 19, 1915, that the inten- tion was "to pro-vide that Belgium's recovering industry should not prejudice German industry." Reduced to tabular form, his description of the devastation in northern France is as follows:* Houses destroyed 319,269 Houses partly destroyed 313,675 Factories destroyed (metallurgical, electric, me- chanical) 21,000 Textile factories destroyed 4,000 Alimentary factories destroyed or stripped 4,000 Townships destroyed 16BS Townships three-quarters destroyed 707 Townships half destroyed 1,656 Railways destroyed, kilometers 8,000 Bridges destroyed 5,000 Highways destroyed, kilometers 52,000 Land devastated (about one-half cultivated) acres. 9,386,000 Mines in Northern France, years required to repair 10 Reduced production of these m'nes annually, tons. 21,000,000 •The total amount of French claims, as submitted to the Allied Rep- arations Commission, for material losses sustained in the war and made public March 26, is 218,600,000,000 francs. The official detailed figures received by the French Commission in the United States disclose that over 130,000,000,000 of the total amount represents actual physical dam- age to Industi-y and property In France, including shipping losses while almost 800,000,000,000 comprises the claims for injuries to person's The complete tabulation of France's claims is as follows: 46 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. I. DAMAGE TO PROPERTY (RECONSTITUTION VALUES). Francs (Paper) Industrial damages 38,882,521,479 Damage to houses, &c 36,832,500,000 Loss of furniture and fittings 25,119,500,000 Damage to unbuilt-on land 21,671,546,22f) Damage to State property 1,958,217,193 Damage to public works 2,583,299,425 Other damages 2,359,866,000 Shipping losses 5,009,618,722 Damages suffered in Algeria and colonies 10,710,000 Damages suffered abroad 2,094,825,000 Interest at 5 per cent, on the principal (33,000,000,000 francs. In round figures, between Nov. 11. 1918, and May 1, 1921, or thirty months), say. in round figures. 4,125,000,000 IL INJURIES TO PERSONS. AJllltary pensions and similar compensations 60,045,696,000 Allocations to families of demobilized men 12,963,956,824 Pensions accorded to civilian victims of the war and their dependents 514,465,000 111 treatment inflicted on civilians and prisoners of war. . 1,869,230,000 Assistance given to prisoners of war 976,906,000 Insufficiency of salaries and wages 223,123.313 Exactions by Germany to the detriment of the civilian populations 1,267,616,939 Total of the French claims 218.541,596,120 Lloyd George continued: "On the other hand the houses of Gormany, with comparatively few exceptions in East Prussia, liave sustained no damage. The factories of Germany are quite intact. The moment the war was over, they were free to manufacture their fabrics and to sell them to the world, wliile their rivals had their factories and workshops destroyed and their machinery removed or broken up. Therefore unless reparation is made by Germany it means that the victors will pay the price of defeat and the vanquished will reap the fruits of victory." Lloyd George also attempted to show that Germany had not taxed its people as France and England had done. "The German debt, nominally high, is not even nominally as heavy in percentage to the population as that of Great Britain. Britain during the war raised £3,000,000,000 in taxation to- ward the cost of carrying on the war. Germany made no such effort. "Today her apparently gigantic debt has been reduced almost to the amount of her pre-war liabilities by a process of depreciating her currency. She has nominally imposed very heavy direct taxes on wealth, but every one knows that they are not fully collected. Her indirect taxes, taxes which affect the bulk of the population, are ridiculously low com- pared with Great Britain's." On Monday, March 7, Dr. Simons presented to the 47 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Council revised proposals, the only substantial change being an offer to recognize 100,000,000,000 gold marks- as the total amount of reparations due, but this understanding was to hold good for only five years. At the end of that time, there must be a new agreement. The delegation also asked for time to consult the Berlin Government concerning new indemnity pro- posals, but at the same time the Cabinet at Berlin was re- ported as protesting that already Dr. Simons had exceeded his instructions. The Council rejected this offer also. Consequently on the night of March 7-8, the Allied forces, French, Belgian and English, under the orders of Marshal Foch, moved to occupy the Ruhr Valley ports. The German Government called home its ambassadors to Paris, London and Brussels, and issued a proclamation, say- ing that the Allies were committing an act of violence and de- manding terms impossible of fulfilment. On the 10th of March (he German Government also sent to the League of Nations a protest against the occupation of Its territory, and suggested that the case called for the application of Articles XII and XVII of the Covenant. In the session of the Council on March 9, Lloyd George asked and received from Premier Briand assurances that the occupation of the new territory did not signify any intention on the part of France to annex the territory nor to establish an autonomous Rhineland. The plan to collect a sales tax on German goods in Allied countries broke down before it started. It was intended that the purchaser should pay 50 per cent, of the purchase money to his own government. He would get a Treasury receipt, which he would deliver to the German seller, who would then collect the amount from the German Government. Italy and Belgium objected to the plan, the Italian Foreign Minister declaring- that the Italian parliament would not sanction it. ECONOMIC UNION OF MEMEL WITH LITHUANIA— Sup- posing that Gen, Zeligovski's Government in Vilna had been actually dissolved and superseded by persons directly controlled from Warsaw, the Supreme Council had notified the French Com- missioner in charge of the Memel district under their au- thority to conclude an agreement with the Lithuanian Gov- ernment abolishing customs duties between the district and Lithuania. This decision, announced on March 8, foreshad- owed the assignment of Memel and its territory to Lithuania,, and the making of the river Niemen, in the Memel region, the new frontier between Lithuania and East Prussia. Memel and its territory have a German majority in popu- lation. Protestant in religion, the Memel Germans objected to being placed under Catholic Lithuania, but at various times 48 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. throughout the year 1921, expresed their wish for local inde- pendence like that of Danzig. Meanwhile the city remained under the actual control of the Allies, represented hy the French Commissioner. See Current History for February, 1922, p. 792. TURKEY VS. GREECE^The final session of the Supreme Council was held on Saturday, March 12. In the morning the Council gave to the Turks and Greeks a draft of the proposals for a new treaty to replace the treaty of Sevres. It amounted to a rehabilitation of Turkey, with an army and navy, Thrace internationalized and Smyrna under dual control but with a Greek garrison. The contestants accepted the draft merely for reference to their respective Governmnts. AUSTRIA — In the afternoon the Council listened to the Austrian Chancellor, pleading for long credits in the economic reconstruction of that country. Lloyd George answered with sympathetic regrets that the Allied Powers could not help. It was agreed that reparations claims against Austria should be referred to the Finance Commission of the League of Nations. Conference at Barcelona On the eleventh of March the International Conference on Communications and Transit began its sessions at Bar- celona. M. Gabriel Hanotaux of France was the president. Delegates from thirty-eight nations were in attendance. The representatives of Germany came to act in an advisory capac- ity only. The ch'ef purpose of the conference was to draft interna- tional agreements contributing to tjie settlement of contro- versies over the use of railways, waterways and ports. Persia In February an army and Cabinet revolution in Persia brought into power (February 20) a Government whose policy was strongly Nationalist, and opposed to the domina- tion of Great Britain at Teheran and in southern Persia, as represented by the Anglo-Persian treaty. Thus was finally reversed the policy towards Persia which .began in 1908-9, when Russia and England united to drive out W. Morgan Shuster, the American Finance Minister, who was helping to govern Persia for the benefit of the Persians. The agreement by which those two Powers divided Per- sia between them was ended by the collapse of the Russian Empire. Soviet Russia made assurance doubly sure when it signed a. treaty with Persia renouncing every claim, conces- 49 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. sion and privilese that Russ'a of the Czars had obtained in Persia. The revolution of February, 1921, made it plain that a similar renunciation was due from Great Britain. The new Persian Government demanded economic as well as political .independence for Persia, the departure of all foreign troops (this meant Br:tish soldiers), the abrogation of the Anglo- Persian treaty, a revision of concessions, and an eventual sup pression of capitulations. Reparations On March 16 the Reparations Commission wrote to the German Government, demanding fulfillment of Article 235 of the Versailles Treaty which stipulates that before May 1, 1921, Germany shall pay to the Commission 20,000,000,000 gold marks ($5,000,000,000) to cover the costs of the armies of occupation and of food and raw materials supplied to Ger- many, the balance to go to the reparations account. On Jan- uary 20, 1921, the German Government had claimed that de- liveries alrSady made by Germany were worth 20,000,000,000 gold marks. On February 26 the Reparations Commission had answered that the value of German deliveries was barely 8,000,000,000 gold marks, and had asked how and when the remaining 12,000,000,000 would be forthcoming. On March 14 the German Government had reiterated its former state- ment that nothing more was due. The Reparations Commission now demanded a payment of 1,000,000,000 gold marks before March 23, and the pay- ment of the balance before May 1. It should be noted that these payments were separate in character from the reparations demanded by the Supreme Council on February 29. On March 24 the Reparations Commission notified the memliers of the Supreme Council that Germany had not made the required initial payment of a billion gold marks. The de- fault could, if desired, be made the cause of an application of new penalties on the Rhine frontier. The Commission af- firmed that Germany possessed in France, England and Amer- ica sufficient credits to make this payment, and in addition gold reserves of 2% billions in German banks. The German answer remained unchanged — that Germany didn't owe the , money, but was willing to discuss the matter. Two days later, March 26, Germany refused to give to France the pension funds of the miners in the Saar Valley. Prior to the war, the miners subscribed to a pension fund operated by the German Government. The Versailles Treaty provided that the accrued fund should b« surrendered to 50 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. France, which was to operate the Saar Valley mines until 1935. Up to January 10, 1921, France had paid out 70,000,000 gold marks to miners entitled to pensions. Now it called upon the German Government to hand over the principal of the fund. Germany refused, because: 1. The English and French texts of the treaty differ; therefore there must be an agreement between France and Germany. 2. If Germany surrenders the principal of the fund now, it might be unable to continue the pensions when the Saar Valley reverts to Germany. Meanwhile on March 23 the German Government through Dr. Simons tried to ascertain the feeling of the new Adminis- tration at Washington. This memorandum asserted that Ger- many expected to make reparations up to the limit of her ability, regretted that France would not accept Germany's offer to reconstruct devastated France with German labor and ma- terials,' proposed the funding of all claims against Germany in an international loan, and an examination of Germany's financial and industrial condition by "unbiased experts." It also declared that the weight of debts and damages cannot be laid on the shoulders of any one people, and that a policy of duress and coercion will fail. Secretary HugheS' reply, March 29, said that the United States stands with the Allies "in holding Germany responsible for the war, and therefore morally bound to make repara- tion, so far as may be possible." He advised the resumption of negotiations with the Allies. On the same day the League of Nations received from the German Government a second protest against the occupation of German territory by troops of the Allies, as "a proceeding which is contrary to right and justice." Austrian Reconstruction The financial section of the Finance and Economics Com- mission of the League of Nations met at Paris, March 28-31, to consider what could be done for the financial reconstruction of Austria. This subject was referred to this Commission at the re- cent meeting of the Supreme Council when the British Chan- cellor of the Exchequer announced that the allied powers were prepared on certain conditions to postpone payments due them from Austria under the Treaty of St. Germain, and •On March 21, the Confeaeration Genetale flu Travail for the first time voted to favor the relbuilding of Northern France by imported German labor. Up to this time both French laborers and the French Government had steadily refused to consider such a scheme. 51 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. also payments of capital and interest on advances to Austria for relief. The conditions laid down by the Allies were the adoption by Austria of what is called the Ter Meulen scheme, which was first elaborated at the League of Nations meeting in Ge- neva. Briefly the scheme, which was developed by the Dutch banker Ter Meulen, provides for the issue of gold bonds by Austria on security of national property, such as mines, for- ests, customs revenue, tobacco monopoly, &c., which would be administered under the control of the Financial Committee of the League. The bonds would be held by the lenders as collateral for their advances. As practically all Austria's resources are already mort- gaged the suspension of allied claims is first necessary, and the Commission had to consider in what time such waivers might be secured. Among the creditors is the United States. Another task for the Commission is to show Austria how it can diminish expenses and stop the issue of an inflated currency. The Commission appointed a committee of three to go to Austria and study relief plans. The members are M. Gluck- stadt, a Dane; Sir H. Drummond Fraser, the League "Organ- izer" under the Ter IVLeulen plan, and M. Avenel, a Frenchman. In order to hear the conclusions of this special committee, the Commission met again in London from May 24 to May 31. The Committee's report showed that its plan for stabilizing Austrian currency, and for creating at Vienna an international bank to administer the new financial policy, had been ap- proved by the Austrian Government and party leaders. The Committee recommended that temporary loans be granted to Austria to help her over her present crisis; that a strong bank of issue be built up to retire all existing paper money and to Issue a, new series under proper control, and that a large per- manent loan be fioated. The Committee believed it possible to raise the money required from private sources. Austria can offer as collateral certain resources. There is a prospect of a 4 per cent, mort- gage on all real estate within the republic and of liens on the customs receipts, the tobacco monopoly and perhaps the pro- ceeds of the State forests. The pivot of thQ entire scheme is the bank of Issue. On it will, of course, depend the retirement of the present hope- lessly debased currency and the regulation of new currency. Confidence in its strength and integrity is essential. So it is proposed that about half the capital should be subscribed from abroad, and that due representation on the board should be given to these outside interests. In order to rehabilitate Austria the Committee told the SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Austrians that they must agree to certain things. They must balance their budget, must abolish tlieir food subsidies, must cut down their huge Civil Service and must try to remove the customs barriers which have grown up between Austria and the succession States. In order to halanrf the budget an in- ternal loan will be necessary and if this is raised it will be possible to begin to deflate the paper currency. One essential condition is that the Governments entitled to repax-ations under the Treaty of St. Germain and to the re- payment of loans granted for relief purposes shall postpone their claims for twenty years and that any fresh loans con- tracted during the first five years of that term shall have pri- ority over these liens. Partial assurances that this will be done have been received already from Great Britain, France, Japan and Czecho-Slovakia. Czecho-Slovakia has already signed a trade agreement with Austria by which each State grants to the other the most favored nation treatment, and it is hoped that further prog- ress will be made along that line by all the succession States at their forthcoming economic conferences. The attitude of the United States towards this plan was felt to be of prime importance. The Commission adjourned with the decision to report the plan through the Secretariat to the Council of the League and to the member-States, and with the feeling that, if other nations are willing to help, Austria can be set on its feet again. German Disarmament At the January session of the Supreme Council the Pre- miers authorized a, note to Berlin demanding that Germany turn over the arms still due under the terms of the treaty, that it disarm the fortresses of Kestrin and Lutzenbogen on the Polish frontier, and keep only twenty-two heavy cannon at Konigsberg in East Prus.sia, and that it recognize the list of factories named by the Allies as permitted to manu- facture war material, and give guarantees that war material would not be manufactured in any other factories. The time for compliance was fixed at March 1. On that date the Allied Commission on Disarmament gave Germany one month more. On March 26, the German Government informed the Com- mission that all arms really due had been surrendered, that the Eastern fortresses could not be disarmed on account of the dangerous situation of political affairs in that quarter, and that the rights of the Allies over arms factories in Germany extended only to those named in the list. In conclusion Germany proposed that any of these points that are disputed should be submitted to arbitration. 53 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Russo-Polish Treaty of Peace On March ] 8 at Riga in Latvia was signed the definitive treaty of peace between Russia and Poland. It established, the boundary line between the two countries considerably to the eastward oC the line originally recommended by the Allied Powers. Both nations promised to abstain from propaganda ag-anst each othei-, and to prohibit the use of their territorie'tl by those who would foment hostilities or maintain a hostile propaganda. Poland was released from any share in the debt of the former Russian empire. Russia and Ukraine will pay to Po- land within twelve months 30,000,000 gold rubles. They will also surrender to Poland all war trophies, libraries, archives, collections and other articles of national, historic, and cul- tural value taken from Poland since 177 2. The text of this treaty in English may be found in Current History for June, 1921, pp. 479-490. Upper Silesia On Sunday, March 20, under the supervision of an Inter- Allied Commission there was a plebiscite in Upper Silesia Lo test the sentiment of its people for either Germany or Poland. Under the terms of the plebiscite natives of Silesia resident elsewhere were allowed to vote. Consequently during the pre- ceding days trains from Germany and Poland were crowded with alleged Silesians returning home to vote. It was re- ported that some even returned from America for such a pur- pose. The German organization for retaining Silesia, called the German Defense League, was very active and efficient, for both economic and military service. The League provided 227 special trains to carry 200,000 German Silesians (non-resi- dent) back to their homes free of charge. These travelers also had free board and lodging and payment for lost time. About 60 per cent, of the vote was cast for remaining with Germany, but the vote in the southeastern quarter of Upper Silesia was overwhelmingly in favor of Poland, except in a few cities. This is the quarter containing the most val- uable mines. The Germans therefore could show a nurherical majority in the territory as a whole, but in the disputed dis- trict the greater number of communes voted for Poland, Under the treaty the plebiscite was not decisive, but was held to furnish information to the Supreme Council, which has the final word, and which is to take into consideration geo- graphical, political and economic, as well as ethical condi- tions. Pendng action by the Supreme Council, Poles and Ger- mans both armed themselves to overrun Upper Silesia aftev 54 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the plebiscite. The Polish member of the Inter-Allied Plebis- cite Commission, Adelbert Korfanty, announced a line of demarcation between Polish and German Silesia which he would accept, and, in order to secure the line, called out an army which he had been preparing for perhaps a year. Within three days after the plebiscite these troops had crossed the border. The Germans were not slow to use simi- lar methods, each side hoping to show the Supreme Council a fait accompli. The examples of d'AnnunziD in Fiume and Zeligovski In Vilna were not forgotten. On March 24 the Intei'-Allied Commission, whose seat was at Oppeln, well within the German portion of Upper Silesia, proclaimed martial law in three districts within the southeastern or Polish quarter. The troops under command of the Commission were Italian, French and British. Trade with Riissia On the 16th of March was signed at London an Anglo- Russian trade agreement, which was, in effect. Great Britain'.-; recognition of the Soviet Republic as a de facto government. Mr. Lloyd George admitted that In the House of Commons on March 22. The two parties agreed to refrain from propa- ganda against each other, to lift the blockade, remove mine fields, give British and Russian shipping the usual mutual privileges and immunities, admit trade representatives, ap- point official agents (the phrase seems to have been used to .avoid the word "consuls"), renew postal, telegraphic and wireless communications, to resume trade at once and con- tinue it provided the English Courts do not move to attach Russian consignments "on account of obligations incurred by the Russian Soviet Government or by any previous Russian Government before the date of the signature of this agree- ment." The preamble of the agreement spoke of it as pre- liminary to "a formal general Peace Treaty." The Russians had but little trade to offer. They were, eager for recognition, and England was the only Western Power except Germany that had bestowed it. The text of this agreement is In Current History for May, 1921, pp. 257-260. The next move was to ask the United States for a similar resumption of trade relations. This was done in a note, dated March 20, signed by Kalenln, president of the Central Execu- tive Committee of Soviet Russia, and forwarded to Wash- ington through Litvinov, Soviet Minister to Estonia at Reval. In this note the Soviet leaders say that they desired and ex- pected to see "Intimate and solid ties" created between the two republics. Even when American soldiers had joined in the war on Russia, the Soviet Republic had treated them 55 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. kindly in the "hope of a speedy change of America's policy • toward her." President Wilson was increasingly hostile Co Russia. Soviet Russia hopes that now the wall between the two peoples may be removed. "The Soviet Republic, entirely absorbed in the work of internal reconstruction and of building up its economic life, , h&,s no intention of intervening in the internal affairs of America, and the All-Russian Central Executive Committea makes herewith a categorical declaration to this effect." Soviet Russia has made treaties with numerous States (Turkestan and the Caucasian Republics, vassals of Russia, j Afghanistan and Persia, Turkey (Kemal Pasha), Finland, ' Bsthonia, Latvia, Lithuania, Poland, Germany and England)." Russia therefore "proposes to send a special delegation to America which will negotiate upon this matter with the American Government in order to solve the question of busi- ness relations and of resumption of trade between Russia and :\ America." Mr. Hughes replied on March 25, rejecting the Soviet Droposals. Following is the text of the note: "The government of the United States views with deep sympathy and grave concern the plight of the people of Rus- sia and desires to aid by every appropriate means in pro- moting proper opportunities through which commerce can be established upon a sound basis. . "It is manifest to this government that in existing cir- , cumstances there is no assurance for the development o[ trade, as the supplies which Russia might now be able to ob- tain would be wholly inadequate to meet her needs, and no lasting good can result so long as the present causes of pro- gressive impoverishment continue to operate. "It is only in the productivity of Russia that there is a,ay hope for the Russian people, and it is idle to expect resump- tion of trade until the economic bases of production are se- curely established. Production is conditioned upon the safety of life, the recognition of firm guaranties of private property, the sanctity of contract, and the rights of free labor. "If fundamental changes are contemplated involving due regard for the protection of persons and property and the establishment of conditions essential to the maintenance of commerce, this government will be glad to have convincinii evidence of the consummation of such change?, and until this evidence is supplied this government is unable to perceive that there is any proper basis for considering trads rclalion.s." 56 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Stviffs Protection The treaty of Vienna in 1815 created a, ututral military zone for the protection of Switzerland on its western frontier, and also two small zones in French territory north and sout;i of Geneva within which customs duties between France and Switzerland are eliminated. The French Government notifloi Switzerland that under the Treaty of Versailles there is no longer any reason for these special privileg-es, and that the French customs line must be extended to the French frontier. Switzerland strenuously objected to the abolition of the free trade zones, although willing that the neutral military zone should, be abandoned. Red Cross Congress At the International Red Cross Congress at Geneva March 30, French and Belgian delegates would not atteml, because Germany was to be represented. The reasons given for abstention were that Germany broke the pre-war Geneva convention by bombing hospitals, poisoning wells, and by being the first to use poison gas; tliat Germany had given no evidence of repentance, and that the International Red Cros-; Committee had failed to call Germany to account for its of- fenses. On April 5 the congress approved proposed addi- tions to the Hague Convention on the laws of war, with es- pecial reference to the protection of civilians. First — Absolute prohibition of the use in any way of gas in warfare. Second — Limitation of aerial war to military objects, in order to preserve civilians from the effects of this new method of war and avoid useless destruction. Third — Strict application of Article XXVI of the rules of land war, according to the second Hague Conference. Strict application is also recommended of Articles I and VI of the convention relating to naval bombardments and prohibiting the bombardment of all undefended places. Sweden and Denmark joined in proposing the removal of children, the sick and the aged from an area in the case of an economic blockade. The assembly considered this pro- posal difficult of accomplishment. First Attempt of Charles of Habsburg to Take the Hungarian Throne On Saturday, March 26, the former Emperor Charles of Austria left his refuge in Switzerland and went to West Hun- gary, where during the following days he met friends with, 57 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. whom he hoped to enter Budapest and regain the Hungarian crown. The Allied Powers, speaking through the Council of Ambassadors, promptly informed, April 1, the Allied High Commissioner at Budapest, the Hungarian delegation in Paris and the Governments of Poland, Czecho-Slovakia, Rumania and Yugo-Slavia "that the restoration of the Habsburgs would imperil the very foundation of peace, and thai it could oe neither recognized nor tolerated." This warning was a repetition of a similar message from the Council of Ambassadors to the Government and people of Hungary on February 4, 1920. The three nations in the Little Entente began to mobilizo their armies on the Hungarian border, and assured Regent Horthy that these soldiers would cross the frontier if Charles were restored to his throne. Charles stayed in Hungary ten days, and talked with Regent Horthy In Budapest for three hours. April 6 he re- turned to Switzerland, and left behind him this message: "His Majesty leaves the country because of his convic- tion that the moment has not yet come for him to take hi.^ right of governing. He cannot permit maintenance of his right to cause disturbances in the present state of peace. He leaves the land as the crowned King of Hungary." Question was raised whether Switzerland could continue to afford a refuge for Charles. On April 13 the Hungarian Government informed the Swiss Federal Council that Hungarv regarded Charles as its lawful sovereign, prevented by "for- eign influences" from the possession of his rights. It there- fore requested the Swiss Government to permit Charles to reside permanently in Switzerland. Customs on the Rhine April 1 and 2 the Council of Ambassadors approved a plan, submitted by experts, for the collection of customs along the boundaries of the lands under the Rhineland High Com- mission. The principle of the scheme would compel all goods coming from unoccupied Germany into occupied Ger- many to bear the German export duty in gold, and all goods going in the reverse direction to bear the German import duties in paper marks. At the same time the French Government increased its tariff on manufactured goods imported from Germany by rates varying from 100 to 30 per cent. Mandates and the Island of Yap On April 2 Secretary Hughes addressed to the Govern- ments of Great Britain, France, Italy and .Japan a. note con- SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. cerning the necessity of consulting his Government about man- dates and especially about the status ot the island of Yap. The note for the most part merely restated and reaflBrmed the contentions of Secretary Colby on those subjects in his note of February 21 to the Council of the League of Nations. Mr. Hughes, however, did not allude to Turkish and Meso- potamian affairs. The new feature in Secretary Hughes' note was the quotation of a memorandum sent by President Wilson to the State Department on March 3, 1921. This memoran- dum disclosed Mr. Wilson's flat denial that he had ever con- sented to the assignment of Tap to Japan. He declared that he had made specific reservations regarding Yap while at- tending the sessions of the Big Pour at Paris in the Spring of 1919, that he had taken the position that Yap should not be assigned under mandate to one power, but should be interna- tionalized for communication purposes, that he had never abandoned or modified that position and that he considered consent of the United States essential both as to the assign- ments of mandates and the terms and provisions of the man- dates. A summary of previous American-Japanrs? corresponil- ence about Yap and the full text of the Japanese note of February 2 6, 1921, appeared in the New York papers of Apri) 3 9, 1921. The Japanese note argues at length that the assign- ment of Yap as a mandated area to Japan by the Supreme Council, May 6-7, 1919, was valid and final, but says nothing about control of cables, which is the chief object of American interest. The French Government replied to Secretary Hughes' not*" on April 7, and enforced the American contention by testify- ing that, in Council meetings prior to the meeting of the Su- preme Council on May 7, 1919, President Wilson and Secretary Lansing had, in the presence of Baron Makino ot Japan, for- mulated "categorical reservations concerning the island of Yap, and that Baron Makino had interposed no objection to the discussion of the matter. The French note went on to say that no decision on the status of the mandate over Yap could be reached before the next meeting of the Supreme Council, but at that time France would hope for "a solution which will give every satisfaction to the United States." International Educational Conference On behalf of the Pan-Pacific Union the United States Department of State issued, April 3, to all nations bordering on the Pacific Ocean, recognized by this Government, an invi- tation to attend the first Pan-Pacific Educational Conference 59 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. at Honolulu, August 11-21, 1921. The United States Commis- sioner of Education is the Director of the Congress. Mexico and Siberia are the only Pacific States not now recognized by the United States, and an unofficial invitation was sent to Mexico. Invitations were sent by the Union to universities and boards of education in the same nations. The program will include, but not be entirely confined to, the following subjects: "A presentation of educational conditions in each country; "A presentation and discussion of the possibilities and needs of education in the several countries, viewed from the standpoint of their civilization, their form of government, their productive activity and natural resources; "A discussion of the forms of organization of school and other educational agencies to meet these cond'tions and minis- ■ ter to these needs; "A discussion of support of education, including sources and methods of taxation." President Harding's Association of Nations In President Harding's inaugural address on March 4, 1921, his international peace policies were thus summarized: "We are ready to associate ourselves with the nations ol the world, great and small, for conference, for counsel, to seek the expressed views of world opinion, to recommend » way to approximate disarmament and relieve the crushing burdens of military and naval establishments. . . In trans- lating humanity's new concept of righteousness, justice, and its hatred of war into recommended action we are ready most heartily to unite, but every commitment must be made in the exercise of our national sovereignty." On April 6 Premier Hughes delivered in the Australian parliament an outspoken utterance concerning the relations between Great Britain, Japan and the United States. Having in mind the coming Imperial Conference of Dominion Pre- miers in London, he boldly said that it the Anglo-Japanese Alliance were renewed it must be with the approval of the United States. These were his woi-ds: "It is the bounden duty of Australia to use every means at her disposal to effect such a modus vivendi as will secure ii renewal of the Anglo-Japanesi- treaty in a form agreeable to the United States. Wiiether she is a party to it or not, is not so material so long as she accepts it and does not regard the renewal of it as being in Itself a hostile act by Britain directed against herself. While making every effort to retain the friendship of Japan, we cannot make an enemy of the United States. Nor can Britain do so. I see no reason why the 60 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. treaty should not be renewed in a form which would be satis- factory not only to the empire and Japan but to America as well. An uninterrupted era of peace is impossible to contem- plate while the world is resounding with the clang of naval construction. "The most powerful agency for the world's peace today is the British Empire. The hope o£ the future peace of the world seems to lie in some understanding- — call it what you will — between America, England and France. The League of Nations is an unwieldy, clumsy contrivance. There is only one way to prevent war and that is for the world to turn its back upon it." On April 12 President Harding's first message to Congre?i outlined comprehensively what his administration hoped to do. These are the essential paragraphs: "Nearly two and a. half years ago the World War came to an end, and yet we find ourselves today in a technical state of war, though actually at peace, while Europe is at technical peace, far from tranquillity and little progressed toward thi? hop:d-for restoration. It ill becomes us to express impatience that the European belligerents are not yet in full agreement when we ourselves have been unable to bring constituted authority into accord in our own relation to the formally proclaimed petice. Little avails in reciting the causes of delay in Europe of our own failure to agree. But there is no longer excuse tor uncertainties respecting some phases of our foreign relation- ship. In the existing League of Nations, world governing with its superpowers, this republic will have no part. There can be no misinterpretation, and there will be no betrayal of the deliberate expression of the American people in the recent election; and, settled in our decision for ourselves, it is only fair to say to the world in general, and to our associates in war in particular, that the League Covenant can have no sanc- tion by us. The aim to associate nations to prevent war, preserve peace, and promote civilization our people most cordially ap- plauded. We yearned for this new instrument of .justice, but we can have no part in a committal to an agency of force in unknown contingencies; we can recognize no super-authority. Manifestly the highest purpose of the League of Nations was defeated in linking it with the Treaty of Peace and mak- ing it the enforcing agency of the victors of the war. Inter- national association for permanent peace must be conceived solely as an instrumentality of justice, unassociated with the passions of yesterday, and not so constituted as to attempt the dual functions of a political instrument of the conquerors and of an agency of peace. There can be no prosperity for the 61 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. fundamental purposes sought to be achieved by any such association so long as it is an organ of any particular treaty, or committed to the attainment of the special aims of any nation or group of nations. The American aspiration, indeed, the world aspiration, was an association of nations, based upon the application of justice and right, binding us in conference and co-operation for the prevention of war and pointing the way to a, higher civilization and international fraternity in which all the world might share. In rejecting the League Covenant and uttering that re- jection to our own people, and to the world, we make no sur- render of our hope and aim for an association to promote peace in which we would most heartily join. We wish it to be conceived in peace and dedicated to peace, and will relinquish no effort to bring the nations of the world into such fellow- ship, not in the surrender of national sovereignty, but rejoicing in a nobler exercise of it in the advancement of human activi- ties, amid the compensations of peaceful achievements. In the national referendum to which I have adverted wr pledged our efforts toward such association, and the pledge will be faithfully kept. In the plight of policy and perform- ance, we told the American people we meant to seek an early establishment of peace. The United States alone among the Allied and Associated Powers continues in a, technical state of war against the Central Powers of Europe. This anomalous condition ought not to be permitted to continue. To establish the state of technical peace without further delay, I should approve a declaratory resolution by Congress to that effect, with the qualifications essential to protect all our rights. Such action would be the simplest keeping of faith with ourselves, and could in no sense be construed as a desertion of those with whom we shared our sacrifices in war, for these Powers are already at peace. Such a resolution should undertake to do no more than thus to declare the state of peace, which all America craves. It must add no difficulty in effecting, with just reparations, the restoration for which all Europe yearns, and upon which the world's recovery must be founded. Neither former enemy nor ally can mistake America's position, because our attitude as to responsibility for the war and the necessity for just reparations already has had formal and very earnest expression. It would be unwise to undertake to make a statement of future policy with rrspect to European affairs in such a decla- ration of a stale of peace. In correcting the failure of the Executive, in negotiating the most important treaty in the history of the nation, to recognize the constitutional powers of the Senate we would go to the other extreme, equally objec- 62 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tionable, if Congress or the SVnate should assume the function of the Executive. Our highest duty is the preservation of the constituted powers of each, and the promotion of the spirit of co-operation so essential to our common welfare. It would be idle to declare for separate treaties of peace with the Central Powers on the assumption that these alone would be adequate, because the situation is so involved that our peace engagements cannot ignore the old world relation- ship and the settlements already effected, nor is it desirable to do so in preserving our own rights and contracting our future relationships. The wiser course would seem to be the acceptance of the confirmation of our rights and interests as already provided and to engage under the existing treaty, assuming, of course, that this can be satisfactorily accomplished by such explicit reservations and modifications as will secure our absolute free- dom from inadvisable commitments and safeguard all our essential interests. Neither Congress nor the people need my assurance that a request to negotiate needed treaties of peace would be as superfluous and unnecessary as it is technically ineffective, and I know in my own heart there is none who would wish to embarrass the Executive in the performance of his duty when we are all so eager to turn disappointment and delay into gratifying accomplishment. Problems relating to our foreign relations bear upon the present and the future, and are of such a nature that the all- important future must be deliberately considered with greater concern than mere immediate relief from unhappy condi- tions. We have witnessed, yea, we have participated in, the supremely tragic episode of war, but our deeper concern is in the continuing life of nations and the development of civili- zation. We must not allow our vision to be impaired by the con- flict among ourselves. The weariness at home and the dis- appointment to the world have been compensated in the proof that this republic will surrender none of the heritage of nationality, but our rights in international relationship have to be a.sserted; they require establishment in conipact.=i of amity; our part in readjustment and restoration cannot be ignored and must he defined. With the supergoverning league definitely rejected and with the world so informed, and with the status of peace proclaimed at home, we may proceed to negotiate the cove- nanted relationships so essential to the recognition of all the rights everywhere of our own nation and play our full part in joining the peoples of the world in the pursuits of peace once more. 63 SECOND VEAR BOOK OF THE LEAGUE OF NATIONS. Our obligations in effecting European tranquillity because of war's involvements, are not less impelling than our part in the war itself. This i-estoration must be wrought before the human procession can go onward again. We can be helpful because we are moved by no hatreds and harbor no fears. Helpfulness does not mean entanglement, and participation in economic adjustments does not mean sponsorship for treaty commitments which do not concern us, and in which we will have no part. In an all-impelling wish to do the most and best for our own Republic and maintain its high place among nations, and at the same time make the fullest offering of justice to them, I shall invite in the most practical way the advice of the Sen- ate, after acquainting it with all the conditions to be met and obligation to be discharged, along with our own rights to be safeguarded. Prudence in making the program and confident co-opera- tion in making it effective cannot lead us far astray. We can render no effective service to humanity until we prove anew our own capacity for co-operation in the co-ordination of powers contemplated in the Constitution, and no covenants which ignore our associations in the war can be made for the future. More, no helpful society of nations can be founded on justice and committed to peace until the covenants re-estab- lishing peace are sealed by the nations which were at war. To such accomplishment — to the complete re-establish- ment of peace, and its contracted relationships, to the realiza- tion of our aspirations for nations associated -for world help- fulness without the world government, for world stability on which humanity's hopes are founded, we shall address our- selves, fully mindful of the high privilege and the paramount duty of the United States in this critical period of the world." Reparations May 1 was the final date fixed by the treaty for the de- cision of the Reparations Commission concerning Germany's payments. On April 12 the Commission completed a month of sessions with German experts, and announced that it would now prepare the final bill for indemnities and would present it to Berlin on the 30th. According to the reports submitted lo the Commission, the internal debt of Germany is 4,178 marks paper a head; that of France 5,353 francs paper a head. The external debt of Germany is 40 marks paper a head, and France 2,102 francs paper a. head. This means that Germany's external debt is practically nothing. France is paying taxes at the rate of 548 francs a head; 64 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Germany 478 marks a head. On a gold basis the Frenchman is paying Ave times the taxes the German does. The Reparations Commission's information shows that the German railroads with 40 per cent, less traffic than before the war have 300,000 more employes, and the Commission es- timates that the German Government could save 2,000,000,000 marks annually in the operation of the railroads if it wished to. The Germans at first claimed that shipping to the amount of 4,600,000 tons gross had been surrendered under the treaty, the value being estimated at 7,000,000,000 gold marks. After- wards they admitted that the correct amount was 2,100,000 tons gross. The total gold holdings of the Reichsbank in Berlin, on April 15, were 1,091,598,000 marks. The prosperity of Germany is evidenced by the fact that bank deposits in 1920 increased 50 per cent, over those of the preceding year. The Commission estimates that in 1922 Ger- many will have available 3,800,000 tons of shipping, not count- ing ships flying neutral flags but owned by German firms. In the last year German companies have increased their capi- tal 400,000,000 marks. Dividends of 20 to 100 per cent, are common, although often camouflaged in accounting. The disarray of the German Government's affairs — a dis- array which the French charge is largely intentional — causes budget expenditures of 110,000,000,000 marks with revenues of only 40,000,000,000. The Reparations Commission esti- mates that the German wealth of 350,000,000,000 marks be- fore the war has not materially decreased. These are a, few of the figures on which the Reparations Commission will base its demands upon Germany. The Coni- mission has no power to enforce collection, but that duty will fall upon the Allied Governments. The Commission will re- main a banking institution for handling indemnity paymients. On April 12 also Premier Briand announced, as an ulti- matum, that unless by May 1 Germany accepted uncondi- tionally the terms approved by the Allies at Paris and Lon don, French troops would occupy the whole Ruhr valley, act ing alone, if necessary. On April 20 the German Chancellor and Foreign Min- ister sent to President Harding a request that he should act as an umpire upon the reparations question. The next day Secretary Hughes for the President declined the invitation. The German Appeal Berlin, April 20, 1921. In the name of the German Government and the German people, the undersigned, notwithstanding the still existing 3 65 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. technical state of war, respectfully petition the President of the United States of America to mediate the reparations ques- tion and to fix the sum to be paid by Germany to the Allied Powers and eagerly urge him to secure the consent of the Allied Powers to such mediation. They solemnly declare that the German Government are ready and willing to agree, without qualification or reserva- tion, to pay to the Allied Powers as reparation such sum as the President after examination and investigation may find just and right. They formally pledge themselves to fulfill in letter and spirit all the provisions of any award that may be made by him. With abiding faith in the righteousness of this request and with undeniable sincerity of purpose the German peo- ple, through their constituted Government, submit their ap- peal to the President of the United States with the confident hope that it be granted to the end that a. final award may be made in accordance with right and justice to meet the heartfelt wishes of all civilized nations, to avoid the im- measurable consequences of imminent coercive measures and to promote the peace of the world. (Signed) FBHKBNBACH. SIMONS. The American Reply Washington, April 21, 1921. This Government could not agree to mediate the question of reparations with a view to acting as umpire in its settle- . ment. Impressed, however, with the seriousness of the issues Involved, as they affect the whole world, the Government uf the United States feels itself to be deeply concerned with the question of obtaining an early and just solution. This Gov- ernment strongly desires that there should be an immediate resumption of negotiations and reiterates its earnest hope that the German Government will promptly formulate such proposals as would present a proper basis of discussion. Should the German Government take this course, this Government will consider bringing the matter to the atten- tion of the Allied Governments in a manner acceptable to them in order that negotiations may speedily be resumed. On the 22d of April the German Government, In a. note to the British Government, elaborated its proposals to re- construct the devastated French territories, the cost ot such work being credited to Germany in the reparations account. The essential portions of the plan are as follows: 66 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "(1) Germany could undertake the reconstruction of specified town localities or villages, or of such specified por- tions of the territory to be reconstructed as migrht be con nected with each other, taking over the entire course either as a State undertaking or by directing the work of interna tional colonizing and settlement associations. In that event the experience gained by Germany during the reconstruction of devastated territory in East Prussia would be of special assistance. Germany will refrain from explaining this pro- posal more in detail at present, as the fundamental idea has. up to the present, met with objections on the part of the Allied Governments. "(2) Germany is further willing, apart from, the method of settlement suggested under Section I, to place at the dis- posal of the Allied Governments immediately all assistance for the reconstruction of the devastated regions in Northern France and Belgium. The German industries have resolved to offer the following services: To undertake at once in the devastated territories, on being informed of the detailed wishes of the Allied Governments, the work of clearing the ground and of afforestation; to repair and rebuild brickwork, and also to build works for the production of chalk, plaster, cement, &c., in territories to be reconstructed; to deliver on request machinery and appliances connected with the ob- taining and preparation of raw materials for building in ex- istence on the spot, and, in addition to this, to deliver German building materials and requisites from Germany; to make arrangements that all appliances and machinery required for building purposes not existing in the reconstruction territory should be obtained from Germany if necessary, including such building materials as are requisite for first installation; to begin immediately with a plan for building construction of all kinds, at least 25,000 wooden houses (dwelling houses), these to be erected before the beginning of the cold season, with a view to coping with the extraordinary housing shortage in the devastated districts. In addition, provision of fittings — for example, furniture, stoves, &c. — and the execution of deep and shallow excavations of all kinds, according to plans and under control of the French authorities. "Whether this construction is to be carried out by con- tract of the French or German Government, by public con- tract or private, or by means of all three methods. Is to be decided according to the wishes of the Allied Governments. "The German Government is prepared, on the basis of this proposal, to enter into arrangements with German build- ing laborers' organizations, also organizations of foremen and ojBcials, and guarantees that members of these organizations 07 SECOND YEAR BOOK OF TH E LEAGUE OF NATIONS. are ready by their labor to co-operate in the reconstruction of the devastated districts." The Gei-man note then specifies the i'acilities it is pre- pared to offer to persons whose property has been ruined for the rapid reconstruction of their houses and landed property and proceeds: The Government is ready to take over the entire cost of such buildings as far as it can be made in paper marks, to be reckoned against the reparations account, while payment of expenditure which has to be met in foreign currency is re- served for further arrangement. Should the Allied Govern- ments desire the co-operation of the German Government in the work of reconstruction to be given in any other form than that proposed, the German Government is prepared thor- oughly and conscientiously to examine any suggestions made by the Allies, and any proposal which may be made, and to consider them with a view to co-operation in the work of re- construction, corresponding to the wishes of the Allies. Relying upon the last sentence in Secretary Hughes' note of April 21, the German Minister drafted a, new offer and sub- mitted it to Washington on April 24. The note proposed the payment of an ultimate total indemnity of 50,000,000,000 gold marks present value, or of 200,000,000,000 gold marks ($48,- 000,000,000), at intervals in a period of years and in an- nuities suited to German capacity for production. The Allies at Paris had demanded 226,000,000,000 gold marks ($54,- 200,000,000), plus 12 per cent, of the value of German exports. Germany also offered to place 1,000,000,000 gold marks at the disposal of the Reparations Commission, to co-operate in the restoration of the devastated regions, to assume the Allied obligations to the United States, and to issue an inter- national 4 per cent, loan for the benefit of the Allies. Ger- many also made conditions: that the present penalties be immediately discontinued; that Germany be freed from "un- productive outlays" now imposed upon it; that German com- merce be free; and that upon the acceptance of these pro- posals Germany's other obligations be annulled and all Ger- man private property in foreign countries be released. On April 21 the Reparations Commission had asked the German Government to transfer the gold reserve from the Reichsbank in Berlin to Cologne or Coblenz, where it would be within reach of the Allies. On the next day the German Government refused 1o do it. On the 25th the Reparations Commission informed the German Government that, in view of the latter's failure to comply with Article 235 of the Treaty, Germany must, on or before April 30, deposit 1,000,000,000 gold marks (nine-tenths of that gold reserve) in the Bank of France. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. On April 27 the Reparations Commission definitely an- nounced the sum of 132,000,000,000 gold marks ($32,872,- 500,000) as the total damages for which reparation is due by Germany under Article 233, second paragraph, and Annex 1. Part 8, of the Treaty of Versailles. In fixing the total, the Reparations Commission made necessary deductions from the amount of the damages in or- der to allow for restitutions effected or to be effected in the execution of Article 238, and consequently no credit will be allowed Germany with respect to such restitution. The Com- mission did not include in the above amount the further ob- ligations incumbent upon Germany by virtue of Article 232, "to make reimbursement of all sums Belgium borrowed from the Allied and Associated Governments up to November 11. 1918, together with interest at the rate of 5 per cent." Included in the various categories for which compensa- tion is demanded are damages suffered from bombardments, cruelty, violence or maltreatment, all pensions to naval and military victims, the cost of assistance by the Allied powers to prisoners of war and their families and dependents, allow- ances for similar purposes, and all levies, fines and other ex- actions imposed by Germany and her Allies upon civilian populations. On April 30 the Commission informed Germany that as 12,000,000,000 gold marks of the twenty billions that accord- ing to the Treaty must be paid by May 1 are still unpaid, the total amount of reparation must be 144 billions instead of 132 billions. The Commission also demanded that all investments of the German Government or of German private citizens in oil wells and mines in Russia, Austria, Hungary, Bulgaria and Turkey be, in accordance with Article 260 of the Treaty, sur- rendered to the Commission and placed at the disposal of the Allies. Supreme Council and Reparations During the last week in April the French and British Premiers held preliminary conferences at Lympne, England. On Saturday, April 30, the full Supreme Council was con- vened, and its sessions lasted until May 5. The Council met to consider the means of enforcing de- mands for reparation payments, including a possible military occupation of the whole Ruhr valley. It was agreed that the total amount fixed by the Reparations Commission should be substituted for the amount that had been named by the Council Itself at Paris and London. May 2, Secretary Hughes, after Informal conferences 69 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. with the Allies, told the German Government that the United States did not find the German proposals of April 24 to be adequate or acceptable to the Allies. He therefore advised the German Government "to make directly to the Allied Gov- ernments clear, definite, and adequate proposals, which would in all respects meet^its just obligations." This note caused the fall of the Fehrenbach-Simons Min- istry in Germany, May 4, and the formation of a new Cabinet, headed by Dr. Julius Wirth (Center Party) as Chancellor and Acting- Minister of Foreign Affairs. The Supreme Council, on May 3, agreed to give Germany until May 13 (and this was a British triumph) to decide whether to accept the repara- tions terms as stated by the Rep.arations Commission. These terms would be newly embodied In a protocol and delivered to the Germans not later than May 6. It also agreed that mobilization of troops to seize the Ruhr valley might begin at once (and this was a French triumph). The possible seizure of Hamburg, Bremen and Lubeclc was placed on the program. INVITATION TO UNITED STATES— The Council agreed on May 3, and voted on May 4, to invite the United States to be represented in all future conferences of the Allied Pow- ers, in the Ambassadors' Council at Paris and on the Repara- tions Commission. The Council also considered the other items, particu- larly disarmament and the trial of war-culprits, in which Germany was regarded as avoiding or thwartingthe enforce- ment of the terms of the Treaty. The Council finally approved and on May 5 signed an ul- timatum which was immediately given by Lloyd George him- self to the German Ambassador in London, Dr. Sthamer. This was the text: "The Allied Powers, taking note of the fact that despite the successive concessions made by the Allies since the sig- nature of the Treaty of Versailles, and despite the warnings and sanctions agreed upon at Spa and Paris, as well as of the sanctions announced at London and since applied, the German Government is still in default in fulfillment of the obliga- tions incumbent upon it under the terms of the Treaty of Ver- sailles as regards: "First, disarmament;* "Second, the payment due May 1, 1921, under Article 235 of the Treaty, which the Reparations Commission already has called upon it to make at this date: •Lloyd George said that there were still 500 or 600 guns of various sizes to be surrendered; the rifles and artillery of the Binwohnerwehr in Bavaria and East Prussia, who had not yet been disbanded. 70 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "Third, the trial of war criminals, as further provided for by the Allied* notes of February 13 and May 7, 1920, and, "Fourth, certain other important respects, notably those which arise under Articles 264 to 267, 269, 273, 321, 322 and 327 of the Treaty, "Decide: "(A) To proceed from today with all necessary prelim, inary measures for the occupation of the Ruhr valley by Allied troops on the Rhine, under the conditions laid down. '.'(B) In accordance with Article 235 of the Versailles Treaty, to invite the Allied Reparations Commission to notify the German Government without delay of the time and meth- ods for the discharge by Germany of her debt, and to an- nounce its decision on this point to the German Government by May 6, at the latest. "(C) To summon the German Government to declare categorically within six days after receiving the above de- cision its determination (1) to execute without reservation or condition its obligations as defined by the Reparations Com- mission; (2) to accept and realize without reservation or con- dition in regard to its obligations the guarantees prescribed by the Reparations Commission; (3) to execute without reserva- tion or delay measures concerning military, naval and aerial disarmament, of which Germany was notified by the Allied nations in their note of January 29; those measures in the execution of which they have so far failed to comply with are to be completed immediately, and the remainder on a date still to be fixed; (4) to proceed w^ithout reservation or delay to the trial of war criminals, and also with other parts of the Versailles Treaty which have not as yet been fulfilled. "(D) To proceed on May 12 with the occupation of the Ruhr valley, and to undertake all other military and naval measures, should the German Government fail to comply with the foregoing conditions. This occupation will last as long as Germany continues her failure to fulfill the condi- tions laid down." At the same time about 100,000 soldiers, French, Belgian and British, were concentrated around Dusseldorf ready to seize the whole Ruhr valley without an hour's delay. The ultimatum was accompanied by the promised prot- ocol from the Reparations Commission, prescribing times and modes for discharging all financial obligations (Cf. Cur- rent History, June, 1921, pp. 372-376). Briefly summed up in term of dollars, Germany was required to pay $487,000,000 •The Allies had agreed that the aoouaed persons might be tried by th« Germans themselves in the High Court of Leipsic, but nothing had been done, and some of the offenders had been allowed 'to leave Ger- many. 71 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. annually to the Allies, also a sum equivalent to 25 per cent, of the value of Germany's exports, until the total payments have amounted to $33,750,000,000. In recognition ot the deht. Germany is to issue 5 per cent, bonds, some by July 1, some in November, and afterwards as directed by the Reparations Commission. The Commission, on May 28, named a Committee on Guarantees, representing all Great Powers, to have charge of all German payments. A place on this Committee was re- served for the United States. The New German Chancellor, Dr. Wirth, submitted the ultimatum to the Reichstag on May 10, which accepted its terms by a vote of 221 to 175. On the following day the German submission to the Al- lied terms was delivered to Lloyd George. These were its essential words: "The German Government is fully resolved, "First, to carry out without reserve or condition its obli- gations as defined by the Reparations Commission; "Second, to accept and carry out without reserve or con- dition the guarantees in respect to those obligations pre- scribed by the Reparations Commission; "Third, to carry out without reserve or delay the meas- ures of military, naval and aerial disarmament notified to the German Government by the Allied Powers in their note of January 29, 1921, those over due to be completed at once and the remainder by the prescribed date; "Fourth, to carry out without reserve or delay the trial of war criminals, and to execute the other unfulfilled portions of the treaty referred to in the first paragraph of the note of the Allied Governments of May 5." The United States Re-enters the Supreme Council On May 6 Secretary Hughes accepted the invitation from the Supreme Council, sent on May 5 by Lloyd George through the British Ambassador at Washington. This was the text of the acceptance: "The Government of the United States has receive't through the British Ambassador the courteous communication in which you state that, with the unanimous concurrence of the Powers represented at the Allied Conference in London, you are to inquire whether this Government is disposed to be represented in the future, as it was in the past, at the Allied conferences, at the conferences of ambassadors in Paris and on the Reparations Commission. "The Government oC the United States, while maintaining the traditional policy of abstention from participation in mat- 72 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ters of distinctly Kuropean concern, is deeply interested in the proper economic adjustments and in the just settlement of the matters of world wide importance which are under discussion in the conferences and desires helpfully to co-operate in the deliberation upon these questions. "Mr. George Harvey, appointed Ambassador to Great Britain, will be instructed on his arrival in England to take part as the representative of the President of the United States in the deliberations of the Supreme Council. The Amer- ican Ambassador to France will be instructed to resume his place as unofficial observer on the Conference of Ambassadors, and Mr. Roland W. Boyden will be instructed to sit again in an unofficial capacity on the Reparations Commission. "The Government of the United States notes with pleas- ure your expression of the belief of the representatives of the Allied Governments assembled in London that American co-operation in the settlement of the great international ques- tions growing out of the World War will be of material as- sistance." In connection with President Wilson's withdrawal of Mr. Boyden in January and President Harding's restoration of Mr. Boyden in May, it was reported that, without any real inter- mission, Mr. Boyden and a staff of officials and assistants, con- stituting the "United States Unofficial Delegation to Repara- tions Commission," maintained its office in Paris. Its ex- penses, including salaries, are all paid by the Commission, which draws the money from Germany. The office of the delegation is alongside of the office of the Textile Alliance which is the sole agency for importing dyestuffs into the United States. FIRST PORTO ROSO CONFERENCE. From April 30 to May 8 there was at Porto Kos-o or Rosiga, near Trieste a conference of plenipotentiaries of the Austrian Succession States with representatives of the prin- cipal Allied Powers. The United States was represented by an unofficial observer. The plans of the Finance Commission of the League for helping Austria were debated, and espe- cially the liquidation of the Bank of Austria-Hungary so that the German-Austrian part of the institution could be reorgan- ized as a bank of issue for the Austrian republic. The pro- gram also included the economic interests of the Little Entente. For the texts of treaties on which the Little Entente is based see Current History for January, 1921, p. 73; May, p. 219; August, p. 873; September, pp. 946-47, 1074; October. p. 133. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Aaland Islands The Aaland Islands Commission, Baron Beyens of Bel- glum, Dr. Felix Calender of Switzerland, and Hon. Abram 1. Elkus of the United States, submitted to the Secretary-Gen- eral of the League of Nations on May 10 its final report for transmission to the League Council. The Commission recommended that the islands remain under Finnish sovereignty, and that the rights of the Swedish population to local self-government be carefully safeguarded. The proposal of Swedish sovereignty for the islands was re- jected because they have been part of Finland for more than a hundred years and also because on the Finnish mainland there is a Swedish population said to number 320,000. The guarantees for the benefit of the large Swedish popu- lation of the islands include preservation of the Swedish lan- guage by its compulsory and exclusive use in primary schools; the right of pre-emption of property In case foreigners offer to buy, thus preventing non-residents of the islands from acquiring too great a proportion of the property; the right to vote to be granted to those who are not natives only after a five-years' residence, and the right of the elected Council of the Aaland province to present a list of three names from which Finland may select a Governor-General. Appeals may lie to the Council of the League of Nations and to the Permanent Court of International Justice. The report says that these guarantees would be accepted by Finland and may be made through amending the autonomy laws voted in favor of the islands by the Finnish Diet on May 7, 1920. If Finland refused to give these guarantees, the Commis- sion would recommend a plebiscite and the consequent sep- aration of the islands from Finland. The complete neutralization and disarmament of the Islands Is to be based on a convention, signed by all the Baltic States and by the Great Powers. Ambassador Harvey's Speech to the Pilgrims Society On May 19, the day that Col. George Harvey, United States Ambassador to England, received official instructions to represent his Government in the meetings of the Supreme Council, he made a. speech in London before the Pilgrims Society. This speech contained significant and provocative utterances concerning the League of Nations and concerning the reasons which impelled the United States to enter the Great War. These latter utterances caused a great amount of comment and criticism in the United States. He referred to 74 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "a prevalent impression" that we went into the war "to rescue Humanity from all kinds of menacing perils," and continued: "This is not the fact. We sent them solely to save the United States of America, and most reluctantly and lag-gardly at that. We were not 'too proud to fight,' whatever that may mean. We were afraid not to fight. That is the real truth of the matter, and so we came along toward the end and helped you and your Allies to shorten the war." About the United States and the League of Nations he said: "There still seems to linger in the minds of many here, as, indeed, of a few at home, the impression that in some way or other, by hook or by crook, unwittingly and surely unwillingly, the United States may be beguiled into the League of Nations. Now let me show you how utterly absurd any such notion is. I need not recall the long contest waged between the two branches of our Government over this proposal. I need hardly mention that the confiict became so sharp that even the treaty went by the board, to the end that today, paradoxically enough, America continues to be technically at war, but actu- ally at peace, while Europe is nominally at peace, but, accord- ing to all reports, not wholly free from the clash of arms. "Finally, as you know, the question of America's partici- pation in- the League came before the people and the people decided against it by a majority of 7,000,000 out of a total vote of 25,000,000. Prior to that election there had been much discussion of the real meaning of the word mandate. There has been little since. A single example provided the definition. A majority of 7,000,000 clearly conveyed a mandate that could neither be misunderstood nor disregarded. "Anybody could see that it follows then inevitably and irresistibly that our present Government could not without be- trayal of its creators and masters and will not, I can assure you, have anything whatsoever to do with the League or with any commission or committee appointed by it or responsible to it, directly or indirectly, openly or furtively." Upper Silesia Meanwhile during the first week in May, civil war between Poles and Germans broke out in Upper Silesia. Polish work- men in the mining districts struck when it was reported there that those districts would be given to Germany. Before May 10, bands of Polish soldiers, directed by Adal- bert Korfanty, held practically all the parts of Upper Silesia claimed by Poland. The Allied troops under the control of the Inter-Allied Plebiscite Commission were too few to control the insurgents. 7B SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Commission, headed by a Frenchman, Gen. Lerond, was charged to maintain peace and order in Upper Silesia, but the Commission was divided in sentiment, the French sympa- thizing with the Poles more than the British and Italians did. The Silesian Germans, organized for defense, had of course the active sympathy of Germany, and the Berlin Gov- ernment debated how and when it might interfere. On May 5, it addressed the EngUsh, French and Italian governments, complaining of Polish atrocities in Silesia, observing that the Allies were supposed to maintain peace there and were not doing it, and suggesting that Germany would be willing "to aid the Allies in their task." Meanwhile along the line of the Oder River German officers were drilling and arming people on the west bank, while Polish forces covered the east bank. The French Government warned Berlin, May 9, that the dispatch of German troops to Upper Silesia would be a violation of the Treaty of Versailles. On the same day, the Council of Ambassadors instructed the Allied Commission to assure the population that no decision had been reached about the assignment of Upper Silesia. The Commission, however, had already made such a, proclamation, without any appre- ciable effect upon the excited population. The Council of Ambassadors also asked the Polish Gov- ernment to use its influence to allay the unrest among the Poles. May 11, the Polish Government through its Minister at Washington, requested the United States Government to use its influence in favor of Upper Silesian decisions that would preserve the rights of masses of Polish workmen. It was urged that this problem affects the economic stability of the whole world. Three days later Secretary Hughes replied that the settlement of such boundary disputes is a matter of Euro- pean concern, in which the United States, by traditional policy, should not become involved. On May 18 the Allied Commission protested to the Ger- man Government against recruiting of a volunteer force in Germany for service in Silesia as an infringement of the treaty. It demanded also that such forces already assembled in Silesia be disbanded. At the same time Korfanty offered to withdraw his troops from the disputed territory and issued a proclamation calling upon his followers to resume work and avoid military contact with the Germans. The utterances of public opinion in Great Britain and Prance, and even the speeches of the Premiers of those coun- tries, made it obvious that the former country was unfavor- able to the Polish demands in Upper Silesia and that the latter country was correspondingly friendly to them. The Allied Commission found its difHculties increased by 76 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. such discords, and on May 31 announced that it had asked the Premiers to keep silence, thus: "The Inter-Allied Commission in Upper- Silesia has unani- mously decided to ask the Allied Governments to make no comment and engage in no discussion relative to the division of Upper Silesia. The members of the Commission believe that any indiscretion incites to a renewal of the fighting be- tween Poles and Germans." But in the Allied Commission itself there was disagree- ment, the English and Italian members usually voting to- gether, while the French delegate formed a minority. The Commission tried to induce both Polish and Ger- man soldiers to withdraw from the disputed territory, and leave it as a sort of neutral zone to the control of the small Allied troop. On June 10, Korfanty for the Poles agreed to do this, if the Germans would do likewise, but Gen. von Hoefer, in command of the Germans, refused to retreat unless ordered to do so by the Executive Committee of the German Defense Association. This Committee informed Gen. Lerond that the German troops would not recede or disband until Upper Silesia had been cleared of all Polish "insurgents." June 19, the British and French Foreign Ministers asked the Allied Commission by telegraph to report whether it could hope for a unanimous agreement on some plan to determine the future frontier. The negative answer was already a fore- gone conclusion. Change of Ruman-Czecho-Slovak Boundary On June 10 the Little Entente (Czecho-Slovakia, Ru- mania, Yugo-Slavia), based upon treaties of a defensive char- acter against Hungary, was further strengthened by an agree- ment between Czecho-Slovakia and Rumania, altering their common boundaries. Rumania gave to its neighbor three vil- lages having 3,000 Czecho-Slovakian inhabitants, and received In return eight villages with 10,000 inhabitants, of whom VOOO were Rumans. Luxemburg Attached to Belgium Before the Great War Luxemburg was economically at- tached to Germany. After the war its economic allegiance was diplomatically disputed between France and Belgium. Belgium won. An agreement was signed at Brussels on June 12, abolishing customs offices between Belgium and Luxemburg, and consolidating the railway systems of the two States. Belgian money is to be used in Luxemburg. Bel- gian consular officers will look after Luxemburg interests, and 77 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Belgian financiers will loan 175,000,000 francs to the Grand Duchy. There is to be a. representative council of five, con- trolling the various agencies created by the agreement, and serving as a link between the two Governments. New Arab State, Irak On June 14, Winston Churchill, Colonial Secretary, an- nounced in the House of Commons the policy of the British Government toward its mandated territories in Mesopotamia and Palestine. In 1919-20 Great Britain had spent in those two areas nearly £80,000,000. For 1920-21 the expense wag calculated to be £27,250.000. For 1921-22 it ought not to be more than £10,000,000. The policy of the Government was to set up a distinctly Arab Government in Mesopotamia under an Arab head. The proposal was to have a government elected by a National Assembly and to create an Arab army of national defense. The policy of the British Government was to create an Arab State in Irak friendly to Great Britain, and It had been de- cided to ask the House of Mecca to supply the new ruler of that State. Emir Feisal, whom the French drove out of Damascus, had been informed that if he was acceptable to the people of Irak he would receive the support of the Brit- ish Government. It was hoped that when the Arab State was set up all British forces could be withdrawn. In Kurdistan there would have to be a British Commissioner, as the Kurds were un- willing to enter an Arab State. In Palestine the problem was more acute. Mr. Churchill saw more danger of trouble in Palestine this year than in Mesopotamia. The only cause of unrest in Palestine arose from the Zionist movement and the British promises in re- gard to it. But for that fact the existing British garrison might be considerably reduced. The difficulty about the po- sition of the national home for the Jews in Palestine was that it confiicted with Great Britain's regular policy of consulting the wishes of the people in the territories under her mandate and of giving them representative institutions as soon as they were fitted for them. There were in Palestine, he said, 500,000 Moslems, 65,000 Christians and about 65,000 Jews. There had been brought Into Palestine under the Zionist scheme of immigration about 7,000 Jews. This immigration and the propaganda by which It had been accomplished had greatly alarmed and excited the Arab population. It was not so much the number of Immi- grants, but the continued ardent declarations of the Zionist organization throughout the world of Its hope and aim of 78 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. making Palestine a predominantly Jewish country, peopled by Jews from all over the world, that alarmed the Arabs, who also feared that these Jews would come principally from Central Europe, and particularly from Russia. The Arabs, he said, believed that in the next few years they were going to be swamped by scores of thousands of immigrants from Central Europe, who would rush them off their land and ul- timately gain absolute control of its institutions and its destiny. Mr. Churchill said that Jewish immigration was being very carefully watched and controlled. No immigrants would be brought in beyond the number which could be provided for by the development of the resources of the country. Second Porto Roso Conference On June 15 at Porto Roso, near Triest, there was to be an Inter-Allied Conference. Originally planned to discuss proposals for the rehabilitation of Austria, its scope was widened to include the economic situation in Southern and Central Europe with special reference to the possibility of eliminating restrictions upon trade imposed by some of the small new political units. The discussion of plans for Austria was checked by lack of information about the willingness of the United States Government to grant the request of the Austrian Govern- ment for an extension of time in paying debts; also by lack of response from Italy to a request for postponement of its claims for twenty years. The only direct claim of the United States amounts to $24,000,000, for 200,000 tons of flour sent to Austria in 1910 by the United States Grain Corporation. The United States gave additional credit of $48,000,000 for the benefit of Austria, but this was in the nature of a loan to Great Britain, France and Italy in equal parts of $16,000,- 000, which these Powers must settle by taking claims from Austria for their account. Italy's claim upon Austria con- sists of its part ot this loan and £25,000,000 laid out for the expatriation of prisoners of war and whatever reparations may be awardei under the Treaty of Versailles for expenses of military occupation. A representative of the Finance Commission of the League of Nations went to Rome to discuss this matter with the Italian Government. From (he United States no definite answer came. The conference was therefore postponed until July 2. 79 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Thirteenth Session of the Council The Council of Ihe League of Nations held its thirteenth session at Geneva, June 17-28, 1921. The Japanese delegate, Viscount Ishii, presided. 1. MANDATE — M. da Cunha, President at the Febru- ary meeting-, reported that the invitation sent to the United States Government to attend the June session of the Council and consider the assignment of mandates had elicited no re- ply. The February Council had adjourned the discussion of the terms of "A" and "B" mandates until June, because of the letter of protest from the United States Government. On June 15, therefore, M. da Cunha, in the name of the Council, addressed the Principal Allied Powers, pointing out the urgent need of a settlement with the United States, and of substituting the mandate system, "under which the rights and duties of the parties are clearly defined," for the system of military occupation and administration. This means that the Allied Powers and not the Council of the League must secure American consent to the terms of mandates. M. da Cunha suggested that not only tlie Powers whose mandates have been defined by the Council ("C" class) but those ruling lands that will eventually become mandatory be Invited to send reports to the Permanent Mandatory Commission before the meeting of the Assembly in September. M. Hanotaux remarked that, while the present "transi- tory" system of administration continued, France regarded itself as responsible to the public, but not to the League of Nations. The representatives of Great Britain and Belgium coincided with this view^, Mr. Fisher remarking that the re- port which the British Government 'would submit to Parlia- ment would be also available for the League. The Council adopted M. da Cunha's report, subject to the foregoing reser- vations (Tuesday, June 21). 2. PUBLICITY — It was agreed that the approved minutes of the Council should be published daily, but that minutes on subjects under discussion should not be published until a final decision had been made. On Monday, June 20, it was voted that the minutes should be published in volume form as soon as possible after the close of the session, and that the Secretariat should give immediate publicity to summ.aries of debates and decisions, such summaries having been pre- viously approved by the members of the Council. 3. BUDGET AND ORGANIZATION— The Council approved the expenditures incurred during the second half of the year 1920, the accounts of which had just been audited by officers 80 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. named by the Swiss Government. It also approved the budget submitted by the Secretary-General (or the calendar year 1922, subject to the action of the Second Assembly. This budget called for 23,768,846 gold francs, an increase of about 2% million gold francs over 1921. This increase is due partly to currency fluctuations and partly to the cost of new activi- ties, such as the Permanent Court; partly also to the growth of the Secretariat. It also gave the usual authorization to the Secretary-General to make necessary transfers and ad- vances within the estimates of 1921. It was recommended that a. compensation bonus be paid to about eighty members of the Secretariat receiving £600 a year or less in order to correct inequalities of exchange. Their salaries had been calculated on the basis of 2 4 Swiss francs equal one pound sterling equal 20 gold francs. Under the ex- isting change they were getting 22 Swiss francs instead of 24. It was agreed that within the limits of the approprlatlon.s the compensation bonus .should be applied to all salaries from July 1, 1921, to the end of the 'year unless the Assembly orders otherwise. The report of the committee of inquiry into the organi- zation of the Secretariat was adopted for presentation to the Second Assembly. This committee comprised M. Noblemaire (France), Chairman; and Count Avet (Italy), Col. Robert A. Johnson (Great Britain), M. Villanueva (Nicaragua), and M. Figueras (Spain). Its duty was to study the organization of the Sec- retariat and of the Labor OfBce. Concerning the Secretariat the committee'^? report finds that it has properly played the part of an inner administrative organization, and that the salaries are reasonable. The committee recommends a. new scale of salaries, slightly less than those in existence, but with provision for annual increases. A reduction in the combined salary and entertainmeni allowance of the Secretary-General was recommended. In order to reduce expenses the committee advised that all the meetings connected with the League be held at the seat of the League. Thus the League Council, which met in Paris last February, cost 120,000 French francs and the Transit and Communications Conference in Barcelona last March and April cost £7,800. Special trains had been engaged to carry the staff required for the conference from Geneva to Barce- lona and back. In reference to the League's headquarters, the report stated that it is not for the Commission to comment upon the League's transfer from Geneva. Nevertheless Geneva i?, and is likely to remain, the city in which the cost of living is, comparatively speaking, higher than In almost any city in 81 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Europe and where the rate of exchange is at the moment of writing the most disadvantageous for a great majority of the States members of the League. The only serious objection to the transfer of the League headquarters is the purchase, which is not completely liquidated, of a, building formerly a. hotel, and now used as the League offices. But, according to the report, almost any of the cities to which the League head- quarters might be transferred could provide suitable accom- modation without cost to the League. The Commission suggested as a means of economizing that the Swiss Government should allow special League of Nation stamps and for League letters, printed matter, &c., at rates lower than the extremely high ones recently intro- duced into Switzerland. It was also suggested that a, bureau in which only Latin Americans would be employed might help to strengthen the relations between the League and South American members. The committee drafted a set of rules defining the status of the staff. With respect to expenditure the committee recommended the creation of an auditing committee of four or six members selected by the Council from the different countries to meet annually at Geneva and examine in detail the budget of the League for the following year. Dealing with criticisms leveled at the Labor Office, nota- bly of having taken sides, the committee found that "it had perhaps rather a duty than a right to take sides." The committee discussed in turn various other criticisms leveled at the Labor Office. As to the admission of Germany into the Bureau such entry would come by fprmal recom- mendation of the Allied Supreme Council. One of the allegations was that the Bureau Is an active propagandist body for the dissemination of socialistic doc- trines. The committee stated that this assertion "may be dis- missed as without foundation." Only recently a report to the effect that the Director is a, British Socialist receiving a salary of $72,000 a. year re- ceived considerable circulation, but it is pointed out that M. Thomas is the former Minister of Munitions of Prance and his salary Is 72,000 francs a year. Another criticism frequently made is that the Inter- national Labor Office has direct relations with trade unions and other workers' organizations and that it is in reality an institution to secure preferential treatment for organized labor. The committee rem.arked that "the criticism might equally be made In other quarters that the office has entered into direct relations with the employers and other organiza- tions." 82 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Finally the Council approved, for submission to the As- sembly, a committee report recommending a revised method of allocating the League expenses among the Member States. In this plan the "capacity of payment" of the Member States is represented by an index figure resulting from the combina- tion of the population, December 31, 1919, with the revenue for the year 1913. By these indices, modified by certain auxiliary information, the committee grouped the States in a manner similar to that adopted by the Universal Postal Union, and recommended that this new classification be put in force at once, if unanimous consent of Member States could be obtained. Otherwise it could be put in force at the end of the fiscal year 1924. It was stated that the Committee on Allocation and the Committee on Amendments were not agreed upon the question of whether the conclusions of this report would involve an amendment of the Covenant or not. The former committee thought that it would. 4. HUNGARY APPLIES FOR ADMISSION TO THE ZjEAGXJE — The Council voted that the Permanent Advisory Committee en Military Questions should advise the Council con- cerning the necessary regulations for military, naval, and air forces of Hungary. 5. Saturday June 18. DANZIG — The Council received re- ports and discussed questions concerning the Free City of Danzig at the sessions of June 18, 21, 22, 23. At these sessions there were present Professor Askenazy representing Poland and Dr. Sahm, president of the Danzig Senate. Gen. Haking, the League's High Commissioner, and Professor Noe, Director of the arms factory at Danzig, also took part. a. Defense of Danzig. On June 22, the Council reaffirmed its decision of November 17, 1920, that the duty of defending the Free City should be intrusted by the League of Nations to Poland. It was decided that this conclusion refers to land defense, and that the Council will not at present consider the defense of Danzig by sea. Since September, 1920, there had been a, Polish military force in barracks near Danzig to pro- tect Polish property, especially war material in storage and in transit. The High Commissioner was asked to examine how to cre- ate in Danzig harbor a "port d'attache" (mooring place, or station) for Polish warships without establishing a naval base there. The High Commissioner was instructed to report to the Council, and, if he thought best, to submit proposals in cases where defense of the city might be necessary, or where the local police were unable to preserve order. If, however, the High Commissioner found Danzig to be threatened by some country other than Poland, or found Po- 83 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. land suddenly prevented from exercising the rights assigned to it in Article 28 of the treaty of November 9, 1920, he is empowered to invite the direct assistance of Poland, without waiting for the sanction of the Council. He must give the Council his reasons for such action, and, as soon as he is satisfied that the danger has passed, the Polish troops are to be withdrawn. Whenever Poland is obliged to act in defense of the Free City the Council may secure the collaboration of one or more of the Member States. If such measures are necessary, the High Commissioner, after, consultation with the Polish Government, shall present to the League a general report on the defense of Danzig, and the Council shall not discuss this report until after it has con- sulted the Permanent Advisory Military Commission. b. Questions under discussion between Poland and Dan- zig. Gen. Haking, June 21, informed the Council that under the terms of the Poland-Danzig treaty of November 9, 1920, various joint committees of the two States had been sitting in Danzig, and had thus far been unable to agree upon any- thing. The Danzigers insisted on their autonomy, and the Poles on their right of free access to the sea. Poland wanted complete military control of Danzig. Gen. Haking said that each side, fearing that it will not get what it is entitled to,- is trying to get more than it is entitled to. The deadlock is causing serious loss to both Danzig and Poland. In Danzig unemployment is increasing. Taxation is already excessive. "Men and women lack food and clothes. iFour thousand children between the ages of five and ten are without under- clothing. I am trying to organize a Fund to relieve them." Gen. Haking, as High Commissioner, is arbitrator of dis- putes, but the committees wrangle, and submit nothing fo"- arbitration. Prof. Askenazy observed that the Polish Government had just given to the Danzig fishermen permission to fish in Polish waters. He proposed that, if the negotiating committees could not agree by July 31, the two States should appeal to the High Commissioner. Dr. Sahm accepted this proposal, and the Council approved it. c. Constitution of Danzig. Viscount Ishii reported that the amendments in the constitution of the Free City that had been required by the Council on November 17, 1920, and ap- proved on March 2, 1921, have been enacted by the Free City. The law, as now stated, is not in force until it has been ap- proved by the Council and Assembly. Viscount Ishii enumer- ated these guarantees which are assured to the Free City with respect to Polish control of its foreign affairs: 84 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 1. Poland must consult the Danzig legislature before concluding any treaty affecting- the Free City. 2. Any dispute between Poland and Danzig may be sub- mitted by the latter to High Commissioner, with the right of appeal to the League Council. 3. The High Commissioner may veto treaty provisions which the League Council regards as contrary to the Polish- Danzig Convention of November 9, 1920 (Article 6) or to the fundamental statute of the Free City. A committee was named to draft an amendment render- ing the President and seven principal Senators of the Free City more amenable to the control of the Popular Assembly. The report of this committee, accepted by President Sahm of Danzig, was adopted by the Council on June 22. This amendment provides that each Popular Assembly during the first year of its term must elect the President and seven other principal Senators for a term of four years be- ginning with the second year of the Assembly's term, and ex- tending to the similar time In the term of the succeeding Assembly. The negotiations between the Free City and Po- land being still unfinished, the Council voted that the defini- tion of rights of citizenship in Danzig and of conditions of naturalization there, which should have been submitted to the League in May, should be deferred to the next session. d. Manufacture, Sale and Storage of war material in Danzig, and Traffic in the same. The Council, on Thursday, June 23, reaffirmed its decisions of February 26 more definitely, thus: 1. All manufacture of arms in Danzig must cease at once. 2. This includes firearms made for sporting purposes. 3. The Council of Ambassadors shall be notified of this action. Except by I)revious consent of the League Council, even temporary storage and transit of war material in Danzig is forbidden, subject, however, to the rights granted by the treaty of Versailles to Poland and Germany. As League representative, the High Commissioner decides what is, and is not — war material. e. Poland's Access to the sea at Danzig. The representatives of Poland and Danzig agreed before the Council that a special site on the banks of the Vistula shall be placed at the disposal of the Polish Government for the un- loading, temporary storage and dispatch of war material in transit to Poland. The site shall be deterrnined by the Har- bor Board, which shall also prescribe regulations necessary tor the safety of the city. Upon such a site Poland may main- SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tain an armed and uniformed guard. The High Commissioner, in agreement with the Polish Government, shall determine the strength of this detachment. During the discussion of these mattei-s one mooted ques- tion between Danzig and Poland was settled amicably by mu- tual agreement between Prof. Askenazy and President Sahm, viz.: that Polish guards in Danzig should not wear their uni- forms or carry firearms outside of the areas in which they worked. President Sahm was further pleased by an agree- ment that the questions of a loan for the Free City and of the unsettled financial and industrial conditions there should be referred to the Finance and Economics Commission, with a request for a report to the next Council meeting. f. German-Polish-Danzig Transit Convention. The Council approved a Transit convention between Ger- many on the one hand and Poland and Danzig on the other. g. Time-limits on Appeals. The Council decided that an appeal by either Poland or Danzig from a decision by the High Commissioner must be made within forty days after the event. If the High Commissioner exercises his right to veto any treaty or agreement entered into by Poland in so far as such treaty or agreement applies to Danzig, he must act within a maximum period of three months. h. Polish Protest Concerning a Lawsuit in Danzig Courts. In the case of Puppel vs. Deutsche Bauern Bank concern- ing right of pre-emption on property in Danzig territory, the representative of Poland, opposing the High Commissioner, contended that the case in question belonged to the Repara- tions Commission and not to the Danzig courts. He regarded the case as closely related to political anti-Polish propaganda in Danzig, conducted by members of the former German regime. The Council voted that the documents about the case should be transmitted to the Reparations Commission with a request for its opinion; in the meantime action in the Danzig courts should be suspended. One question which the Polish-Danzig joint committees did not settle prior to July 31 was that of the ownership and control of the railways in Danzig. This matter was therefore referred to the High Commissioner. He decided that rail- ways serving the port shall belong to the Harbor Board, but be administered by the Polish Railway Administration. In this Administration the Harbor Board and the Free City shall have representatives. Danzig shall have its tramways and narrow-gauge railways. All other railways belong to Poland. S6 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. In August the Free City announced that it would appeal against this decision to the League Council. It was also announced on July 30 that the arms factory In Danzig was closed. 6. Saturday, June 18. THE TRANSIT CONFERENCE AT BARCELONA — The Council received a report on the work of the Conference on Freedom of Communications and Transit, March 10-April 20, and voted that the Barcelona conventions might be sent at once to the various Governments for signa- ture and ratification. The Council voted to advise the Transit Commission to obtain representation also from one or more of the riparian States of the Danube. Forty-three States were represented in the Conference. More than one hundred tech- nical experts attended it. The Conference prepared: a. A Statutory Convention on the general principles which should govern the transit of persons and goods across differ- ent national territories. b. A Statutory Convention, with additional protocol, on navigable waterways of international concern. The principles laid down at the Congress of Vienna on this subject, and de- veloped up to the time of the Great War, were reaffirmed and extended, liberty of navigation, equal treatment for all flags, prohibition of special customs or vexatious taxes, maintenance of the fairway, use of river-ports by foreigners as well as nationals. c. A declaration concerning right of States without sea- coast to have maritime symbols. d. Recommendations embodying general principles about the utilization of railways and about ports internationally used. The Conference arranged for general and partial confer- ences under the auspices of the League, especially for a con- ference at Berlin in 1923 to regulate the international use of railways, and for the continued work of an Advisory Com- mission on Communications and Transit. This Commission has sixteen members, representing the four great Powers, and in addition Belgium, Brazil, Chile, China, Cuba, Denmark, Estonia, Holland, Poland, Spain, Switzerland, and Uruguay. The Commission is to follow the application of the principles defined at Barcelona and to enlarge gradually the scope of in- ternational law, so far as communications are concerned. If disputes arise, they will be considered by the Commission. If not thus settled, they will be taken to the Permanent Court. 7. Monday. June 20. THE SAAR VALLEY — The German Government having protested to the League against the pres- ence of about 7,000 French troops in the Saar Valley and against the jurisdiction of French courts-martial there, the 87 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. President of the Saar Valley Commission explained to the Council that the soldiers were not responsible to French au- thorities but to the Commission, that it was impossible at present to secure a trustworthy police force from the inhabi- tants of the Valley, and that no court-martial had exercised Jurisdiction over the inhabitants but that one such court had tried a German deputy as a spy. The Council approved of the statements and policies ol the Saar Valley Commission. A similar conclusion followed the discussion of a protest of the German Government against the permanent exclusion of certain persons from the Saar Valley in August, 1920. At that time strikes were fomented in the valley by German agi- tators in the hope of paralyzing the Government of the Com- mission, and the local police and gendarmerie had joined the strikers. The Commission with the support of the French troops brought the strike to an end in a week, deported a large number of agitators, and expelled from the valley with- out recourse about a hundred Pan-Germans, nearly all of whom were Germans not native to the valley. About halt of the decrees of deportation were soon withdrawn. The Commission supplemented the Peace treaty by declaring who might be "inhabitants of the Saar," and decreed that genuine "inhabitants" should not henceforth be liable to expulsion. The Council asked the Commission to inquire anew into cases of expulsion and to send results of the inquiry to the Council. The German Government also protested against the de- pree of the Saar Valley Commission that after May 1, 1921, the franc shall be the currency used in the railway, postal, telegraph and telephone services. The reasons alleged by the Commission were based upon .a consideration of the difBculties in maintaining parity of values between two currencies in the valley, one based on the mark and the other on the franc. The Council approved the action of the Commission and recorded its thanks and congratulations to the Commission for their faithful service. 8. Monday, June 20, Thursday, June 23, Friday, June 24, and Monday, June 27. AALAND ISLANDS— M. Branting for Sweden and M. Enckell for Finland sat with the Council. The report of the final Aaland Islands Commission, already sum- marized here, was before the Council. M. Branting criticized the report for failing to consider the questions of sovereignty and neutralization in combina- tion. The latter question the Commissioners had postponed. He also scored the American Commissioner, Mr. Elkus, for a reported interview in which the Aaland Islands question was characterized as of trifling importance. He still advo- cated a plebiscite. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. M. Enckell applauded the report and approved the sug- gested guarantees with some reservations concerning the manner of appointing the governor o£ the Aaland province and concerning appeals from the Aaland Assembly to the League Council or Permanent Court. On Thursday representatives of the islanders appeared be- fore the Council and explained why they wished to be assigned to Sweden, or made independent. They asserted no com- plaints, but based their appeal on Swedish sentiment and tradition. On Friday the Council decided that the islands shall be- long to Finland, and that the guarantees recommended by the Commission, to be inserted in the Finnish autonomy law of May 7, 1920, shall be now defined, if possible, by the dele- gates of Finland and Sweden in session with M. Hymans, rep- resenting the League. The Council further decided that the Convention of 1856 for the neutralization and non-militarization of the islands should be replaced by a broader agreement, conforming in the main to the draft convention for neutralization prepared by the Swedish Government to accompany an anticipated alloca- tion of the islands to Sweden. The Secretary-General was instructed to invite all Gov- ernments concerned, including Sweden, to appoint duly ac- credited representatives to discuss and conclude such an agreement.* Finland and Sweden (with a protest) accepted the Coun- cil's decision. M. Branting asked whether Finland was ready to quash court proceedings against the islanders who were in July, 1920, condemned for high treason because of their visit to Stock- holm and to the King of Sweden. They had been set at lib- erty pending an appeal. M. Euckell replied that Finn laws were the same for all, but the President of Finland had the right of grace (Cf. First Year Book, p. 15). The report of the sub-committee on the guarantees was presented to the Council on Monday, June 27, and promptly approved by the Council. By this agreement Finland promises: a. The Landsting and the Communes of the Aaland Islands shall not be obliged to maintain any schools except those that make Swedish the language of education. In public primary schools Finnish language shall not be taught without consent of the Commune concerned. b. Whenever Aaland Island real estate is sold to a per- *The Governments invited were those of Great Britain, France, Italy, and Germany, Denmark, Sweden, Finland, Estonia, Latvia and Poland. 89 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. son not legally domiciled in the province, any legal resident or the Commune concerned or the provincial council is en- titled to repurchase such real estate at a price fixed, if neces- sary, by the Court of First Instance (Haeradsraett), having due regard to the current price. c. Finn citizens, emigrating into the islands, must be domiciled there five years before they can exercise the right of provincial or communal suffrage. d. The Aaland governor shall be named by the President of Finland in agreement with the President of the Aaland Landsting. If an agreement is lacking, the President of Finland shall select one from a list of five nominated by the Landsting. e. In addition to the revenues mentioned in Article 21 of the law of autonomy, the islands may retain for their needs 50 per cent, of the land tax. f. The League Council will observe the application of these guarantees. Finland will send to the Council, with com- ment, any complaints or claims of the Aaland Landsting, and the Council may, in legal questions, consult the Permanent Court of International Justice. The announcement of the final decisions of the Council in this matter was followed by an announcement from Moscow that the Soviet Government would not accept any settlement of the Aaland Islands in which the rights of Russia, as a signatory of the convention of 1856, were not recognized. 9. Tuesday, June 21. LUXEMBURG — The Council sanc- tioned a letter from the Secretary-General to the Government of Luxemburg, answering a statement from that Government that a revision of the Constitution would be necessary before Luxemburg could legally pay its contribution to the League treasury. The Secretary-General's letter said that the admission of the Grand Duchy to the League was final and absolute, that it would be invited to the next Assembly whether its Consti- tution had been revised or not, and that a date should be fixed by the Grand Ducal Government at which time it could discharge its obligations. The Council suggested an interval of four months. 10. HEALTH ORGANIZATION— TlTaQ refusal of the United States to co-operate in the plans outlined under the deci- sions of the first Assembly (Cf. "Vote No. 29 at twelfth meet- ing of the Council), prevented the Office International d'Hy- giene Publique from joining with the League In creating a Public Health Organization. The Council therefore decided to unite its nominations with those made by the Labor Ofllce 90 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and the Red Cross League, and thus create a Provisional Health Organization. The members of this technical Commission are: Dr. Buchanan, Senior Medical Officer, Ministry of Health, Great Britain; Dr. Leon Bernard, Faculty of Medicine, Paris; Dr. Lutrario, Director-General of Public Health, Italy; M. Morikuni Saito, Chief Inspector, Ministry of the Interior, Japan; M. Velghe, Director-General, Public Health Service, Belgium; Dr. Th. Madsen, Director, State Institute of Sero- therapy, Denmark; Sir Havelock Charles, President of Medical Board, India; Dr. Chodzko, Under Secretary of State for Pub- lic Health, Poland; Dr. Nimbela, Faculty of Medicine, Lima, Peru; Prof. Calmette, Pasteur Institute, Paris; Dr. Pulido, President, Public Health Council, Spain; Dr. Carriere, Direc- tor, Public Health Service, Switzerland; Prof. Winslow, Red Cross League; and Dr. Carozzi, International Labor Office. Several of the members of this Commission being also members of the Office International, practical co-operation with that body is assured. 11. TRANSFER OF FUNDS FOR SOCIAL INSURANCE IN ALSACE-LORRAINE. The Council, in accordance with Article 312 of the Ver- sailles Treaty, approved the recommendations of an Interna- tional Commission to provide for the transfer of funds by Ger- many to France, said funds being accumulations to meet the requirements of social or State insurance in Alsace-Lorraine. The plan had the approval of both Governments. 12. REPORT OF THE EPIDEMIC COMMISSION— Dr. Norman White, Chief Commissioner, described the work accom- plished by the Commission in Poland. Beside Dr. White, the Commission included three — Col. Gauthier, Major Fitzhugh, Dr. Rajchman. Lack of funds had limited the workers to the actual members of the Commission, but they had reached Poland at a time when the Polish Government was almost at the end of its resources, and they had helped to obtain medi- cal stores and equipment which the Polish Government could not get. A year ago there were 30,000 reported cases of typhus monthly. Now there were 5,000 a, month. More than two hundred thousand persons had been inoculated against cholera, and that disease was now quiescent, but it might reappear at any time. Typhus was not now epidemic in Western Poland or Eastern Germany. Thirty-eight hospitals in Eastern Poland had been reopened, 18 new bathing and delousing plants constructed, 36 other plants remodeled, and there were 392 disinfecting apparatus, of which 353 were In the field. To this work 13 nations had contributed over $300,- 91 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 000, but nothing had as yet been received from nine nations, which had promised to give sums amounting to more than $650,000. The Council voted that States which had prom- ised contributions but had not yet made them, should be re- minded of their delinquency. 13. VOLUNTARY BELIEF WOKK IN EUROPE— Jnas- much as the League of Red Cross Societies and the Interna- tional Committee of the Red Cross acecpted the proposal of the Council in February to form a Joint Committee to co-ordinate voluntary relief work in all European countries, the Council ap- proved the plans of that Joint Committee, and voted to urge all Member States to aid the Joint Committee by giving it free transport of material, exemption from customs duties, permission to make local purchases at special Government rates,' transport facilities for the staff, and the use of public buildings for the housing of children and sick persons. 14. PERMANENT COTJBT— The Secretary-General re- ported that on June 2 circular letters went out to the different national groups of judges in the panels of The Hague Tribunal of Arbitration and to the special national groups appointed for the purpose, requesting them to get together and select candidates for judgeships in the Permanent Court of Inter- national Justice. It was requested that replies should be in Geneva by August 15. These letters were sent from Geneva, in accordance with usage, under cover addressed to the State Department in each country. Such a communication, bearing letters to the United States panel of justices, George Gray, John Bassett Moore, Elihu Root and Oscar S. Straus, was delivered at the State Department in "Washington, and some underling who received it was so heedless or indifferent as to file it away without answer, without report to the Secretary, and without notice to those who should have received it. 15. THE BLOCKADE COMMISSION, authorized by the First Assembly and the Council (Twelfth Meeting), was reported as comprising the following members: Dr. Aristides de Aguero y Bethancourt (Cuba), M. Jean Gout (France), Hon. Sir William Finlay (Great Britain), M. Carlo Schanzer (Italy), Dr. Minoru Oka (Japan), M. Christian Sparre (Norway), Sr. Pablo de Garnica (Spain), M. Max Ruber (Switzerlandl. A preliminary report is expected in August. 16. SECRETARIAT— The Council approved a list of 31 ap- pointments to the Secretariat, and received a list of 9 resig- nations. 17. Thursday, June 23. AMENDMENTS TO THE GOVE- 92 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. NANT — The Committee on Amendments first met at Geneva en April 6, and completed its sessions in London on June 7. Its report was presented to tlie Council. The committee considered amendments offered by eleven nations and affecting ten dif- ferent articles of the Covenant. It also had before it many- suggestions made in the First Assembly. The committee voted to recommend to the Second Assem- bly three amendments: a. Amendment to Article XXI, in accord with Czecho- Slovaklan suggestions, whereby the League would approve and promote agreements between League members which tended to assure peace and encourage co-operation. For such limited local agreements the League might approve of special conferences of Member States directly concerned. This am.endment seems designed to win League sanctions for the agreements known as the Little Entente. b. A second amendment proposed to expand Article IV' by providing how non-permanent members of the Council are to be chosen, viz.: by majority vote of the Assembly, for a tour years' term, two to be elected every second year. After two consecutive terms a State shall not be re-eligible. c. A third amendment to Article VI clearly establishing the right of the Assembly to vote the annual budget and con- trol the accounts. The budget must have the approval of three-quarters of the Assembly, among whom must be all the members of the Council. It was also suggested that some penalty, such as pay- ment of interest, be provided against States in arrears. A provisional amendment about the allocation of expenses was approved subject to the institution of a new system by the Assembly. The Argentine amendment providing that all sovereign States be admitted to the League upon request was regarded as a change in the nature of the League rather than an amendment. Argentina was therefore invited to submit a statement of- the reasons making such a change desirable. The Canadian proposal to eliminate Article X was re- ferred to the special committee of jurists on registration of treaties, with a, request for a precise interpretation of the re- sponsibilities placed upon Member States by Article X. Contrary to proposals from Colombia, the committee voted to adhere to the principle of unanimous decision ii'. Assembly and Council (except upon questions of procedure) on the ground that unanimity in decision is an essential safe- guard of national sovereignty. The committee recommended that the Assembly give special endorsement to the Scandinavian proposals for the 93 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. use of arbitration and conciliation, which were thought too detailed for insertion in the Covenant. Regarding the admission of States too small for member- ship, three alternative courses were suggested for considera- tion by the Assembly. Amendments proposed by the Scandi- navian States permitting relaxations in an Economic Blockade were laid aside until the Blockade Committee shall have re- ported. The Council approved the report for transmission to the Second Assembly, not expressing any opinion concerning the proposed amendments and recommendations, but expressing the hope that the members of the Committee would be present in the Assembly, if possible, when the report is discussed. Upper Silesia It was announced on June 23 that Gen. Hoefer, in com- mand of the German troops in Upper Silesia, had accepted the Inter-Allied Commission's plan of withdrawal from the disputed territory, the plan which Korfanty had already ac- cepted for the Poles. Within a, week the Allied Commission was left in control of the territory, pending a final decision by the Supreme Council. Gen. Hoefer was persuaded to peace, against his will, by Maj.-Gen. Sir William Henniker, com- mander of the British contingent in the Allied force, and by pressure from the German Government. League Council, Continued 18. Saturday, June 25. AhBANIAN FRONTIERS— Kev- :'esentatlves of Albania, Greece and Tugo-Slavia met with the Council. The Albanian Government acting under Article XI of the Covenant, appealed to the Council upon questions at issue between Albania, Greece and Tugo-Slavia. The frontiers of Albania nad been delimited by a Com- mission named at the London Conference of the Great Powers in the summer of 1913, the Conference which recognized Al- bania's independence. During the war there had been an attempt to divide Albania among its neighbors by the so-called secret treaty of London of 1915. This attempt had been abandoned, but at the present time Yugo-Slavian troops were holding territory within the eastern boundary of Albania from Lake Ochrida to Lake Scutari, and about 40,000 Albanian inhabitants had fled for refuge into the interior of Albania. Also Greece was disputing with Albania the possession of Koritza and Argyro- castro, regions known as Southern Albania or Northern Epirus. The people were Albanians but Orthodox in religion, 94 SECOND YEAR BOOK OP THE LEAGUE OF NATIONS. One of their leaders, Bishop Fan S. Noli, was the spokesman for Albania at this meeting of the Council. These disputes had been before the Council of Ambas- sadors for some time without solution. Greece and Yugo- slavia urg-ed that the War and its changes in the Balkans had wiped out the treaty of 1913, and that only the Supreme council or its deputy, the Council of Ambassadors, could now fix the Albanian frontiers. The Albanian delegate urged that, as Albania was a member of the League, the Council should act, and should send to Albania a Commission of Inquiry. The Council decided that it should not take up the question while the Council of Ambassadors was discussing it. The Council asked the three States to abstain from any hostile acts, prom- ised to be watchful of the interests of Albania, and requested the Council of Ambassadors to reach a conclusion "with the least possible delay." Albania reserved the right to place the matter before the Second Assembly. 19. Monday, June 27. TURKISH PRISONERS IN GREECE —A thousand Turkish prisoners, who had been in Siberia, were brought from Vladivostok on a Japanese ship en route to Con- stantinople. This ship had been detained at Mitylene for three months by the Greeks, who feared that these Turkish soldiers would be used in the war against the Greeks in Asia Minor. The Council authorized Dr. Hansen to negotiate with Greece for the disembarkation of these unfortunates and for their in- stallation in a camp either upon Greek or neutral soil. 20. MIXED COMMISSION FOR REDUCTION OF ARMA- MENTS — The employer members of the Governing Body of the Labor OfHce having declined to name three members of the Mixed Commission on Armaments for the reason that such action was ultra vires, the Council ratified the act of the Secretary-Gen- eral in issuing invitations to three employers after consulting with the President of the Council. This made the Commis- sion officially complete, with 22 members representing 15 member-States. It was already summoned to meet in Paris on July 16. 21. REPATRIATION OF WAR PRISONERS— The Council received a report from Dr. Nansen, showing that, if the money holds out, the work might shortly be completed. By the various Baltic routes down to June 1st, 323,850 prisoners had gone home. From Vladivostok, 11,080 had been sent home, and from Novorossysk 14,089 prisoners had just reached Trieste. The prisoners in Black Sea regions were in the worst plight, but Dr. Nansen hoped to have them repatri- ated within five mpnths. He also called the attention of the 95 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Council to the helplessness of refugee populations in western Europe, a question which the Council accepted as relating chiefly to Russian refugees. 22. COMMISSION ON DANUBIAN WATERWAYS— 'S\ie Council accepted a duty, imposed upon it by the treaty of Tri- anon (Hungary) that it should appoint the Chairman of a Per- manent Technical Commission on waterways in the Danube Val- ley. This will be done at the next meeting. Meanwhile the Council of Ambassadors will invite Danubian States to name their delegates upon the Commission. 23. PROTECTION OF MINORITIES— At the meeting of the Council in October, 1920, a. detailed procedure for dealing with minority petitions was adopted (First Year Book, p. 23). In accordance with the rules there prescribed, the Secretariat habitually forwarded promptly to all League members any information presented to the Council. It followed that attacks by minority organizations upon the conduct of this or that State were scattered broadcast among the Governments with- out any accompanying answers from the accused. Czecho- slovakia and Poland protested against this, the former espe- cially instancing a, memoiandum from an "Austrian Associ- ation for a League of Nations," which had violently attacked Czecho-Slovakia and its President, and which was, according to the latter Government, "obviously inspired by a hatred of everything not German." The Council approved of modifications in the rules pro- posed by Czecho-Slovakia and Poland. Hereafter requests for protection of minorities emanating from private or non- League sources must be sent first to the State concerne4. Within three weeks that State shall signify whether it wishes to make answer. If so, it must do so within two months, after which its answers and the original memorandum will be sent to the Council and to League members, as before. This procedure applies at once to Czecho-Slovakia and Poland, and to all other States who express a preference for it. Notice was given that memoranda about the protection of minorities in Finland, Albania, Greece and Tugo-Slavia were before the Council and would be considered at the next session. 24. ADVISORY COMMISSION ON MILITARY, NAVAL AND AIR QUESTIONS— The Council approved a report of the fifth meeting of this Commission on June 21. The only new decision of the Commission was in its reply to an inquiry from the President of the Commission to the efEect that the status of the military, naval and air forces of Hungary is regulated by the '.reaty of Trianon of June 4, 1920, and does not require consider- 96 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ation by the Commission. Tlie foregoing inquiry had followed a formal application from Hungary for admission to the League, which was dated May 23, 1921. 25. RUSSIAN BEFUGEES^The Council approved a report by M. Hanotaux recommending that the League appoint a High Commissioner, not a Russian, to co-ordinate the efforts of Governments and private organizations in behalf of Rus- sian refugees. The Secretariat was instructed to study the political, legal and financial problems involved, to get infor- mation from the Governments concerned, and to continue to co-operate with private organizations. The Council agreed to summon as soon as possible a conference of officials in touch with the refugees. It was suggested that the President might name a High Commissioner and his staff. A letter from the International Red Cross Committee was read, which asked the League to approve "the dispatch of a delegation to Russia to ascertain from the Soviet Government under what conditions the repatriation of Russian refugees could be carried out, and what guarantees could be offered to them that they would be afforded tolerable conditions of existence and security in their own country." The Council assumed no responsibility in this matter. 26. INTERNATIONAL BUREAUS— The Council considered and adopted a detailed report on Article XXIV of the Covenant as applied to various international bureaus. There are, first, more than thirty such bureaus created by International treaties or agreements before the League was born. These can be placed under the direction of the League only with the consent of all signatories of the convention that created them. None of these bureaus has expressed a wish to take advan- tage of the provisions of Article XXIV. Among the best known of these bureaus are three at Berne, viz.: Bureau for Protection of Literary and Industrial Rights, Universal Telegraphic Union, and Universal Wireless Union; also the International Bureau of Weights and Meas- ures at St. Cloud, and the International Institute of Agricul- ture at Rome. The last named is sustained by 39 countries and issues three times a month reports about the food-produc- tion of the world, covering the amount of production, market conditions, amount of exports and imports, and prices current in all currencies. This bureau was founded in 1905 by David Lubin of California. A second class of international bureaus are those called "Private," not created by governmental agreements. Some such bureaus have already asked to be placed under the direc- tion of the League. The procedure in such cases must include these steps: 4 97 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. m. A formal request from the Governing Body of the Dureau. b. An inquiry conducted by the Secretariat or some other League organ. c. Formal action by the Council. d. The League would be under no obligation to aid a bureau financially unless by special decision of the Council affecting each case. The authority of the League over public international bureaus consists of moral support, except in cases where abuses are revealed, or where there is lack of co-operation or evidence of inactivity. The League may recommend improve- ments, and the bureaus must be ready to give the League aid and information. Private international bureaus may be required to help the work of the League, and to show that they are not duplicating work. The League may claim the right to supervise to some extent the employment of their financial resources. Three international bureaus, recently created, were con- sidered by the Council. The International Hydrographic Bureau was formed by agreement of 21 States, 19 of which have approved its funda- mental statute. The United States and Italy have not yet signified their final adherence to It. Awaiting the final com- plete constitution of this bureau, the Council authorized the Secretary-General to establish provisional relations with the Governing Body of this bureau. The International Bureau of Relief, established at Paris in 1901 to co-operate with Governments and conduct propa- ganda in support of treaties for reciprocity in charitable re- lief to indigent foreigners, is classified as a. "semi-public inter- national bureau." The Council voted to place It under the direction of the League. Another semi-public bureau is the International Institute of Commerce, founded in 1919 by the Inter- Parliamentary International Commercial Conference, unofficially representing 16 nations. Its object is to collect and publish information about commercial statistics and legislation, and to publish the commercial treaties of all nations. The Belgian Government asks that this bureau might do that work for the League. The Council voted to ask for the opinion of its Finance and Economics Commission. 27. Monday. June 27, Tuesday, June 28. THE VILNA DIS- PUTE; LITHUANIA VS. POLAND— M. Hymans reported the results of direct negotiations at Brussels from April 20 to June 3. He had offered a draft scheme of settlement, which both par- ties accepted as a basis of discussion. 98 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. This scheme called for the organization of Lithuania as a federal union of two autonomous cantons, Kovno and Vilna, correlated like the cantons of Switzerland, with the federal capital at Vilna. Guarantees for ethnical minorities would be provided. Zeltgovski's troops would leave Vilna territory. After Vilna canton was organized, and municipal, cantonal and legislative elections had been held, Lithuanian troops could enter Vilna. In a joint Advisory Council for Foreign Affairs, Lithuania and Poland would each have three members designated by the Diets of each country. Acts of foreign policy of common interest must be ratified by the two Diets. Lithuania and Poland were to have also a defensive military convention, re- ciprocal free trade, and a Joint Economic Council. Lithuania would have sovereignty over Memel but Poland would have free access to the port and to the navigation of the Niemen. Disputes over this plan could be referred to an arbitrator chosen by the League of Nations with the approval of the two nations, who agreed to accept his decision. The Council adopted a resolution prepared by M. Hymans, determining details in the elaboration and application of this proposed agreement. This resolution provided for the con- tinuation of negotiations at Brussels on July 15, for the with- drawal of Zeligovski's soldiers, not natives of Lithuania, be- tween July 15 and September 1, for the organization of a local police force, not exceeding 5,000 men, under the League's military Commission of Control, and for the establishment of a Diet at Vilna. Prof. Askenazy, for Poland, accepted these proposals on condition that the agreement should be submitted to a Vilna Diet. M. Galvanauskas, for Lithuania, reserved assent to the clause about a, Vilna Diet. He demanded the recognition of the agreement of October 7, 1920, between the two countries, which had been violently and illegally broken by Zeligovski's seizure of Vilna. His forces still held it, and Lithuania could not acknowledge a Diet which at present would be constituted under Zeligovski's control. Between countries separated by an army there could be no commercial relations. He would transmit the resolution to his Government. 28. Tuesday, June 28. WORK OF ECONOMIC AND FINANCIAL COMMISSION— The report from this Commission showed that it had begun an exhaustive analysis of economic conditions. Two questionnaires had been sent to the different Governments, one, solicting information on (a) Restrictions on imports and exports (prohibitions, licenses, export prices, reserves for home consumption, anti- dumping bills) ; 99 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. (b) Monopolies; (c) Unfair competition. The other asked for facts about stoclcs of foodstuffs and raw materials. Some replies have been received. The Commission decided to reissue the Statistical Bul- letin of the Supremo Economic Council. The Commission received from a sub-committee a report on a. system of Fin- ishing Credits, and ascertained by Inquiry in various countries that the plan would not be received with favor. The Com- mission issued to the Governments a questionnaire about legislation dealing with bills of exchange. The Financial Section of the Commission has considered; a. The question of double taxation arising from present fiscal laws (Sir Basil Blackett's report); b. Reciprocal treatment of branches of foreign banks in various countries (M. Wallenberg's report); i;. International agreements about securities lost, stolen, or destroyed, and has referred various points to the Inter- national Law Association. Through Sir Drummond Fraser, "Organizer of Inter- national Credits," and his staff, the Governments have been consulted about the "International Credits Scheme" (Ter Meulen Plan). The Commission has devoted much time and study and negotiation to the application of this scheme to the financial rehabilitation of Austria, and is still at work upon the problem of securing a suspension of claims against that State. The Commission has tried to give the greatest possible publicity to the decisions of the Brussels Financial Con- ference. The Council approved and adopted this report. 29. PLACE OF MEETING OF COMMISSIONS— The Coun- cil voted that Commissions should meet at Geneva, unless special reasons obliged them to meet elsewhere. It was agreed that the Economic and Financial Committee could plead such rea- sons, since it is composed of active business men who give their services to the League. 30. DISPUTE BETWEEN AUSTRIA AND TUGO-SLAVIA — The Austrian Government appealed to the Council against a threat of the Serbo-Croat-Slovene State to liquidate the prop- erty and goods of Austrians in Yugo-Slavia if the latter failed to pay their debts to Yugo-Slav creditors in Yugo-Slav crowns. The Belgrade Government was accused of making this threat in order to force Austria to accept its terms in a negotiation about a totally different matter. The Yugo-Slavian represen- tative proposed direct negotiation between the two States 100 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. about the complaint. The Austrian delegate accepted the proposal. The Council took note of this agreement and requested Tugo-SIavla to avoid any measure of liquidation injurious to individual interests, while awaiting a diplomatic solution, 31. TRAFFIC IN OPIUM— Mt. Wellington Koo presented a. report from the Commission on Traffic in Opium and Noxious Drugs. Mr. Koo urged that, instead of progressively lim^iting the traffic in opium, it is now time for the progressive sup- pression of Its productions. Its cultivation should be limited In accordance with definite knowledge of what is needed for strictly medicinal and scientific purposes. The Council voted: a. That Member States be invited again to sign and ratify the International Opium Convention as soon as possible. b. That the Government of the Netherlands be asked to continue its efforts to secure ratification by States that are not members. u. That the Health Commission, or any other similar organization, be asked to determine approximately the aver- age requirements of the drugs specified in Chapter III of the Opium Convention (medicinal opium, naorphine, cocaine, heroin, &c.) for medical and other legitimate purposes in various countries. d. That Governments which are parties to the conven. tions be invited to adopt the following procedure: Every application for the export of a supply of any of the drugs referred to must be accompanied by a certificate from the Government of the importing country, showing of- ficial approval and guaranteeing that the drug is required for legitimate purposes. In case of drugs to which Chapter III of the Convention applies, the certificate shall state that they are required solely for medicinal or scientific purposes. e. That all contracting Powers having treaties with China be asked to take note of Article 15 of the Opium Con- vention, so that the most effective means may be taken to prevent the contraband trade in opium and other dangerous drugs. f. That the Opium Commission be asked to report on a possible inquiry into the average requirements of raw and prepared opium specified in Chapters I and II of the Con- vention for medicinal and scientific purposes in different countries. Mr. Koo referred to the fact that just before the Great War the cultivation of the poppy had been nearly suppressed in China. Political upheavals since then had permitted a recrudescence of poppy cultivation, but on May 31, 1921, the 101 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Chinese Government at Peking had taken initial steps toward the extermination of the evil. The Council adopted this report. The opium-raising countries of the world are India, China, Turkey and Persia. Persia signed the Convention of 1912, with reservations. Turkey and China now have no Governments capable of en- forcing laws. The Indian Government, abiding by the letter of the Convention of 1912, prohibits export of opium to coun- tries having laws against the importation, but not the export to countries accepting the drug. This means an illicit traffic with the former countries. 32. INTERNATIONAL, OFFICE TO CONTROL, ARMS TRAFFIC — Referring to vote No. 20 at the February meeting of the Council, the Secretary-General now informed the Council that the BelgiafS Bureau, which had been invited to act tempo- rarily as an International Bureau for the control of the trade in arms, was a bureau attached to the Belgian Ministry of For- eign Affairs and directed by a committee representing tho Conference for the Suppression of Slavery. Its expenses were not paid by Belgium, but were divided equally among the Powers concerned. The Council in February had been ignorant of these facts, and it now voted to refer the question of an Inter- national Office to the Mixed Commission for the Reduction of Armaments, with a request for a report. 33. PROTECTION AND WELFARE OF CHILDREN— The International Committee of the Red Cross, League of Red Cross Societies, and Union Internationale de Secours aux Bnfants united in a request that a special department in the Secretariat be established for the protection of children. The Secretary-General referred to the connection between this subject and the work in behalf of the Russian refugees. He recommended that one additional member with a moderate salary be added to the existing Social Section of the Secretariat and charged to act as a liaison officer among the international organizations interested in the protection and relief of children. He said that an International Congress for the Protection of Children had been invited by the Belgian Government to meet in July at Brussels. The members of the Council thought it best to see what that Conference would do before taking further action. Mr. Fisher pointed out that the International Labor Office pro- tected children against industrial exploitation, and that the Council had already taken up the question of the Russian refugees, among whom were many children. The Council decided to lay the matter on the table, and 102 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. authorized the Secretary-General, if invited, to send a rep resentative to the Brussels Congress. 34. COUNCIL'S ANNUAL REPORT TO ASSEMBLY— The Secretary-General and the President of the Council were author- ized to prepare the report of the Council to the Second Assembly. 35. LEAGUE COMMISSIONS REPRESENTED AT GE- NEVA — The Secretary-General proposed and the Council voted that the chairman and a delegation of not more than three mem- bers of each commission and committee of the League of Nation* should be asked to attend the Assembly meetings in Geneva, wherein their work was under discussion. Similar invita- tions were to go to the chairman of the Saar Valley Govern- ing Commission and to the High Commissioner at Danzig. Contemporary International Meetings BRITISH IMPERIAL. CONFERENCK. Coincident In time with the thirteenth meeting of tho Council of the League was the British Imperial Conference with the Premiers of the Dominions, which began in London on Monday, June 20, and lasted until August 5. The Premiers of Australia, New Zealand and South Africa all stressed tho necessity of close co-operation with the United States. Messrs. Hughes and Massey were favorable to a removal of the Anglo- Japanese Treaty, but still more favorable to efforts "to join America to prevent war." Mr. Hughes said that if Australia was to accept the Brit ish policies in Mesopotamia, Palestine, Russia, Egypt, Greeci. and Turkey, Australia must know the reasons for those poli- cies. Gen. Smuts made a notable speech, reported in the papers of June 22, in which, after urging that "the only path of safety for the British Empire is a path on which it can walk together with America," he said: "Our temptation is still to look on the European stage as of first importance. It is no longer so. Let us be friendly and helpful all round, but let us not be too deeply involved. Fires are still burning there, the pot is occasionally boiling over, but these are not really flrst-rate events any more. This state of affairs in Central Europe will probably continue for many years to come, and no act on our part could very largely alter the situation. Therefore, not from a, feeling of selfish- ness but in a, spirit of wisdom one would counsel prudence and reserve in our continental commitments, that we do nM let ourselves in for European entanglements more than 111 necessary, and that we be impartial, friendly and helpful to 103 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. all alike and avoid any partisan attitude in concerns of the Continent of Europe. "Undoubtedly the scene has shifted away from Europe to the Far East and to the Pacific. The problems of the Pacific are to my mind the world problems of the next fifty years or more. In these problems we are, as an empire, very vitally interested. Three of the dominions border on the door. There, too, are the United States and Japan. There also is China. The fate of the greatest humian population on earth will have to be decided. There Europe, Asia and America are meeting, and there I believe the next great chap- ter in human history will be enacted. "I ask myself what will be the character of that his- tory — will it be along the old lines, will it be the old spirit of national and imperial domination which has been the un- doing of Europe, or shall we have learned our lesson, shall we have purged our souls in the fires through which we have passed? Will it be a future of peaceful co-operation, of friendly co-ordination of all the vast interests at stake ? Shall we act in continuous friendly consultation, in the. true spirit of a society of nations, or will there once more be a. repe- tition of rival groups of exclusive alliances, and finally of a terrible catastrophe more fatal than the one we have passed through? That, to my mind, is the alternative; that is the parting of the ways at which we have arrived. "Now, that is the great matter, I take it, we are met to consider in this conference. If we are wisely guided at this juncture this conference may well become one of the great landmarks in history. It comes most opportunely. The American Senate has already made the first move in a unani- mous resolution calling for a conference of the United States, the British Empire and Japan. "Japan has been a, consistent supporter of the League of Nations. She is one of the great Powers with a permanent seat in the Council, and she has, so far as I can gather, con- sistently been a power for good. In the councils of the League of Nations the British Empire again is not only one of the strongest influences behind the League, but she is honestly and sincerely feeling her way to a better ordering of international relations. China is not only a member of the League but has been elected a member of the Council at the last meeting of the Assembly at Geneva. "All the great parties concerned in the Pacific and in Pa- cific policy are therefore pledged to friendly conference and consultation in regard to what is the most important and pos- sibly the most dangerous next phase of world politics. They are all pledged to the new system of conference and consul- tation either by membership of the League and Its councils 104 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. or, in the case of America, by a resolution which the Senate has just passed. It is now for this conference of ours to give the lead and guide the Powers concerned into a friendly con- ference, or system of conferences, in regard to_ this great issue." During the conference the British Government suggested to Washington the holding of a preliminary conference to discuss the agenda of the Washington Conference, at which preliminary conference I-.loyd George, Marquis Curzon, and the Dominion Premiers would represent the British Empire. It was stated in London that Japan wished to attend such a conference. The Japanese Government was then in great doubt about the Washington Conference, and wanted some preliminary assurances. Washington did not favor the sug- gestion and it was dropped. The Conference decided to improve the system of wire- less communications throughout the empire, to recommend uniform legislation regarding bills of lading, to have experts consider a plan for making patents valid throughout the em- pire, to have frequent consultations with the Dominions. A resolution was passed, South Africa dissenting, to recognize the rights of British Indians to citizenship in the empire. INTERNATIONAL CHAMBER OF COMMERCE. On Monday, June 27, in London, began the second meet- ing of the International Chamber of Commerce, which had been revived and reorganized at Atlantic City in 1919 by dele- gates from Great Britain, France, Belgium, Italy and the United States. In this second meeting fourteen nations were represented. The Chamber discussed the work of the International Communications Conference of the League of Nations at Bar- celona, and particularly the questions arising out of German reparations, the huge Inter-Allied war debts and the debts of Europe to the United States. These debts had been clearly tabulated by Secretary Mellon in a letter sent to the President for transmission to the Senate. Total debts by countries, as shown in the statements ac- companying Secretary Mellon'? letter.'were as follows: Great Britain, $4,166,318,358; France, $3,350,762,930; Italy, $1,648,034,050; Belgium, $375,280,147; Russia, $192,- 601,297; Poland, $135,661,659; Czecho-Slovakia, $91,179,527; Serbia, $51,153,159; Rumania, $36,128,494; Austria, $24,055,- 708 (for relief); Greece, $15,000,000; Estonia, $13,999,144; Cuba, $9,025,500; Armenia, $11,959,917; Finland, $8,281,926; Latvia, -5,132,286; Lithuania, $4,981,627; Hungary, $1,685,- 835, and Liberia, $26,000. 105 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Advances under the Liberty Loan included: Great Britain, $4,166,318,3B8; France, $2,950,762,938; Italy, $1,648.- 034,050; Belgium, $347,691,566; Russia, $187,729,750; Czecho- slovakia, $61,256,206; Serbia, $26,175,139; Rumania, $23,- 205,819; Greece, $15,000,000; Cuba, $9,025,000, and Liberia, $26,000. Obligations received on account of sales or surplus war material included: France, $400,000,000; Poland, $59,636,320; Belgium, $27,588,581; Serbia, Croats and Slovenes, $24,978,- 020; Czecho-Slovakia, $20,621,994; Rumania, $12,922,675; Estonia, $12,213,377; Lithuania, $4,159,491; Latvia, $2,521,- 869, and Russia, $406,082. Obligations held by the Grain Corporation included: Poland, $24,353,590; Austria, $24,055,708; Armenia, $3,931,- 505; Czecho-Slovakia, $2,873,238, and Hungary, $1,685,835. Obligations received from the American Relief Admin- istration included: Poland, $51,671,749; Finland, $8,281,926; Armenia, $8,028,412; Czecho-Slovakia, $6,428,089; Latvia, $2,610,417; Russia, $4,465,464; Estonia, $1,785,767, and Lithu- ania, $822,136. Secretary Mellon summarized the foreign debt as follows: Obligations for advances made under the various Liberty Bond acts, $9,435,225,329.24. Obligations received from the American Relief Adminis- tration, $84,093,963.35. Obligations received from the Secretary of War and from the Secretary of the Navy on account of the sale of surplus war material, $565,048,413.80. Obligations held by the United States Grain Corporation. $56,899,879.09. Total, $10,141,267,585.68. COUNCIL OF AMBASSADORS. It should be noted that on July 1 the Council of Ambas- sadors formally asked the United States Government if it would agree to postpone for twenty years its claim against Austria, in order to permit the Ter Meulen scheme of rehabili- tation to be applied. The League of Nations had already made the same inquiry but had elicited no reply. England and France "had already assented to a. twenty- year moratorium, and so had Japan and Czecho-Slovakia. Experts agreed that the new Austrian State Bank could not start unless assured that all Austria's creditors would give it twenty years in which to meet their claims. Meanwhile, on July 2, 1921, the President of the United States signed a. Joint resolution of Congress for the first time legally end- ing the war between the United States on the one hand and Germany and Austria-Hungary on the other. 106 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. TRAFFIC IN WOMEN AND CHILDREN. On June 30, an International Conference on the suppres- sion of the traffic in women and children, met at Geneva under the auspices of the League of Nations. The duties of the Conference are based on Article XXIII of the Covenant. Thirty-four States were represented, and several private as- sociations. The United States Government had not acknowl- edged the receipt of its invitation to send delegates, but Major and Mrs. Bascombe Johnson of Washington were present as representatives of the American Social Hygiene Association. In 1899 various unofficial organizations created at Lon- don an International Bureau for the suppression of the white slave traffic. Induced by this bureau, in 1904 fifteen Govern- ments signed a convention, promising: a. Correspondence between officials appointed to check this traffic. b. Watchfulness at railway stations and seaports. c. Questioning and repatriation of foreign prostitutes. d. Establishment of control over employment agencies. Another convention in 1910 called for penalties on those engaged in the traffic. The subject has now come under the authority of the League of Nations. The First Assembly provided for this Conference in the expectation that it would create a. Perma- nent Commission to function under the League Council. Several women were delegates to the Conference. The Conference voted: a. That the League Council should ask all States to ratify the Conventions of 1904 and 1910, or to adhere to them. b. That States should ratify or adhere on behalf of all their colonies and dependencies so as to protect women and children of every race and color. c. That States should provide by law for the punishment of offenses and of attempted offenses, and for the extradition of accused persons. d. That various measures of protection be everywhere assured for the benefit of women and children traveling alone, and that these measures be brought to the attention of the International Commission on Emigration, meeting at Geneva, under the auspices of the Labor Office. e. That the League interfere to stop deportations of women and children for political and military reasons. t. That all member-States, and all which are parties to the Conventions of 1904 and 1910, and all the private inter- national associations be asked to send to the Secretariat an annual report on their efforts to" check this traffic. 107 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. g. That the Council should name a Permanent Consulta- tive Commission representing five or six States, with from three to five assessors, which should advise the Council con- cerning the execution of all these agreements and concerning all international questions relating to this subject. The assessors should be chosen from among members ol certain great international organizations, such as the Interna- tional Office for the Suppression of the Traffic, the Jewish As- sociation for the Protection of Girls, the International Cath- olio Association for the Protection of Girls, the Federation of National Unions for the Protection of Girls, and a Women's International Organization. On the question of laws concerning prostitution the Con- ference could not agree. Seventeen States favored suppres- sion, while eleven advocated the maintainence of regulation. The Washington Conference Informal inquiries were made as early as May through our diplomatic representatives to asqertain whether an inter- national conference at Washington on limitation of arma- ments and Pacific and Asiatic problems would be acceptable to the Powers. Replies were favorable. Meanwhile the ques- tion of armaments had been much debated in Congress and especially In the Senate during the winter and spring. Sen- ator Borah of Idaho was the author of a resolution on the subject (first offered in January, 1921) which in its final form was offered as an amendment to the naval appropria- tions bill, as follows: "The President is authorized and requested to invite the Governments of Great Britain and Japan to send representa- tives to a conference which shall be charged with the duty of promptly entering into an understanding or agreement by which the naval expenditures and building programs of said Governments — the United States, Great Britain and Japan — shall be reduced annually during the next five years to such an extent and upon such terms as may be agreed upon, which understanding or agreement is to be reported to the respec- tive Governments for approval." This resolution was adopted by the Senate May 25 by a vote of 74 to 0, and, after the President had said he would welcome an expression of Congressional opinion favorable to the limitation of armaments by international agreement, the resolution was approved by the House of Representatives, June 29, by a, vote of 330 to 4. On July 10, this official statement from Washington an- nounced the purposes of the Administration: "The President, in view of the far-reaching importance 108 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. of the question of limitation of armament, has' approached with informal but definite inquiries the group of Powers here- tofore known as the principal Allied and Associated Powers, that is. Great Britain, France, Italy and Japan, to ascertain whether it would he agreeable to them to take part in a, con- ference on this subject, to be held in Washington at a time to be mutually agreed upon. If the proposal is found to be ac- ceptable, formal invitations for such a. conference will be issued. "It is manifest that the question of limitations of arma- ment has a close relation to Pacific and Far Eastern prob- lems, and the President has suggested that the Powers espe- cially interested in these problems should undertake, in con- nection with this conference, the consideration of all matters bearing upon their solution, with a view to reaching a com- mon understanding with respect to principles and policies in the Far East. "This has been communicated to the Powers concerned, and China has also been invited to take part in the discus- sion relating to Far Eastern problems." It was announced that the President would tentatively suggest November 11, Armistice Day, as the date for the opening of the Conference. Inasmuch as the question of a possible renewal of the Anglo-Japanese Agreement of July 13, 1911, was to be settled during the year, 1921, and inasmuch as this question was undoubtedly closely connected with the Pacific and Far East- ern problems to which President Harding referred, it is proper to note that, on July 7, 1921, the British and Japanese Governments united in notifying the League of Nations that, while the Agreement remains in force, the procedure pre- scribed in the Covenant shall prevail over that prescribed in the Agreement, if there should be any conflict between the two. It was at this same time that Japan, as before noted, wanted to determine beforehand what the Washington Con- ference would set before Japan, and the English Imperial Conference, perhaps for the sake of the Colonial Premiers rather than of Japan, showed a, similar wish. President Harding's Administration made it known on August 6 that it had understood the proposal of a preliminary conference as relating only to the representatives of the British Empire and the United States. Although Japan's interest in it had not then been revealed, the United States Government was unwilling to entertain the idea of a preliminary conference unless all Powers invited to the General Conference could at- tend the other, and that would seem to render the second conference unnecessary. 109 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Undoubtedly the Japanese Government feared that the United States Government was calling the Conference in the hope of reviewing- some settlements at Versailles and else- where upon which Japan set a high value. The Japanese were well aware that the United States was opposed to Japa- nese policies in Siberia and to the spirit of the famous 21 demands upon Peking; that the United States was protesting against the manner in which mandates had been assigned and against exclusive Japanese control of the cables at Yap; and the anti-Japanese agitations in California and other Western States were of course not forgotten. On July 14 Tokio informed Washington that it was will- ing to confer on limitation of armament, but wanted to know the nature and scope of the Far Eastern problems that were to be discussed. At the same time it was indicated that Japan regarded mandates and Shantung as disposed of bj the Treaty of Versailles, to which all these Powers except the United States were committed. Secretary Hughes answered, July 23, that he was willing to exchange opinions about the "nature and scope," but evaded any assent to a preliminary agreement. Japan's full acceptance of the invitation was finally received on July 27, but in it the Japanese Government admitted a discussion of Far Eastern problems that are closely related to the question of limitation of armament, and expressed the opinion that "introduction therein of problems such as are of sole concern to certain particular powers, or matters that may be regarded as accomplished facts, should be scrupulously avoided." Mixed Armaments Commission of the League At Paris, from July 16 to 19, the Mixed Commission on Reduction of Armaments held its first meeting. The Com- mission is composed of groups of experts. The civilian members appointed by the League Council are: Rene Viviani, France; Dr. Rivas Vicuna, Chile; H. A L.. Fisher, Great Britain; Carlo Schanzer, Italy; M. Tatsuke, Japan; former Premier Hjalmar Branting, Sweden. Mr. Branting was unable to be present, and his place was taken by M. Engberg. The military and naval members from the Permanent Disarmament Commission are: Admiral Penido, Brazil; Ad- miral Sir Somerset A. Gough Calthorpe, Great Britain; Rear- Admiral Marquis de Magaz, Spain; Marshal FayoUe, France: Major-Gen. Giovanni Marietti, Italy; General Inagaki, Japan. As representatives of the Provisional Economic and Financial Commi-ssion there are Dom Jancovici of Rumania and Professor Beuini of Italy from the Economic Section and 110 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Sir James Brunyate of India antl Albert Janssen of Belgium from the Financial Section. Professor Benin! was unable to attend this meeting. As representatives of the International Labor Bureau there are Messrs. Jouhaux of France, Oudegeest of Holland and Thorberg of Sweden from the workers, and Messrs. Hodacz of Czecho-Slovakia, Langkjaer of Denmark, and Fin- ley of Canada, who were named by the Secretary-General and the President of the Council to represent the employers. Messrs. Oudegeest and Flnley could not attend the meeting. The Commission first reviewed the work already accom plished by the Assembly, the Council and the Permanent Military Commission, particularly as regards the private man- ufacture of arms, the traffic in arms, the right of investiga- tion of armaments in ex-enemy States, the exchange of in- formation concerning military matters between various Mem- bers of the League. The Commission finally decided that the work entrusted to It should be distributed among three Sub-Commissions. The First Sub-Commission is to deal with the private manufacture of arms and war material, the Arms Traffic Con- vention, and the institution of a Central International Bureau tor the control of the traffic in arms. The Assembly having endorsed the Convention of St. -Ger- main, the object of which was to prevent the export of war materials into semi-civilized and warlike countries, all Mem- bers of the League are to be urged to ratify the Convention as soon as possible. Although some twenty Governments have expressed their intention of ratifying, it appears that the uni- versal adoption of the Convention is impossible until the United States adheres to it. The Sub-Commission will report on the situation and see what steps can be taken. The Cen- tral International Bureau which is to be created to deal with the traffic in arms will of course depend on the future of the Convention. The Second Sub-Commission will deal with the right of investigation of the armaments of the ex-enemy States in con- formity with Article 213 of the Treaty of Versailles, and with the corresponding Articles of the Treaty of St.-Germain. Neuilly and Trianon, in accordance with the decisions already taken by the Council of the League of Nations; the mutual exchange of information on armaments between the Members of the League; and the mutual control of this information, as provided for by Article 8 of the Covenant. The Third Sub-Commission will inquire Into military. ex- penditure on armies. A statistical Inquiry will compare the actual expenditure on armaments in 1921 with that of 1913, the effectives of the various armies and their stocks of war m SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. material. The Sub-Commission will try to determine the re- lation between national expenditure on armaments and the military budgets of the various States. Vilna It had been agreed at the thirteenth meeting of the Coun- cil that negotiations between Poland and Lithuania should be resumed at Brussels on July 15. On that date the Polish Government declared that the Council's demand for the re. duction of Zeligovski's army by removing the. Polish elements, dismissing many of the others, and reorganizing the remainder as a local militia, would be submitted to Gen. Zellgovski. The Lithuanian Government informed the League on July 17 that its delegates would not come to Brussels. The Polish Government, on July 16, appealed to the League of Nations to protect the Polish minority in the Kovno district of Lithuania, alleging that the three Polish members of the Kovno' Diet had resigned, after they had been mobbed in the Diet on July 6 for sending to the League of Nations a memorandum of remonstrance and appeal. On July 22, the Lithuanian Government refused further action under the Council's plan, on account of lack of guar- antees for the good faith of Zeligovski and the Poles. Each Government affirmed its readiness to resume direct negotia- tions with the other. Consequently M. Hymans asked them to send delegates to Geneva for that purpose, and they met there on August 27. Upper Silesia On July 1 the Inter- Allied Commission announced at Oppeln that by July 5 all irregular Polish and German forces would be withdrawn and disbanded. Amnesty was proclaimed for all illegal acts during the uprising, except such as were committed for purposes of gain, personal revenge, or cruelty. The amnesty would not protect those who after a specified interval were in possession of arms or explosives, without due authority therefor. During the first week in July Lloyd George proposed a conference to fix the disputed boundary line in Silesia. The French Government replied that the time had not yet come for a conference. July 20 the British Government renewed the proposal of a conference for the same purpose, and M. Briand again declined, but proposed that more Allied troops be sent to Silesia. On the same day the Allied Commission in Silesia 112 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. asked tor more troops and also requested that the boundary be determined as soon as possible. The French contention was that the Supreme Council should not make a decision until there were enough troops in Silesia to enforce it, anticipating violent opposition. It was known that France would not approve any decision that deprived Poland of the territory which it claimed. Allied Control of Constantinople At the same time the French and British Governments were in disagreement over Constantinople, where the British High Commissioner was accused of arrogating to himself a solitary authority, leaving his French and Italian colleagues in a, corner; in disagreement over the Greek-Turk conflict in Asia Minor, the English favoring the former and the French the latter; and in disagreement about the Ruhr ports, from which the English wished the Allied soldiers to be with- drawn. Heligoland July 23 the people of Heligoland sent a petition to the League of Nations asking that the island be either neutralized under the protection of the League or reannexed to Great Britain. International Commission of the Danube Representatives of the Allied Powers met at Paris, July 25, and signed a convention for the internationalization of the Danube River. The International Danube Commission was immediately notified that hereafter it would be in complete control of all matters pertaining to the river, as provided In the Treaty of Versailles, Articles 346-353. Technical and Consultative Commission on Communications and Transit This Commission, an outcome of the Barcelona Confer- ence, met for the first time at Geneva, July 25-28. Its first duty is to deal with all matters that arise out of that part of Article 23(e) of the Covenant which concerns freedom of communications and transit. The Commission also is to assist the Council and the Permanent Court of International Justice in a number of cases provided for in the various clauses of the Treaties of Peace concerning ports, waterways 113 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and railways, particularly as regards the settlement of dif- ferences. The Commission will supervise the application of the Conventions passed at Barcelona, suggest any changes that it considers necessary, and assist in the settlement of any differences that may arise between States over the inter- pretation of these Conventions. The Commission consists of the following members: M. van Eysinga, Professor at the University of Leyden, Member of the Central Rhine Committee, Holland; M. Stie- venard. Member of the Belgian Delegation of the Central Rhine Comimttee, Belgium; M. Montarroyos, engineer, for- mer Captain of the General Staff, Brazil; M. Francisco Amu- nategui, Secretary-General of the Mixed Courts of Arbitra- tion, Mexico; Dr. Chou-Wei, civil engineer, China; M. Aguero, Minister to Berlin, Cuba; M. Colding, Departmental Head at the Ministry of Public Works, Denmark; Col. Baldwin, Brit- ish representative on the Waterways Commissions, British Empire; M. Brockmann, Inspector-General of Roads and Bridges, Spain; M. Pusta, Estonian Minister to Paris, Esto- nia; M. Claveille, Senator, former Minister of Public Works. President of the Rhine Commission, France; M. Sinigalia, Chief Inspector of Railways, Italian representative on the Waterways Commission, Italy; Dr. Steitake, former Director- General to the Ministry of Railways, Japan; M. Wieniarski, former Professor at the University of Poznan, Poland; M. Herold, Director of the Toggenburg Railways, Privat-Docent at the University of Zurich, Switzerland; M. Fernandez y Medina, Uruguayan Minister to Spain, Uruguay. The Commission asked the President of the League Council, in reminding States of the need of signing the Bar- celona Conventions, to suggest to States distant from Geneva that their delegates to the Second Assembly might have ple- nary powers to confirm those Conventions. The Commission adopted a draft scheme for future General Conferences which is to be submitted to the Second Assembly. The Commission associated itself with the conclusions about passports, fees, customs formalities, and tickets, adopted by the Transit Conference at Paris, in October, 1920, and noted that some States had already put those recommen- dations in force. The Commission asked M. Sinigalia to prepare a memo- randum on methods by which electric power might be shared among neighboring States. The Commission, following the Council's advice to obtain representation from one or more Danubian riparian States, voted to ask M. Lancas, Director of the Transport Service of the Czecho-Slovak Ministry of Railways, to serve on the Commission as an expert. The Commission organized itself in, three ?ufe-commla^ 114 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. sions, one on Railway Transport, one on Water Transport, and one on General Questions and Statistics. The Supreme Council UPPER SILESIA — The Supreme Council met at Paris, August 7-13. The first business was the Upper Sileslan ques- tion. A brief review of the controversy shows these facts: The controversy over Silesia arises from different inter- pretations of the result of the plebiscite. The original draft of the treaty with Germany gave Upper Silesia to Poland un- conditionally. In consequence of Germany's strong protest, supported in the Peace Conference by Mr. Lloyd George, it was decided to apply the principle of self-determination and organize a plebiscite under the supervision of a commission, on which were to be represented Great Britain, France, Italy and the United States. The United States was never represented be- cause it did not ratify the treaty. The commission was directed to take a vote by townships and empowered to draw a frontier between Germany and Poland on the basis of the vote but taking into account, so read the treaty, the wishes of the inhabitants as shown by the vote and the geographical and economic conditions of the region. The whole controversy turns upon the interpretation of the phrase "geographical and economic conditions." The vote was: For Germany, 704,516; for Poland, 471,- 523. The farming districts were largely for Germany. The important mining and manufacturing townships have a ma- jority for Poland. The Poles interpreted the result as giving them virtually all of the country east of the River Oder. Germany demands Upper Silesia as a whole. The commission, which under the treaty could decide the question by a majority vote, was unable to arrive at a decision. The French Commissioner drew the frontier line along the Oder, giving Poland all the mining district of 903 townships, of which 673 voted Polish, 230 German, and giv- ing to Germany 526 townships, of which 503 voted German and 23 Polish. The British plan concedes to Poland a small portion of the mining district, where the Poles are in a clear majority. The Italian commissioner gives Poland less than the French, but more than the British. The question is complicated by the Polish insurrection in the disputed territory, assisted by Polish soldiers, and by the German attempt to drive the Polish forces away. The Council listened to experts representing all parties, and to members of the Inter-Allied Commission. Neither 115 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Lloyd George nor Briand would accept the boundary lines proposed by the other. England, Japan and Italy could agree, but France would not approve of their conclusions. On August 12 Lloyd George proposed to end the dead- lock by turning over the problem to the Council of the League of Nations. This was agreed to and the premiers pledged themselves to accept the decision of the League. One reason why Briand was willing to accept this solu- tion may be found in the fact that decisions in the League Council must be unanimous. The text of the resolutions adopted is as follows: "The Supreme Council, before rendering its decision upon the Upper Silesian frontier between Germany and Po- land, conformable with Article 88 of the Treaty of Versailles, decides pursuant to Article XI, paragraph 2 of the Covenant of the League of Nations, to submit to the Council of the League of Nations the difficulties attending the fixing of the frontier and to invite the recommendation of the Council as to the line that the principal Allied and Associated Powers lay down. "The Council of the League of Nations is requested to regard the matter as one of great urgency, in view of the sit- uation in Upper Silesia." Ambassador Harvey, who sat with the Council, when called upon for his vote, made this statement: "The President of the United States has felt from the beginning that this matter was one of distinctly European concern. It will be with relief, therefore, that he will hear of the confirmation of this view by the Supreme Council in referring the question to a body with which the United States is not associated. Consequently, as the representative of the President, I shall refrain from participating in this decision." It is only fair to recall, in connection with this state- ment, that Japan, China and Brazil are non-European Powers represented in the League Council. GBECO-TURKISH WAR— The Supreme Council also dis- cussed the Greco-Turkish war in Anatolia. Lloyd George said that the Greeks were entitled to proceed on the assumption that the treaty of Sevres (with Turkey) no longer existed. The Council, in effect, washed its hands of any responsibility for the war in Asia Minor, and, proclaiming that the time for mediation had not come, practically invited the belligerents to fight it out. The Council announced that the Allies were neutral, but that all nationals might sell arms or loan money to either side. The Council also voted that the Commission at Constan- 116 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tinople should notify the Governments at once if the Straits were threatened. BELIEF WORK IN RUSSIA— The Council approved of the creation of an International Famine Belief Commission to Investigate, if possible, the reported famine In Russia and to consider relief measures. Because Senator Joseph Nou- lens, former French Ambassador to Russia and prominent supporter of Gen. Wrangel, headed the French delegation in the Commission, and was later named as Chairman, the Soviet Government would have no dealings with the Commis- sion, which was therefore helpless. Meanwhile with the approval of the United States Gov- ernment, the American Relief Association (Mr. Hoover's or- ganization) proposed to help feed starving Russia, provided that first of all American citizens held as prisoners in Russia be released. The Soviet authorities agreed to this on August 13, and as soon as possible thereafter about a dozen Ameri- can prisoners were brought to the frontier and liberated. On August 19, at Riga, Mr. Walter L. Brown, represent- ing the A. R. A., and M. Lltvinov, representing Soviet Rus- sia, reached an agreement based on the principle of the com- plete independence of the A. R. A. in its relief work. The chief fear of the Soviet leaders was that the A. R. A. would cloak a propaganda hostile to Bolshevism. The A. R. A. promised that its staff would engage In "no political or com- mercial activities whatever." Then began a work which has saved millions of Russian lives. OCCUPATION OF RUHR PORTS— The Council voted to continue the occupation of the Ruhr ports until the next meet- ing of the Council, but to lift the economic barrier along the Rhine if Germany made the payments agreed upon, and would cease its boycott of French goods. AUSTRIAN RELIEF— The Council adopted a resolution asking the United States Government to hasten legislation which would permit it to co-operate In the plan to help Austria. TRIALS OF WAR ORIMINALS—The Council voted to appoint two judges from each Allied State to examine and report whether justice had been done at the Leipsic trials of German war criminals. Diplomatic Privileges of the League Staff A judicial decision at Geneva, August 22, upheld Article VII of the Covenant concerning the diplomatic privileges and Immunities of employees of the League of Nations. 117 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. A bootmaker sought to attach the salary of a clerk in the International Labor Offlce in payment of a debt, but the Court held that the salaries of persons working tor the bureau could not be attached for debt. The bootmaker appealed to a higher court, which upheld the lower, basing its decision on Article 7 of the Treaty of Versailles, according to which buildings and lands in the oc- cupation of the League are inviolate. The higher court ruled that the International Labor Bureau was a branch of the League of Nations and that therefore all its staff and prop- erty were extraterritorial. In giving its judgment the Court added that, although legal action was not possible, the heads of the League and the bureau might be approached with a. view to insuring that the members of their staffs meet their obligations. Official Invitations to the Washington Conference On August 11 Secretary Hughes issued formal invita- tions to Great Britain, France, Italy and Japan in this form; The President is deeply gratified at the cordial response to his suggestion that there should be a conference on the subject of limitation of armament, in connection with which Pacific and Far Eastern questions should also be discussed. Productive labor is staggering under an economic bur- den too heavy to be borne unless the present vast public expenditures are greatly reduced. It is idle to look for sta- bility, or the assurance of social justice, or the security of peace, while wasteful and unproductive outlays deprive efforl 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 justification, but is a constant menace to the peace of the world rather than an assurance of its pres- ervation. Yet there would seem to be no ground to expect the halting of these increasing outlays unless the Powers most largely concerned find a satisfactory basis for an agreement to effect their limitation. The time is believed to bo oppor- tune for these Powers to approach this subject directly and in conference; and while, in the discussion of limitation ot armament, the question of naval armament may naturally have first place, it has been thought best not to exclude ques- tions pertaining to other armament to the end that all prac- ticable measures of relief may have appropriate considera- tion. It may also be found advisable to formulate proposals 118 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. by which in the interest of immunity the use of new agencies of warfare may be suitably controlled. It Is, however, quite clear that there can be no final as- surance of the peace of the world in the absence of the de- sire for peace, and the prospect of reduced armaments is not a hopeful one unless this desire finds expression in a prac- tical effort to remove causes of misunderstanding and to seek ground for agreement as to the principles and their appli- cation. It is the earnest wish of this Government that through an interchange of views with the facilities afforded by a conference, it may be possible to find a solution of Pa- cific and Far Eastern problems of unquestioned Importance at this time, that is, such common understandings with respect to matters which have been and are of international concern as may serve to promote enduring friendship among our peoples. It. is not the purpose of this Government to attempt tc define the scope of the discussion in relation to the Pacific and Far East, but rather to leave this to be the subject of suggestions to be exchanged before the meeting of the con- ference in the expectation that the spirit of friendship and a cordial appreciation of the importance of the elimination of sources of controversy will govern the final decision. Accordingly, in pursuance of the proposal which has been made, and in the light of the gracious indication of its ac- ceptance, the President invites the Government of Great Britain to participate in a, conference on the subject of limi- tation of armament, in connection with which Pacific and Far Eastern questions will also be discussed, to be held in Wash- ington on the 11th day of November, 1921. The text of the separate invitation sent to the Chinese Government to participate in the disarmament conference was also made public as follows: The President is deeply gratified at the cordial response to his suggestion that there should be a conference on the subject of limitation of armament, in connection with which Pacific and Far Eastern questions should also be discussed. It is quite clear that there can be no final assurance of the peace of the world in the absence of the desire for peace, and the prospect of reduced armaments is not a. hopeful one unless this desire finds expression in a practical effort to re- move causes of misunderstanding and to seek ground for agreement as to principles and their application. It is the earnest wish of this Government that through an interchange of views, with the facilities afforded by a conference, it may be possible to find a solution of Pacific and Par Eastern prob- lems, of unquestioned importance at this time — that is, such common understandings with respect to matters which have 119 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. been and are of International concern as may serve to pro- mote enduring friendship among our peoples. It Is not the purpose of this Government to attempt to aefine the scope of the discussion in relation to the Pacific and Far East, but rather to leave this to be the subject ot suggestions to be exchanged before the meeting of the con- rerence, In the expectation that the spirit of friendship and a cordial appreciation of the importance of the elimination of sources of controversy will govern the final decision. Accordingly, in pursuance of the proposal which has Deen made and in the light of the. gracious indication of its acceptance, the President invites the Government of the Re- public of China to participate in the discussion r>f Pacific and Far Eastern questions, in connection with the conference on the subject of limitation of armament, to be held in Wash- ington on the 11th day of November, 1921. All these Governments accepted in cordial terms during the next fortnight. Subsequently, on October 4, invitations were also sent to Belgium, Portugal and the Netherlands be- cause of their colonial and financial interests in the Far Bast. Their participation was limited to Pacific and Far Eastern problems. Chicherin, Minister of Foreign Affairs in Moscow, sent to the United States Government a demand that Russia and the Far Eastern Republic (east of Lake Baikal) should also be Invited to the Conference. Dr. Sun Tat Sen also asked that the Chinese Government at Canton, of- which he is presi- dent, should be invited as well as the Peking Government. These appeals were not officially heeded, but the Far Eastern Republic sent a delegation, which of course received no pub- lic recognition. Upper Silesia Special Meeting of the League Council. As soon as Viscount Ishii, President of the League Coun- cil, received from M. Briand, President of the Supreme Coun- cil at its Paris meeting, the official letter describing the action of the latter Council concerning Upper Silesia, the Council of the League was called to meet at Geneva on August 29. On that day the Council assembled in special session and voted to accept the invitation from the Supreme Council to determine the Polish-German frontier in Upper Silesia. Al- though Mr. Wellington Koo was to be president of the Coun- cil at its regular session it was agreed that Viscount Ishii, on account of his special study of the Silesian question, should remain President of the Special Session. On Thursday, Sep- tember 1, a second Extraordinary Session was held, and the 120 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Upper Silesian question was referred to a committee consist- ing of M. Hymans (Belgium), M. da Cunha (Brazil), Mr. Wellington Koo (China), and M. Quinones de Leon (Spain). This Committee received full authority to employ experts, hold hearings, and employ the Secretariat. The final report of this Committee was presented to the Council at another special session at Geneva, October 11-12. The Council unanimously approved it, and sent it to the Council of Ambassadors, which had been charged by the Powers in the Supreme Council with the duty of receiving it. It was adopted by the Council of Ambassadors on October 20, and was immediately communicated by Premier Briand to the Governments of Germany and Poland, with the as- surance that the four great allied 'Powers supported the decision.* The first part of the report defined the new frontier. It gave to Poland less than France would have given, but more than the majority in the Supreme Council would have fa- vored. It was inevitable that German minorities would be placed under the Polish flag, and that Polish minorities would be left in Germany. The purpose was to give to each State a number of electors not far different from the total vote in its favor in the plebiscite, and at the same time to equalize and minimize minorities as much as possible. The second part of the report described the measures necessary to insure continuity in the economic life of Upper Silesia after the partition. During the transitional period the Inter-Allied Commis- sion is to maintain order. A Delimitation Commission must at once proceed to trace, the boundary line and mark it. Four weeks after their work is finished, in accordance with the treaty, the Allied troops can be withdrawn. A Mixed Commission is to be named, comprising two Poles, two Germans, and a President of another nationality who may be appointed by the League Council. This Commission should help the Inter-Allied Commission in the transition to a, provisional regime, and in the applica- tion of temporary measures, hereafter to be embodied in a General Convention between Germany and Poland, The purposes of such measures are: "To preserve, for a certain time, for the industries of the territory separated from Germany, their former markets, and to insure the supplies of raw material and manufactured products which are indispensable to these industries; to avoid the economic disturbances which would be caused by the im- *For text of decision with map, see Current History for December, 1921, pp. 600-604. 121 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. mediate substitution of the Polish mark for the German marlc as the sole legal currency in the territory assigned to Poland; to prevent the working of the railways serving Upper Silesia from being affected by the shifting of the political frontier; to regulate the supplies of water and electricity; to maintain freedom of movement for individuals across the new frontier; to guarantee respect for private property; to guarantee, as far as possible, to the workers, that they shall not lose, in the portion of the territory assigned to Poland, the advantages which were secured to them by German social legislation and by their trades union organization, and, finally, to insure the protection of minorities on the basis of an equitable reciprocity." For fifteen years the railroads of both sections must be operated as one system with the same rates for both sides of the border. A reciprocal agreement must be established for water and electric supplies. The existing German currency shall be used for fifteen years throughout the district. For fifteen years raw products fromi both sides of the line shall pass duty free to other parts of the industrial zone, and provision made for free passage of half finished products from one side of the border and back again under special permits. Both countries will agree during the prescribed fifteen years to take no unduly restrictive measures affecting the other sec- tion of the industrial area. On the basis of the average busi- ness year from 1911 to 1913, Poland shall supply to Germany a proportion of the product of the coal mines she gets and Germany shall furnish a proportion of iron ore for fifteen years. For fifteen years residents on one side of the line who work on the other shall pass freely on a commission pass with- out further formalities. In case of any dispute arising which the Commission is not able to settle amicably, either Government may refer it to the League of Nations and must bind itself in advance to accept the findings of Geneva. Elaborate directions are given tor protection of nationality claims and securing. the rights of minorities, in all cases the right of appeal to the League of Nations being recognized and agreed to by both parties. The importation into German territory of products com- ing from the Polish zone will be exempt from duty for three years. All Poles living in the German zone and all Germans liv- ing in the Polish zone are to keep their respective domiciles over the fifteen years. All Poles over eighteen years old liv- ing in the German zone are to have two years in which to choose their nationality. An arbitral tribunal should be established to settle any 122 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. private disputes caused by the application of these agree- ments during the period of adjustment. The Allied Powers asked the League Council to name the persons who will preside over these negotiations, and to name also the presidents of the Mixed Commissions and the arbitral tribunal. Treaty Between the United States and Germany Following the declaration by joint resolution of our Con- gress, signed by the President on July 2, 1921, that the war was ended, a treaty with Germany was negotiated and signed at Berlin on August 25. This was the text: TRE3ATY BETWEEN THE UNITED STATES OF AMERICA AND GERMANY. Considering that the United States, acting in conjunction with its co-belligerents, entered into an armistice with Ger- many on November 11, 1918, in order that a treaty of peace might be concluded; Considering that the Treaty of Versailles was signed on June 28, 1919, and came into force according to the terms of its Article 440, but has not been ratified by the United States; Considering that the Congress of the United States passed a joint resolution approved by the President July 2, 1921, which reads in part as follows: Resolved, by the Senate and House of Representatives of the United States of America in Congress assembled, That the state of war declared to exist between the Imperial Ger- man Government and the United States of America by the joint resolution of Congress approved April 6, 1917, Is hereby declared at an end. Section 2. That in making this declaration, and as a part of it, there are expressly reserved to the United States of America and its nationals, any and all rights, privileges, indemnities, reparations or advantages, together with the right to enforce the same, to which it or they have become entitled under the terms of the armistice signed November 11, 1918, or any extensions or modifications thereof, or which were acquired by or are in the possession of the United States of America by reason of its participation in the war or to which its nationals have thereby become rightfully entitled; or which, under the Treaty of Versailles, have been stipulated for its or their benefit; or to which it is entitled as one of the principal Allied and Associated Powers; or to which it is en- titled by virtue of any act or acts of Congress, or otherwise. Section 5. All property of the Imperial German Govern- ment or its successor or successors and of all German nationals 123 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. which was, on April 6, 1917, or has since that date come into the possession or under control of, or has been the subject of a demand by the United States of America, or of any of its officers, agents or employes, from any source or by any agency whatsoever, and all property of the Imperial^ and Royal Austro-Hungarian Government, or its successor or successors, and of all Austro-Hungarian nationals which was on Decem- ber 7, 1917, or has since that date come into the possession or under control of or has been the subject of a demand by the United States of America or any of its officers, agents or employes from any source or by any agency whatsoever, shall be retained by the United States of America and no disposition thereof made, except as shall have been heretofore or spe- cifically hereafter shall be provided by law, until such time as the Imperial German Government and the Imperial and Royal Austro-Hungarian Government or their successor or successors shall have respectively made suitable provision for the satisfaction of all claims against said Governments, re- spectively, of all persons, wheresoever domiciled, who owe permanent allegiance to the United States of America and who have suffered, through the acts of the Imperial German Government or its agents, or the Imperial and Royal Austro- Hungarian Government or its agents, since July 31, 1914, loss, damage or injury to their persons or property, directly or indirectly, whether through the ownership of shares of stock in German, Austro-Hungarian, American or other cor- porations, or in consequence of hostilities or of any operations of war, or otherwise, and also shall have granted to persons owing permanent allegiance to the United States of America most-favored-nation treatment, whether the same be national or otherwise, in all matters affecting residence, business, pro- fession, trade, navigation, commerce and industrial property rights, and until the Imperial German Government and the Imperial and Royal Austro-Hungarian Government, or their successor or successors, shall have respectively confirmed to the United States of America all fines, forfeitures, penalties and seizures imposed or made by the United States of America during the war, whether in respect to the property of the Im- perial German Government or German nationals or the Im- perial and Royal Austro-Hungarian Government or Austro- Hungarian nationals, and shall have waived any and all pecuniary claims against the United States of America. Being desirous of restoring the friendly relations existing between the two nations prior to the outbreak of war, have for that purpose appointed their plenipotentiaries: The President of the United States of America, Ellis Loring Dresel, Commissioner of the United States of America to Germany, and 124 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The President of the German Empire, Dr. Friedrlch Rosen, Minister for Foreign Affairs, Who, having communicated their full powers, found to be in good and due fornn, have agreed as follows: ARTICLE ONE. Germany undertakes to accord to the United States, and the United States shall have and enjoy, all the rights, priv- ileges, indemnities, reparations or advantages specified in the aforesaid joint resolution of the Congress of the United States of July 2, 1921, including all the rights and advantages stipu- lated for the benefit of the United States in the Treaty of Versailles which the United States shall fully enjoy notwith- standing the fact that such treaty has not been ratified by the United States. ARTICLE TWO. With a view to defining more particularly the obligations of Germany under the foregoing article with respect to cer- tain provisions in the Treaty of Versailles, it is understood and agreed between the High Contracting Parties: (1) That the rights and advantages stipulated in that treaty for the benefit of the United States, which it is in- tended the United States shall have and enjoy, are those defined in Section One, Part Four, and Parts Five, Six, Bight Nine, Ten, Eleven, Twelve, Fourteen and Fifteen. The United States, In availing itself of the rights and advantages stipu- lated in the provisions of that treaty mentioned in this para- graph will do so in a manner consistent with the rights ac- corded to Germany under such provisions. (2) That the United States shall not be bound by the provisions of Part One of that treaty, nor by any provisions of that treaty including those mentioned in Paragraph One of this Article, which relates to the Covenant of the League of Nations, nor shall the UnitecJ States be bound by any action taken by the League of Nations, or by the Council or by the Assembly thereof, unless the United States shall expressly give its assent to such action. (3) That the United States assumes no obligations under or with respect to the provisions of Part Two, Part Three, Sections Two to Eight inclusive of Part Four and Part Thir- teen of that Treaty. (4) That, while the United States is privileged to par- ticipate in the Reparation Commission, according to the terms of .Part Eight of that Treaty, and in any other commission es- tablished under the Treaty or under any agreement supple- 125 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. mental thereto, the United States is not hound to participate in any such commission unless it shall elect to do so. (5) That the periods of time to which reference is made in Article 440 of the Treaty of Versailles shall run with respect to any act or election on the part of the United States from the date of the coming into force of the present Treaty. ARTICLE THREE. The present Treaty shall be ratified in accordance with the constitutional forms of the High Contracting Parties and shall take effect immediately on the exchange of ratifications, which shall take place as soon as possible at Berlin. In witness whereof, the respective plenipotentiaries have signed this Treaty and have hereunto afflxed their seals. Done in duplicate in Berlin, this 25th day of August, 1921. This treaty was sanctioned by the Senate October 18, 1921, by a vote of 66 to 20. On the same day the Senate ap- proved the similar treaties with Austria and Hungary. Rati- fications of the German Treaty were exchanged at Berlin on November 11. On the next day President Harding formally proclaimed peace as existing since July 2. After the signins- .of the treaty the French Foreign Office let it be known that the references in this treaty to the Treaty of Versailles in- dicated the need of an exchange of notes and guarantees among the Allied and Associated Powers, but the suggestion was not heeded at Washington. Self Determination of Peoples BARANYA — ^After the war closed, and while the treaty of peace with Hungary was being negotiated, the Yugo-Slav forces occupied territory in the Danube Valley north of Bel- grade, which was finally assigned to Yugo-Slavia by the treaty. On the northern limit of this territory was the district of Baranya, of which Pecs is the capital. Under the treaty, the Allied officers on the frontier were told that Baranya would be returned to Hungary. Its population is chiefly Magyar. The Communists among them did not wish to be placed under Horthy's government, so in the summer of 192) they attempted to declare Baranya an independent republic, another sequence, perhaps, of Plume and Vilna. August 17 the Council of Ambassadors notified Belgrade that its troops must evacuate Baranya, and notified the Allied representa- tives that there would be no State of Baranya, but that the Hungarians would take charge of it as soon as the Yugo- slavs retired. 126 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. WEST HUNGARY. BUERGBNLAND— The peace treaties with Austria and Hungary provided that Buergenland, a strip ot 'territory in the Danube Valley, not tar from Vienna, 1,700 square miles with a. population of 350,000, mostly Germans, should be assigned to Austria. August 29, the ceremonies of transfer from Hungary to Austria were scheduled to take place. Austrian gendarmes occupied part of it. but were kept out of Oedenburg, the chief town, by Hungarian soldiers. The Hungarian Government announced that this section would be retained as security for Hungary's financial claims against Austria. The Austrian and Hungarian forces faced each other and the Austrian Government appealed to the Powers. CROATIA — The powerful Peasant Party declared indepen- dence of Yugo-Slavia, Bee. 8, 1920, adopted a constitution, June 26, 1921, and has maintained toward Serbia an attitude of non-cooperation. IRAK — ^A native Arab Government for Mesopotamia, from Mosul to the Persian Gulf, was set up by the English on August 23, when Feisal, third son of the old Shereef of Mecca now King of the Hedjaz, was crowned King of Irak. After the end of the war, in 1919, Feisal was chosen by an Arab Congress at Damascus to be King of Syria. This did not harmonize with the French plan for administering Syria as a, mandated land, and after clashes between Arab& and the French, Feisal was ejected from Syria by the French High Commissioner, Gen. Gouraud. During the winter ol 1921, Feisal was in London and gained the goodwill of the British Government. A referendum among the natives of Irak resulted In his favor, and the chief notables were brought to his support. The establishment of this new Government under Feisal was not regarded with approval in France. SYRIA — While these events were being rehearsed in Bagdad, Gen. Gouraud was announcing a French plan of native self-government in Syria. That land was to be divided into six autonomous districts, each with a government organ- ized in accordance with local prescriptions of race, language, industry and customs. Only the northern boundary district, bordering on Kemal Pasha's territories, remained under French military administration. Fourteenth Session of the Council and Second Meeting of the Assembly, Day by Day The Council of the League of Nations began its four- teenth session at Geneva on August 30, Mr. Wellington Koo of China being President. 127 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 1. Tuesday, August 30. SAAR BASIN GOVERNING COM- MISSION — The Council re-elected Br. Hector of Saarlouis to be Saar member of the Commission for one year from Septem- ber 20, 1921, and arranged for substitutes for Chairman Rault during his absence on vacation. 2. PROTECTION OF MINORITIES— The Council accepted responsibility for the protection of minorities in Rumania and Hungary. 3. NEUTRALIZATION OF AALAND ISLANDS— The Sec- retary-General reported that letters of invitation to a. confer- ence on demilitarizing and neutralizing the Aaland Islands had been sent, on August 10 to ten Powers, and all had accepted except Germany and Italy, which had not replied. Their ac- ceptances were announced on Friday, September 2. 4. EPIDEMICS COMMISSION— The Council approved a report from Dr. Norman White, Chief Commissioner, on the work of the Commission in Poland, showing receipts in one year of £126,397, 9, 4, contributed by seventeen States, and an expenditure of £119,067. 5. APPLICATIONS FOR ADMISSION— The rectuests of Estonia, Latvia and Lithuania for admission to the League were referred to the Permanent Military Commission, in accord- ance with Article I of the Covenant. 6. FINANCIAL ADMINISTRATION— The Council voted that, inasmuch as a report of a committee of experts on the organization and management of the League is to come before the Second Assembly, the presentation of a code of rules for financial administration should be postponed for one year, and that the Assembly should consider the necessity of continuing the system of transfers within the Budget during the year 1922. A list of appointments and resignations in the Secre- tariat received approval. 7. DEPORTATIONS IN TURKEY— The Council received and approved for transmission to the Assembly reports on de- portations of women and children in Turkey from two members of the Commission of Inquiry, Dr. W. A. Kennedy and Miss Edith Cushman. These reports gave the total number of Armenian or- phans reclaimed from Moslem control as 90,819, and esti- mated the number still left in Turkish institutions and homes as 73,350. 8. Friday, September 2. ATTENDANCE OF OUTSIDERS — The Council voted that any League member who wrote to the Council suggesting a change in procedure should be invited 128 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. to altend the meeting: wherein the letter was disciisserl, and be prepared to give explanations. 9. ALBANIA TS. YUOO-SLiAVIA— The dispute which had been presented to the Council in June was again brought before it. Yugo-Slavia now claimed that the Mirdites, a Christian tribe of Albanians, had organized a separate republic, Imply- ing that there were now two Albanias. Bishop Noli answered that the Mirdite Government and capital were situated in Yugo-Slavia. He said that the Al- banian Executive Council at Tirana had four members rep- resenting four religious groups, and that the Albanian Par- liament had two parties, one (iProgressive) with a majority of Christians and a Moslem leader; the other (Popular) with many Mohammedans led by a Christian. The Council adopted a report by Mr. Balfour to the effect that Albania had asked the Assembly to determine its fron- tiers and the Council to prevent the Serbs from violating the frontiers. Both m.atters should go to the Assembly. 10. PROVISIONAL HEALTH COMMITTEE— The Council received a report on the work of this Committee, which was amended, adopted and approved for transmission to the Sec- ond Assembly. The Committee itself had been in session at Geneva August 25-29. It was agreed that for the present the Health Organiza- tion of the League shall consist of the Health Committee, the secretariat of which, organized by the Secretary-General and responsible to him, will be placed under the Medical Director. This Committee, first constituted by the Council June 22, 1921, will meet frequently and act as an executive com- mittee. It will collaborate with the Permanent Committee of the Office International d'Hygiene Publique, which is a. deliberative body, meeting once or twice a year, and com- posed of the representatives of the Health Administrations of 39 countries. The duties of the Health Committee of the League are: (a) To advise the League of Nations in matters affecting health. (b) To bring administrative health authorities in differ- ent countries into closer relationship with each other. (c) To organize means of more rapid interchange of in- formation on matters where immediate precaution against disease may be required (e.g., epidemics), and to simplify methods for acting rapidly on such information where it af- fects more than one country. (d) To promote the conclusion of international agree- 5 129 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ments necessary for administrative action in matters of health, and their revision when circumstances require, and to collect information as to action taken to give effect to such agree- ments. (e) To co-operate with the International Labor Office in matters affecting Labor and Health. (f) To confer and co-operate with international Red Cross societies and other similar societies under the provi- sions of Article 25 of the Covenant. (g) To advise, when requested, other voluntary organ- izations in health matters of international concern. (h) To organize missions in connection with matters of health. The Council voted that the Epidemics Commission should become a section of the Health Organization. The Council noted that the Health Committee, at the in- vitation of the Opium Traffic Commission, had undertaken an inquiry into the requirements for opium and other dangerous drugs for medical purposes in various countries, beginning with Switzerland, Australia and Denmark. Under the Covenant the League is to have executive au- thority in measures tor the suppression of the opium traffic. Under the Opium Convention this responsibility was intrusted to the Dutch Government. Tliat Government in August in- formed the League that the United States had refused to rec- ognize a transfer of authority to the League, and would deal only with the Netherlands. 11. OBaANIZATION OF INTELLECTUAL LABOR— The Council approved a report to be submitted to the Assembly pro- posing; a committee of inquiry on this subject. 12. ATTENDANCE OF DIRECTOR OF LABOR OFFICE AT COUNCIL MEETINGS— Jt was agreed that the Secretary- General and the Director should ascrtain from the agenda at what meetings the Director's presence would be desirable, and that in doubtful cases the Council would decide. 13. SALVADOR'S PAYMENTS— Sa.lva.AoT having submitted protests concerning her contribution to the League's expenses, the Council voted to postpone the matter until the Assembly had considered the report of the Committee on Allocation of Expenses. 14. CIRCULATION OF REPORTS PRESENTED TO THE COUNCIL — The Polish Government asked that reports be sub- mitted to members and to interested parties at least seven days before the session of the Council. The Council voted that in diffi- cult cases any member or any one of the parties interested 130 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. might ask for the adjournment of the discussion upon a report until a later meeting-. 15. RUSSIAN REFUGEE QUESTIONS— The conference called by the Council to study this question met in Geneva, August 22-25. Ten States were represented. It was expected that Dr. Nansen would become High Commissioner. The Council voted that the detailed recommendations of this conference concerning the situation and needs of the refugees, especially of the women and children, their use of passports and their migrations, the possible return of some to Russia, and the pressing question of financial relief should be sent to all States. The High Commissioner was invited to consult the Financial Commission of the League; also to note that 400 Georgians were now in distress at Constantinople. 16. BLOCKADE COMMISSION— The Council voted that the report of this Commission be placed not only before the As- sembly, but also before the Amendments Committee and the Governing Body of the Labor Office. 17. SAAR VALLEY RAILWAYS— The Saar Valley Govern- ing Commission had asked that it might be allowed to adhere to the International Railway Transport Convention of October 14, 1890 (Berne Convention), on the ground that German sovereignty in the Valley had lapsed for at least fifteen years. Gei-many protested against this. The Council voted to ask the opinion of its Advisory Technical Commission on Com- munications and Transit. The Commission reported that the proposed adhesion is superfluous as the Berne Convention is rightfully in force in the Saar Territory. 18. The Council named M. Chargueraud to be Chairman of the Permanent Technical Commission on Danube Valley Waterways. 19. Saturday, September 3. MANDATES— The question of confirming the terms of the A and B classes of mandates, adjourned from the June meeting, came up for consideration. The principal Allied Powers had during the summer received a note from the United States but no agreement with that Power had been reached. Therefore the Council could not act upon mandates, but it authorized its President, Mr. Koo, to write again to the Allied Governments (as he did on Sep- tember 8) reiterating the desire of the Council to define, as soon as possible, the terms of mandates affecting so much of Asia Minor and Central Africa, and urging again the need of speedily securing a complete agreement with the United States. 131 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Second Assembly The Second Assembly was in session at Geneva from Monday, September 5, to Wednesday, October 5, 1921. September 5. ORGANIZATION— At the opening of the ses- sion 39 States were represented. Delegates from Haiti, Costa Rica and Panama reported later. The six absentees during the session were Argentina, Honduras, Guatemala, Nicaragua, Peru and Salvador. Mr. Wellington Koo, Acting President of the Council, called the session to order, and reviewed the year's work of the League, concluding thus: "Every day that passes demonstrates that the League of Nations is not in any sense of the word a superstate. It is a. union of nations for the avoidance of the appalling catas- trophe of war. It is a practical means for facilitating the conduct of international business and promoting the general welfare of mankind. It does not seek to bind the members of the League against their will. Its purpose is to secure those common ends of peace and justice which the Govern- ment of every country hopes for and which the people of every land passionately desire." In the afternoon two ballots were needed to elect a President of the Assembly. The vote in the second ballot was 21 for M. van Karnebeek of Holland and 15 for M. da Cunha of Brazil. Under the rules of procedure twenty votes were necessary for election. The report of the committee on verification of creden- tials of delegates was read and approved. September 6. ORGANIZATION COMPLETED. COMMIT- TEES — On the second day, following the precedent of the pre- vious year, the Assembly divided itself into six committees, each State being represented on each committee. The committees, with their work, were as follows: No. 1. Constitutional and legal questions, including amendments to the Covenant and the interpretation of Article 18 for the registration of Treaties. 2. Questions regarding the technical organizations, in- cluding the Transit, the Health and the Economic and Finan- cial Organizations. No. 3. Reduction of Armaments and Blockade. No. 4. The Finances and the internal organization of the League, including the Report of the Com.mittee on the Secretariat and the allocation of expenses. No. 5. Humanitarian and social questions, suah aa ty- phus, opium, the traffic in women and children, deportation 132 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. of women and children in Asia Minor, and the international co-ordination of intellectual work. No. 6. Political questions, including the applications of five States for Membership, and the Albanian situation. In the afternoon these committees met, and elected their chairmen, each of whom is ex officio a, vice-president of tlie Assembly: 1st Committee, M. Scialoja (Italy), chairman; M. Urrutia (Colombia), vice-chairman. 2d Committee, M. Jonnesco (Rumania), chairman; M. Preitel d'Andrade (Portugal), vice- chairman. 3rd Committee, M. Branting (Sweden), chairman; M. Agnero y Bethancourt (Cuba), vice-chairman. 4th Com- mittee, M. Agustin Edwards (Chile), chairman; M. Herluf Zahle (Denmark), vice-chairman. 5th Committee, Mr. Do- herty (Canada), chairman; Mr. Tang Tsai-Fou (China), vice- chairman; 6th Committee, M. le Comte de Gimeno (Spain), chairman; M. Escalante (Venezuela), vice-chairman. The Assembly elected six more Vice-Presidents, as fol- lows: Mr. Balfour (Great Britain), M. Benesh (Czecho-Slo- vakia), M. Bourgeois (France), M. da Cunha (Brazil), M. Hy- mans (Belgium), Viscount Ishii (Japan). All Vice-Presidents, the President and the Secretary-Gen- eral constitute the General Committee of the Assembly. It was announced that the meetings of all these commit- tees, which in 1920 had been private, would in 1921 be open to the public. THE AGENDA submitted to the Assembly comprised the following items: 1. General report by the Secretary-General upon the work of the Council and the Secretariat and upon the meas- ures taken to execute the decisions of the Assembly. 2. Report by the Council on the conclusions of the Com- mittee on Amendments to the Covenant. 3. Report by the Council on the conclusions of the Com- mittee appointed to examine the scope and intentions of Ar- ticle 18 of the Covenant from a legal point of view. 4. Report by the Council on the conclusions of the tem- porary Commission on the reduction of Armaments. 5. Report by the Council on the conclusions of the Inter- national Blockade Committee. 6. Report by the Council on the Advisory Economic and Financial Committee. 7. Report of the Advisory and Technical Committee on Communications and Transit. 8. Report of the Technical Comm.ittee' of the Interna- tional Health Organization of the League. 133 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 9. Presentation by the Council of tlie Report of the Ad- visory Committee on the Traffic in Opium. 10. Report by the Council on the work of the Commis- sion of Inquiry with regard to the deportation of Women and Children in Turlsey and adjacent countries. 11. Report by the Council on the International Confer- ence on the Traffic in Women and Children. 12. Report by the Council on the Typhus campaign. 13. Report by the Committee appointed to examine the organization, etc., of the Permanent Secretariat and the Inter- national Labor Office. 14. Report by the Council on the international co-ordi- nation of intellectual work. 15. The allocation of the expenditure of the League, in- cluding the report by the Council on the conclusions of the Committee appointed to study this question. 16. Permanent Court of International Justice. Report on the ratifications of the Protocol. Election of Judges. 17. Appointment of the four non-permanent Members of the Council. 18. Requests by Hungary, Estonia, Latvia and Lithu- ania for admission to the League. 19. Budget for 1922, and Auditors' report. Items proposed by Members: 20. Request of Bolivia, dated November 1 and Decem- ber 15, 1920, for the inclusion in the Agenda of the 1921 ses- sion of the Assembly of the Bolivian demand for the applica- tion of Article 19 of the Covenant to the Treaty of Peace signed between Bolivia and Chile on October 20, 1904. Chile, in letters dated 17th, 19th and 28th Decemjier, 1920, has re- quested that notification should be made of her opposition, by moving the "previous question," to the proposal of Bolivia to include this item in the Agenda of the Assembly. 21. Albania. The decision adopted by the Council of the League of Nations on June 25, 1921, in regard to the re- quest of Albania concerning her dispute with Greece and the Serb-Croat-Slovene State; also the protest of Albania against the action of Yugo-Slavia in Northern Albania. 22. The Netherlands asked for a discussion of the or- ganization of international statistics. 23. Poland proposed an amendment to Article VI, para- graph 3, of the Covenant concerning the appointment of League personnel. This item was withdrawn by Poland on September 6, and transferred to the agenda for the Assembly of 1922. 134 SECOND YEVVR BOOK OF THE LEAGUE OF NATIONS. September 7. DISPUTE BETWEEN CHILE AND BO- LIVIA — Bolivia asked the League for a revision of the treaty of 1904, item No. 20 of the Agenda. Chileans threatened to with- draw if the Assembly tools up this dispute. Bolivians said that they had proposed to refer the case to the new Permanent Court, and that Chile had refused to accept such a, solution. The pro.iect for the Court had not yet been ratified by Chile. An official Chilean protest, invoking covertly the protection of the Monroe Doctrine (Article XXI of the Covenant), re- ferred to the "principle of American international law ac- cording to which non-American States and, consequently, the Assembly, cannot interfere in questions exclusively affecting countries of the New World." In reply some of the Bolivian delegation declared that Bo- livia previously consulted the United States State Department and was told that Washington would not regard the interven- tion of the League in the Chile-Bolivia dispute as interfering with the application of the Monroe Doctrine. This statement was not confirmed in Washington, and it Is inherently im- probable. M. Agostin Edwards, Chilean Minister to Great Britain, and head of the Chilean delegation, argued that the League had no power to revise treaties, especially treaties of peace, and this one was seventeen years old; also that, under Article XIX of the Covenant the Assembly could only advise members to reconsider treaties that had become inapplicable. This one had not. It had not been extorted by force, any more than any other treaty that ended a war. Bolivia has had free access to the sea through Chilean territory. *" The Bolivian leaders claimed that the treaty of 1904 was inapplicable, that a just settlement would return to Bolivia the province of Antofagasta, that Chile was trying to reduce Bolivia to dependence, and that Article XIX did not limit the competence of the Assembly. The delegation asked that a Committee should examine the question and advise the Assembly. The Assembly adopted President van Karnebeek's motion to postpone further discussion to some future meeting. Mean- while the General Committee asked a special committee of three jurists to render an opinion on the legal questions in- volved in the dispute. This committee, on September 22, reported that the Bolivian request was not in order. Only the contracting Powers can modify a, treaty. The Assembly can act under Article XIX only when the execution of a treaty has ceased to be reasonably possible, or when inter- national conditions threaten the peace of the world. September 28 the two delegations accepted this decision, 135 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Bolivia reserving its right, to submit its request again in ac- cordance with the Covenant. M. Edwards, for Chile, suggested direct negotiations be- tween the two States, to which M. Aramayo, for Bolivia, re- plied: "Bolivia is not contented with the results which have so far been attained by endeavors to negotiate a revision of this treaty. She has felt, hitherto, that she is rather in the position of the lamb with the wolf. If Bolivia now accepts the invita- tion to reopen such conversations with a view to an amend- ment of the treaty, she hopes that it will be only under the protection of a high tribunal of justice like the League of Nations." September 7. DISCUSSION OF WORE OF LEAGUE— The Assembly approved the agenda, with the exception of Item No. 19, which was reserved. The Assembly devoted its sessions on September 8, 9, 10 and 12 and parts of subsequent sessions until September 16, to a general discussion of the work of the report of the Coun- cil, and to the work of the League during the year. The speakers whose observations were most critical were M. Branting and Lord Robert Cecil. The former thought that the Secretariat spent too much money, that the Council did not give sufHoient publicity to its reasons for decisions, that representatives of member States appearing in the Council were treated as though they had come before a tribunal, that the Council should avoid an appearance of being the organ of a particular group of Powers, that delegates to the Assem- bly should be chosen by national parliaments, and tliat the Great Powers must show respect for the work of the League. Lord Robert Cecil criticized the small progress made to- wards disarmament and expressed gratification that on this question at least the American Government and the League had the same general purpose. He doubted whether the League Disarmament Commission was performing any useful service. "As for the mandates," he said, "it is doubtful if any progress has been made since the last Assembly. Then we ac- cepted and passed the C mandates. After the session the A and B mandates were received by the Council. That is just where we stand today. "The whole cause of that delay is not in the Council. It is perfectly clear that the delay has been entirely due to the attitude of the Government of the United States of America. On Feb. 23 they protested against definition of the mandates without being consulted. On March 1 the Council invited the United States to discuss with it the terms of the mandates, but no reply to that invitation has been returned." 136 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Lord Robert said he had learned from the Press that a note, addressed to each of the Allied Powers, had been re- ceived from Washington which he presumed would be com- municated to the Assembly. He saw no objection to the American demands, adding: "The only objection to be made to them is that they were not made earlier. "I say this," Lord Robert continued, "not for the purpose of criticizing the United States Government, which is entitled, of course, to pursue its own policy, but to call the attention of the Assembly to the way in which this delay affects the reputation and work of the League. ^ "Everyone must admit that it is desirable that the inhabi- tants of those territories should receive the protection de- signed for them and the League cannot afford to have it said, largely in the very country the Government of which has rightly or wrongly caused the delay, that this whole talk about mandates is deception, merely camouflage for naked annexation. I urge the Council, now that it has the United States proposals, to proceed immediately to define the re- maining mandates." The American note to which Lord Robert alluded was an identic letter from Secretary Hughes to each of the Allied Powers. Its main thesis was the open door and equality of opportunity in mandated territories. It claimed for the United States ti. voice equal to that of any other Power in deciding the mandates over former Turk- ish possessions, such as Syria, Lebanon, Mesopotamia and Palestine, because the distribution of these mandates was made possible only through the victory over Germany, in which the United States shared. The note made various suggestions of changes in the terms of the Turkish mandates, some of them being that con- sular tribunals under capitulations from the iPowers shall re- main in force until the Governments are organized under mandates, and that if the mandates are surrendered the con- sular tribunals shall be restored. Request is made in the note that the freedom given to religion shall be extended to educational and charitable or- ganization workers, not only those in the territories at pres- ent, but those who may go there in the future. The note stipulated that no mandate shall be agreed to without the approval of the American Government, and that no mandate after its approval shall be changed without the consent of the American Government. The note requested that wherever in mandates it is men- tioned that equal rights are to be given to "members of the League of Nations," a phrase shall be substituted referring 137 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. to countries mentioned in Annex 2 of the Treaty of Versailles, among which is the United States. Amoiig other principal speakers in the general debate of four days were Senator.. LaFontaine of Belgium, Dr. Nan- sen of Norway, and representatives of Persia, Austria, Spain, Yugo-Slavia, India, and Colombia. Those who most directly answered the strictures of various speakers were M. Leon Bourgeois and Mr. Balfour. The burden of these replies was: Mr. Balfour repelled M. Branting's imputations against the Great Powers and the Council, but wisely refrained from dis- cussing the Aaland Islands decision, which was largely re- sponsible for M. Branting's criticisms. In answer to Lord Robert Cecil's remarks about disarmament and mandates Mr. Balfour made it plain, without mentioning the United States by name, that that nation was the cause of the delay on both subjects. M. Bourgeois made much of the Upper Silesian settlement, and of the new Court. He said; "It was very easy to make speedy progress so long as we kept on a purely idealistic basis; but now we have descendeiJ from the lofty mountain top of idealism, and come to prac- tical work we cannot go so fast. We are nevertheless pro- gressing. We have not been able to satisfy every party to every dispute. That is absolutely inevitable. Every court of justice has to leave some one dissatisfied in any settlement of a dispute, and sometimes it has to leave both sides dis- satisfied. There is a French proverb which says, 'On a toujours vingt-quatre heures pour maudire ses juges.' " At the opening of the session on September 12 M. Gu.s- tave Ador of Switzerland was named Honorary President of the Assembly. Fourteenth Session of the Council, Continued Monday, September 12. 20. REPORTS~The Council voted to send at once to the Assembly a report from the Com- mittee on Amendments to the Covenant, a report from the Epidemics Commission and a report from the Mixed Com- mission on Reduction of Armaments. The Council received and approved a report containing recommendations of the International Conference on Traffic in Women and Children held at Geneva, June 30-July 5. The Draft Convention pre- pared by the Conference was referred to the Assembly. 21. BVERGENLAND FRONTIERS-^ complaint was pre, sented by the Austrian Government against Hungarian aggres- sions upon Austrian territory, and the Council laid the matter on the table, having information that the Council of Ambasstt- eors was taking cognizance of it. 138 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 22. UPPER SILESIA — The Council approved of an expen- diture of not more than 100,000 gold francs for its work in settling the problem of Upper Silesia. 23. PUBLICATION OF MINUTES— The Council reaffirmed its decision of June J7 to publish approved minutes daily, with the understanding that such minutes must deal with subjects only that had been completely discussed and decided. 24. ARMAMENTS COMMISSION— The Council voted that its President, Mr. Wellington Koo, should reply in the Assembly to the criticism of the Permanent Advisory Armaments Com- mission made on September 8 by Lord Robert Cecil, who had charged that the Commission had made no constructive sug- gestion toward disarmament during the whole term of its existence, and who had doubted whether it was worth while to keep the Commission alive. The Assembly, Continued September 13. A COMMITTEE ON NEW PROPOSALS wa.s moved and carried. Such a committee was appointed with seven members to examine and report to the Assembly con- cerning proposals made since the beginning of the Session. These proposals related to publicity, use of Esperanto, Rus- sian relief, protection of minorities, and the Armenians in Turkey. The President explained the method of choosing judges for the Pernianent Court. The elections were to begin on the next day. September 14. THE PERMANENT COURT OF INTER- NATIONAL JUSTICE— On September 5 the Secretariat declared that 42 States had signed the Statute of the Court, and that 29 had also reported ratification. Compulsory jurisdiction for the Court had been accepted by 12 States, viz., Bulgaria, Costa Rica, Denmark, Fin- land, Liberia, Luxemburg, Netherlands, Portugal, Salvador, Sweden, Switzerland, Uruguay. Brazil accepted compulsory jurisdiction,' under the usual condition of reciprocity, for a, period of five years provided that compulsory jurisdiction was also accepted by not less than two of the Powers that are permanent members of the League Council. Of 91 persona duly nominated before the Assembly met 73 names remained on the list of candidates. Mr. Elihu Root was nominated by six nations, viz., Bolivia, Brazil, China, Prance, Italy, and Uruguay, but on September 2 it was announced that by rea- son of his advanced age he declined to be a candidate. The Council met for the election at ten o'clock in the League of Nations Building and the Assembly at the same hour as usual in the Salle de la Reformation, a mile away. 139 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. In the Assembly 42 States took part in the election, so that 22 votes were necessary for an election. On the first ballot nine were elected as loUows: MM. Altamira (Spain), 23 votes; Alvarez (Chile), 24; Anzilotti (Italy), 24; Barboza (Brazil), 38; de Bustainante (Cuba), 26; Lord Finlay (Great Britain), 29; MM. Loder (Netherlands), 24; Oda (Japan), 29; Weiss (France), 30. The Assembly voted that all candidates should be eligible in the remaining- ballots, which was contrary to the Assembly rules of procedure but was held to be in conformity with tli6 Statute of the Court. On the second ballot Prof. John Bassett Moore of the United States was elected by the exact majority. The third and fourth ballots were inconclusive, but on the fifth ballot M. Max Huber of Switzerland obtained the required number of votes. In the meantime, the Council had drawn up its list and sent it to the Assembly in a sealed envelope. When the re- sults were read, they showed that 9 Judges had obtained an absolute majority in both bodies, as follows: MM. Altamira (Spain), Anzilotti (Italy), Barboza (Brazil), de Bustamante (Cuba), Lord Finlay (Great Britain, MM. Loder (Nether- lands), Moore (United States), Oda (Japan), Weiss (France). It then became evident that the Assembly had proposed for the last two places MM. Alvarez (Chile) and Huber (Switzerland), and the Council MM. Nyholm (Denmark) and Descamps (Belgium). Both bodies, therefore, proceeded to another election in the hope that agreement might be reached between them. The Assembly at its first ballot chose MM. Nyholm and Huber, and when the Council selection was an- nounced it was found that the Council also had agreed on these two men. They therefore were declared' to be elected and the full list of eleven Judges was filled. The election of the four Deputy Judges was then begun at five o'clock, September 14. After three ballots a comparison of the results in both Council and Assembly showed that they had agl-eed in, elect- ing MM. Negulesco (Rumania), Wang (China), and Yovano- vitch (Yugo-Slavia). For the fourth and last place three more ballots were taken in each body, and. in each ballot the Council voted for M. Descamps (Belgium), and the Assembly voted for M. Alvarez (Chile). Then the Assembly voted that a committee of conference with the Council should be appointed on the following day. The Assembly devoted the remainder of this meeting to honoring the poet Dante, the sixth centenary of whose death was being celebrated throughout the world. September 15. The Committee of Conference with the 140 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Council on the election of a fourth deputy judge was chosen. The Assembly elected for this purpose MM. Zahle (Den - mark). Motta (Switzerland), and van Swindereh (Holland;, and the Council MM. Koo (China), Quinones de T^eon (Spain), and Hymans (Belgium). The Special Committee on New Proposals reported that the question of publicity for deliberations of the Council was already before the Assembly, that the use of Esperanto srioul 1 be placed on the agenda for the Third Assembly, that Rus- sian Relief proposals should be put on the agenda and sent to the Sixth Committee, that motions about protection of minorities should be put on the agenda and sent to the First Committee, that proposals for a National Home for Turkish Armenians should be put on the agenda and sent to the Sixth Committee. The Assembly referred to this Special Committee a reso- lution about the status of Eastern Galicia. September 15. DISARMAMENT— In the general debate on the Council's report Dr. Christian L. Lange discussed the work of the League on armaments in a plain-spoken speech, which brought into clear light the difficulties under which the League commissions work. "What had the Council done? he asked. The Council had set on foot a Disarmament Committee and, as the executive arm of the League, had transmitted recommendations to the Assembly but made no comments. If the temperature in the Assembly was warm, in the Council it was lukewarm. It has not fully taken into account the wishes of the Assembly. The Covenant provided that the members of the League should exchange frankly information as to their armament. All that the Council had done to enforce this was to declare in its report to the Assembly that this could not be done In the present state of the world, saying, "There is reason to believe that this information will not willingly be given until all the great powers have become members of the League of Nations. "What does this amount to? It means that the Covenant says the League shall have infornaation on armaments, but the Council says this information must not be asked for. "The Permanent Advisory Committee on Disarmament was composed of representatives of the War Ministries who received instructions from their Cabinets. War Ministries had not been and never would be in favor of disarmament. "I ask it whether it is honest for members of the League to agree to keep their military plans secret? When members of this League come to the table of diplomacy with revolvers in their pockets, can it be said that they are honest? 141 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "During the occupation of Brussels the German genera,! commanding the city called on Burgomaster Max. Before beginning the conversation the general drew his revolver and placed it before him on the table. Thereupon Max drew his fountain pen and laid it in front of the German revolver. Even if this anecdote is not true, it applies very clearly to the point I desire to make; the fountain pen is the principle of publicity. "Mr. Balfour in charming manner, so charming we are almost forced to agree with him while under his spell, says it is very difficult for the Council to take up the disarmament question before the world is really pacifically inclined. That means the millennium, but the world is Impatient and cannot wait that long. But perhaps Mr. Balfour realizes that when attacking a principle one should always attack to the extreme, for then ybu frighten people away from the principle. "But as Mr. Balfour's own associate, Mr. Fisher, says, (■^"re are three stages of disarmament: First, an exact report on all armaments; second, progressive reductions, and thirdly, a definite fixing of armaments at the minimum prescribed — that is to say, disarmament. There is no point in talking about the third stage when what we should be doing is taking up the first stage. It was for the first 'stage that the resolu- tion was voted by four-fifths of the Assembly last year. Even the accomplishment of the first stage would be a. great step forward. "Mr. Balfour says the League is not universal and there- fore we cannot proceed with disarmament. Now, we don't have to have all the small nations in the League before we start disarmament. As for the big Powers, we are in a bette.' state than last year. Germany has been disarmed. The other day with great satisfaction I heard Mr. Wellington Koo say that a proof had thus been given to the world that a, great nation can survive, although its armaments are reduced to a. minimum. Why should not this inestimable benefit be extended to all? Last year, too, the air was full of rumors of a great attack by the Soviets, but today Russia comes to us holding out her hand and begging. Russia is no longer a military bogey. "Finally, the United States is taking steps toward dis- armament. But is that any reason why we should desist from our efforts? It is said that because Washington is go- ing to discuss disarmament it is no use our doing so. Such an idea is false. The conference at Washington, as practical men know, will deal with naval disarmament. But I wish to lay stress on the situation in Europe, where great danger lies in further increase of land armaments. "Mr. Balfour says to disarm is difficult except in a world where troubles have ceased. I tell you that States which still 142 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. possess great armaments produce distrust by their neighbors and cause international crises. Armament is not a security, but a means of insecurity. The League of Nations is a clear- ing house for the discussion of international problems, and we should endeavor to work out here some positive con- structive ideas." September 16. THE COURT CONSTITUTED— The Joint Committee of Conference on the choice of the Fourth Deputy Judge unanimously recommended to the Assembly and the Council the choice of M. Beichmann (Norway), and in the election which ensued both bodies followed the recommenda- tion, thus completing the list of Deputy Judges. When this result had been announced, the President of the Assembly, M. van Karnebeek, pointed out that the League of Nations had succeeded where the second Peace Conference of 1907 had failed. More than 40 States, representing all parts of the globe, had united through an extremely ingenious system upon the choice' of 15 eminent men, whose mission would be to carry out the highest form of justice known to history. Immediately afterwards the Judges and Deputy Judges were Informed by telegram of their election and asked to reply by telegram if they were able to accept. Within less than a, week all 15 replied in the affirmative. A circular tele- gram was, by vote of the Assembly, sent to all heads of States, notifying them that the Permanent Court of International Justice had been constituted. The first meeting of the Court was originally suggested for some date in October, but later it was announced to take place at The Hague on January 30, 1922. The following list of Judges and Deputy Judges was is- sued by the League of Nations News Bureau in New York on October 28, 1921: RAFAEL ALTAMIRA (Spain). Senator; professor In the history of American political and civil institutions at the University of Madrid; former professor in the General His- tory of Law at the University of Oviedo; former member of the Commission of International Jurists asked by the Council of the League of Nations to draw up a plan for the Perma- nent Court of International Justice; former member of the Arbitration Commission of Litigations relating to Morocco; member of the Royal Academy of Moral and Political Sci- ences; professor at the Academy of Law and Jurisprudence: corresponding member of the Royal Academy of History and of the Institute of France; holds the honorary degree of doc- tor from the Universities of La Plata, Lima and Mexico; presi- dent of the Spanish-American Institute of Comparative Law; counsellor to the Ministry of Public Instruction, publicist, &c. 143 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. DIONISIO ANZILOTTI (Italy). Commanaer; lawyer; professor; Under-Secretary of the League of Nations; pro- fessor of International Law at the University of Rome; Italian member of the Permanent Court of Arbitration at The Hague; legal adviser to the Italian ministry of Foreign Affairs, &c. RUY BARBOSA (Brazil). Ruy Barbosa was born at Bahia, Brazil. He began his public life at the time of the struggle for the abolition of slavery. He finally became one of the most active propagandists for the Republican move- ment in Brazil and, at the time of the revolution of 1889, was named Minister of Finance and Vice-President of the Pro- visional Government. He was one of the chief authors of the draft constitution presented by the Government to the Constituent Assembly. In 1891 he was elected Senator by the State of Bahia, which has re-elected him ever since. His mandate has been renewed unanimously at recent elections. He represented Brazil at the second Hague Conference, where he became the champion of the principle of legal equality for all nations. During fifty years of political life he has always been a. champion of international peace and justice i:i the Parliament, in the Supreme Court and in the press. He is a member of all the scientific associations of Brazil and of many foreign learned societies. FREDERIK VALDEMAR NIKOLAI BEICHMANN (Nor- way). President of the Court of Appeals at Trondhjem; Act- ing President of the Arbitration Commission of Litigations re- lating to Morocco; associate of the Institute of International Law; member of the Permanent Court of Arbitration at The Hague (Deputy Judge). PROFESSOR ANTONIO S. DE BUSTAMANTE (Cuba)- Professor Antonio S. de Bustamante holds the chair of Inter- national Law (public and private) in the University of Havana and is also the Dean of the Faculty of Law in that university. He is a member of the European Institute of International Law and a President of the Cuban Society of International Law. He was the delegate plenipotentiary of Cuba at the sec- ond Hague Peace Conference of 1907, as well as in the peace conferences of Paris which prepared the treaties of Versaillej and San Germain. He is a member of the Permanent Court of Arbitration at The Hague i.nd of the TTnion Juridique In- ternationale. Professor Bustamante is also a Senator and the President of the Foreign Affairs Commission of the Cuban Senate. He was the legal adviser of Panama in the White arbitration with Costa Rica. He is the author of several works of international law and political affairs, some of which, such as his volume on the Second Conference of , Peace, 1907, have been published in Spanish, French and English. 144 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. VISCOUNT ROBERT BANNATYNE PINLAY (Great Britain). Attorney-General 1900-5; Lord Cliancellor 1915-19; Member of tlie Permanent Court of Arbitration at The Hague; Member of Parliament for Inverness 1885-92 and 1895-1906, and for Edinburgh and St. Andrews Universities 1910-16; Lord Rector of the Edinburgh University 1902-3. MAX HUBER (Switzerland). Honorary professor of In- ternational and Public Law at the University of Zurich; legal adviser to the Swiss Department of State; delegate to The Hague Peace Conference in 1907; alternate delegate to the League of Nations Assembly. B. T. C. LODER (Holland). Born in 1849 at Amster- dam, where he studied at the Atheneum; doctor of law. Uni- versity of Leyden, 1873; lawyer at Rotterdam; specialist on questions of international maritime law; one of the founders of the International Maritime Committee (1896); official dele- gate for Holland at the International Conferences on Mari- time Law at Brussels (1905, 1909 and 1910); member of the Supreme Court, 1909; delegate for Holland at the Paris Con- ference of March, 1919, to discuss plans for a League of Nations covenant; president of The Hague "Conference of Neutrals" to draft a plan for a permanent court of inter- national justice (1920); member of the Committee of Inter- national Jurists called by the League, of Nations Council to draft a constitution for the International Court of Justice; associate of the Institute of International Law, 19121; alternate to the First As.sembly of the League of N;itions. JOHN HASkSETT JIOORB (United States). Born in 1860; studied law in various universities; Third Assistant Secretary of State, 1886-91; professor in International Law and Diplo- macy, Columbia University, 1891; Assistant Secretary of State, 1898; Counselor of the Department of State, 1913-14; member of the I'ermanent Court of Arbitration at The Hague, 1913; member of the "Institut du Droit International" and the "Institut Colonial International;" has represented the United States at a number of international conferences, &c. ; author of various books and numerous articles dealing with legal subjects. DEMETRIU NEGULESCO (Rumania). Born at Bu- charest In 1876; master of sciences and doctor of law. Uni- versity of Paris, 1900; magistrate, 1901-08; then practicing law at Bucharest; professor of law at the University of Bu- charest since 1901; elected Deputy in 1913; has written many works on legal subjects in Rumanian and French; delegate to the First Assembly of the League of Nations; took active part in the work of the Third Committee, which was con- cerned with the creation of the International Court of Jus- tice (Deputy Judge). 145 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. DIDRIK GALTRUP GJEDDE NTHOLM (Denmark). Member of the International Mixed Tribunal at Cairo since 1896 and Vice-President of that body since 1916; Justice of the Court of Appeals at Copenhagen; member of the Perma- nent Court of Arbitration at The Hague; author of one of the draft schemes for an International Court of Justice used by the Committee of International Jurists as a basis for the scheme finally adopted by the League. DR. YOROZU ODA (Japan). Born in 1868, Dr. Oda has devoted all his life to the study of international law and has during the last twenty years held a chair in international law at the University of Kioto; he also acted as rector of that celebrated institution for a considerable period and is one of the most influential members of the Academy of Japan. At the request of the Japanese Government Dr. Oda has visited China and Formosa a number of times to study the customs, manners and laws of those countries. He has published a number of works on the subjects in which he is particularly interested. WANG CHUNG HUI (China). Doctor of civil law, Yal«; attorney of the Middle Temple, London; Chinese delegate to the International Conference on Bills of Exchange at The Hague; former Minister of Foreign Affairs of the Provisional Government at Nankin;. Minister of Justice in the first Repub- lican Cabinet; former president of the Commission for the Codification of Laws; member of the Committee on Amend- ments to the Covenant of the League of Nations; Chinese delegate to the Assembly (Deputy Judge). CHARLES ANDRE WEISS (France). Born at Mul- house, Alsatia, in 1858; honor graduate of the University of Paris, where he received the degree of doctor of law in 1890; professor law at Dijon, and since 1891 professor of law at the University of Paris; member of the Institute of France; legal adviser to the Ministry of Foreign Affairs; member of the Permanent Court of Arbitration at The Hague; member of the Academy of Moral and Political Sciences. MIHAILO JOVANOVIC (Yugo-Slavia). President of the Court of Cassation at Belgrade; former Minister of Justice; well known writer on the history of Slavic law; specialist on public and private international law; author of numerous works (Deputy Judge). September 16. PUBLICITY— The Assembly adopted unani- mously this motion offered by Lord Robert Cecil: "The As- sembly welcomes the efforts which the Council has made to secure greater publicity for Its proceedings, and hopes that still further progress in that direction may be possible in the near future." 146 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. LETTER FROM UNITED STATES MEMBERS OF THE HAGUE TRIBUNAL OF ARBITRATION— The letter from the Secretariat asking the American panel of jurists In The Hague Arbitral Tribunal to send in nominations of justices for the new Permanent Court, sent to them by way of the Department of State, was finally exhumed from some pigeonhole in that department and forwarded to Messrs. Gray, Moore, Root and Straus. This was done so late that the answer of those gen- tlemen reached Geneva on September 16, two days after the Court was constituted. The message follows: "Drummond, Secretary-General, League of Nations, Geneva. "Considering that our appointment by the President as Members of the Permanent Court of Arbitration was, under The Hague Convention of nineteen seven, to perform the func- tions contemplated in that Convention, and that your invita- tion to nominate candidates for Judges of the new Permanent Court of International Justice is under another treaty, to which the United States is not a party, and in respect of which no authority has been conferred upon us, we reluctantly reached the conclusion that we were not entitled to make of- ficial nominations for the new Court. We exceedingly regret that the announcement of this conclusion has been unavoid- ably delayed. "GRAY, STRAUS, ROOT AND MOORE. "American Members Permanent Court of Arbitration." The Council 25. September 16. DANZIO—The report of the High Com- missioner, Gen. Haking, concerning the defense of Danzig and the creation of a mooring-station for Polish warships in Dan- zig harbor was referred to the Permanent Advisory Commis- sion on Military, Naval and- Air Questions. Concerning a mooring-station, the Commissioner ex- pressed the opinion that (a) The High Commissioner of the League of Nations at Danzig should be given the power to request the with- drawal of the Polish warships from the port of Danzig if he considers the situation demands it. (b) The Polish warships, whilst being given a perma- nent locality for berthing their ships, should not have any permanent establishment on shore. The High Commissioner further reported that he dis- cussed this question with representatives of the Polish Gov- ernment in Warsaw, that they were unable to consent to either of the conditions mentioned above — (a) or (b). He 147 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. forwarded a statement showing what the Polish Government considers to be a "port d'attache" as compared with a "na- val base." According- to this statement, Polish warships should have liberty to take shelter at any time in the port of Danzig, to make indispensable repairs there, and to keep a stock of fuel, lubricating oil and naval armaments with a suitable place for storing such materials. Small installations of this kind in the port of Danzig, the statement adds, will not in any way imply the establishment of a. fortified naval base where the Polish fleet could at any time find shelter against enemy action. Shanghai is cited as an example of a "port d'attache" for English, French and Japanese vessels. President Sahm, of the Danzig Senate, said that a clause in the Constitution of the Free City forbade the establishment of a military or naval base at Danzig. The Commissioner thought that this dispute should be settled by naval experts rather than by himself. The Economic and Financial Commission offered what was in effect a report of progress on the financial position of the Free City. A sub-committee is making a more thor- ough study, which the Council approved. The High Commissioner reported that the Joint Confer- ence of Poles and Danzigers had already reached agreement upon nearly all important m.atters. Among these is the ques- tion of the acquisition or loss of citizenship In Danzig. The Council voted to postpone to its fifteenth session the consid- eration of a draft law on that subject. The Reparations Commission having refused jurisdiction in the case of Puppel vs. Deutsche Bauern Bank, the Council voted to refer the question to direct negotiations between Po- land and the Free City. 26. EXPENSE OF INVESTIGATIONS— The Council de- cided that expenses of the Permanent Armaments Commission for investigations should be met from the sum allotted to "Unforeseen Expenses." 27. Sept. 19-20. VILNA— The principal business of the Council on these two days was the Polish-Lithuanian dispute. On the 19th, M. Hymans reviewed at length the whole course of the dispute and his plan of settlement of May 20, and the revised draft of it offered on September 3. He described the differences in detail between the two drafts. Both were based on the same principles; namely, consti- tution of the territory of "Vilna as an autonomous canton on a basis analogous to that of the Swiss constitution and within the framework of the Lithuanian State, and a rapprochement between Poland and Lithuania in political, military and eco- nomic relations. These principles had In substance received the approbation of the two parties, as shown in the lettera of 148 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the Lithuanian Delegation ot May 2 7lli and September 12th, the telegram o£ the Polish Minister of Foreign Affairs of July 15, and the letter of the Polish Ilelegate of September 16. The second draft retained the .loint Delegations, repre- senting the two parliaments, and charged to examine ques- tions of a common interest to Poland and Lithuania. This draft also proposed to change the Joint Council for Foreign Affairs into a permanent and common Secretariat for Foreign Affairs. The submission of the Agreement to a Vilna Diet was also retained. If Poland or Lithuania should wish to modify the Agreement, such modifications must be submitted to the League Council. The Lithuanian Government had offered various amend- ments, among them the omission of the Joint Delegations, and a national Lithuanian army based on a uniform military law for both Kovno and "Vilna. The Polish Government had preferred to adhere to the plan of May 20. The Polish and Lithuanian delegates addressed the Coun- cil at length, it being evident that, from the Polish standpoint, the Lithuania of Kovno had no shadow of right to any sov- ereignty in the territory of Vilna, and that, from the Lithu- anian standpoint, the invasion by Zeligovski's army had cre- ated "a situation in which Lithuania, despoiled of its posses- sions, was confronted with Poland, enjoying the fruits of its unlawful action." On the 20th, M. Hymans discussed the pleas of the Polish and Lithuanian delegates, delivered on the previous day, and summed them up thus: "The two countries are equally afraid of seeing- their sovereignty diminished, in the case of Poland by the fact tRat any possible modification of the agreement must be brought before the League of Nations, in case of Lithuania by the fact that certain preliminary decisions concerning the foreign pol- icy of this country will have to be taken by the Assembly of the two Delegations." He presented a resolution, giving the full approval of the Council to the second draft plan. Prof. Askenazy, for Poland, repeated protests against this draft. M. Galvanauskas, for Lithuania, declared his willingness to continue direct negotiations, but reiterated, "Until Gen. Zellgovskl has been expelled from this territory, it will be im- possible to make an equitable settlement of this dispute. . . Although declared a rebel by Poland, he has been supported by Polish money, by Polish troops, and by Polish munitions, and he has been made an honorary citizen of Warsaw. 149 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The terms of the draft of M. Hymans allow the question of Gen. Zelig-ovski to remain unsettled." Mr. Balfour addressed the Council at length. In the course of his speech he said: "The story, as I understand it, is really a very melan- choly one. Whenever the representative of Lithuania speaks he refers to the Zeligovski incident, and he, I may say, with much reason, infers that many of the troubles from which we are now suffering arise from the eruption of General Zeli- govski and his troops into the disputed territory. The chal- lenge which has been thrown down by him, in every speech which he has made, has never been taken up by the represen- tative of Poland, and to this day it is very difficult, even for the most Impartial spectator of events, to know precisely what the attitude of the Polish Government is to the ex-Polish general. Is he a rebel deserving military sentence? Is he a patriot deserving the patriot's crown? We know not. When- ever the exigencies of debate required one answer to that ques- tion, that answer is given: when they require the other an- swer, the other answer is given. But the fact remains that in spite of all the protests made by the Council, formally and informally, General Zeligovski and his troops are still in pos- session of the disputed territory, with all the lamentable eon- sequences which such an irregular eruption of troops must necessarily have on the final settlement of the question. "... I believe that this is the best scheme in its outlines and broad principles, and even in its details, which can be laid before the contending parties. Certainly Poland (I do not speak with the same confidence of Lithuania) shows not the slightest intention of accepting it. The contending parties ap- pear to regard it as a theme for endless debate, which may go on and on and on into some remote future, while this ambigu- ous General, with his troops of uncertain allegiance, remains in occupation of the disputed territory. I cannot conceive that such a consummation is for the interest either of Poland, of Lithuania, of Europe or of the League. "What, then, is to be done? All that personal persuasion could do has been tried, and admirably tried, by M. Hymans. So far we have to admit that it has failed. What remains for the Council but to appeal to the Assembly and to ask them to ask the Members of the Assembly, by their great authority, to do what unhappily we have not yet been able to do, which is by the strength of moral persuasion to induce these two contending parties to put into action u. policy which they must know is the sound policy, a policy of mutual con- cession and conciliation. It is not tolerable for Lithuania, for Poland, for the comity of nations, that this sore should be a running and perpetual sore, and I hope my colleagues 150 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. round this table will agree with the proposal of M. Hymans ■and ask the Assembly as a whole to come forward and, with their great authority, press on the contending parties the necessity of accepting this solution." After an eloquent appeal from M. Bourgeois for a spirit of conciliation, the Council unanimously adopted M. Hymans' resolution. The resolution provided that M. Hymans should describe the actual status of the dispute to the Assembly, which would thus be enabled to contribute its authority to a settlement of the question. MM. Aslcenazy and Galvanaus- kas declared that they would bring the decision of the Council to the knowledge of their respective Governments, the former making reservations on a, certain number of points of the project of September 3. 28. ECONOMIC AND FINANCIAL COMMISSION— This Commission reported on its session in Geneva, August 31 -Sep- tember 8. The Council accepted and adopted the report, re- ferred it to the Assembly, and continued the Commission for another year. The report covered the applications of the rec- ommendations of the Brussels Conference, and these topics in particular: Austrian reconstruction. International Credits (with Annex report by Slir Drummond Drummond-Fraser), Danzig Finances, Defaulted Bonds, Double Taxation, Gold Standard, Raw Materials, Unfair Competition, Laws about Bills of Exchange, International Institute of Commerce (Bel- gium), Bulletin of Statistics, Permanent Economic and Finan- cial Organization in the League, Finishing Credits. Assembly, Sixth Committee ALBANIAN FRONTIERS — Sept. 20. Bishop Noil, head of the Albanian delegation, read to the 6th Committee tele- grams sent to him on the 7th and 19th, reporting attempts by Yugo-Slavian forces to take possession of certain Albanian villages. These places were bombarded by Serbian artillery on the 18th. Without bringing the matter into the Assembly, the leaders, representing the Great Powers, tried to bring pressure upon Yugo-Slavia to cease attacks upon the Albanians. The Serbs held that the Council of Ambassadors had not yet fixed the boundary of Albania, that Serbian forces were only trying to take what really belonged to Yugo-Slavia, and that, until the Ambassadors act the League has no authority. Albanians held that the boundaries were fixed by the treaty of London in 1913, that Albania was neutral in the war, that hence the Ambassadors have no authority, and that the League must act whenever war threatens among League members. 151 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Committee debated the matter on September 22 and 26, and decided to recommend that an investigating commis- Bion be named by the Allied and Associated Powers, and to aavlse Albania to accept the decision of the Council of Am- bassadors. These conclusions seem to have been compelled by the attitude of the four great Powers. Bishop Noli said that he could not pledge his country in advance to accept the line that the Council of Ambassadors may draw. Agenda of Washington Conference On September 21 the State Department at "Washington published the following text of the tentative agenda for the coming conference, which had previously been submitted to the invited Powers: LIMITATION OF ARMAMENT. Limitation of naval armament, under which shall be dis- cussed (a) basis of limitation, (b) extent, (c) fulfillment, (d) rules for control of new agencies of warfare, (e) limitatior of land armament. PACIFIC AND FAR EASTERN QUESTIONS. I. Questions relating to China. First — Principles to be applied. Second — Application. Subjects: (a) Territorial integrity. (b) Administrative integrity. (c) Open door — equality of commercial and industrial opportunity. (d) Concessions, monopolies or preferential economic privileges. (e) Development of railways, including plans relating to Chinese Eastern Railway. (f) Preferential railroad rates. (g) Status of existing commitments. II. Siberia. (Similar subdivisons.) III. Mandated islands. Under the heading of "Status of Existing Commitments" it is expected that opportunity will be afforded to consider and to reach an understanding with respect to unsettled questions involving the nature and scope of commitments under which claims of rights may hereafter be asserted. The Council 29. Sept. 21. RAW MATERIALS— The Council transmit- ted to the Assembly a report on the Raw Materials problem, presented by the Economic Commission, and authorized the 152 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. publication of relevant portions of an accompanjing: report, prepared by Professor Gini, on Raw Materials and Foodstuffs. Tlie Council approved the suggestion that States in need of technical advice on finance and economics should appeal to the Council to nominate competent experts and to approve their contracts of engagement. The Secretary-General said that Latvia had already asked for such help. The Council agreed that the Economic and Financial Commission should draft a model form of contract, and make a list of available experts. If applications came in before the list was ready, the Commission should deal with them. The Asseynbly Wednesday, September 21. A telegram from the Pope, urging "prompt and efficacious measures to aid the unhappy people of Russia," was read and referred to the 6th Com- mittee. ARMENIA— The 6th Committee offered a resolution that "The Assembly urges the Council to press upon the prin- cipal Allied Powers the necessity of making provisions in this Treaty for safeguarding the future of Armenia, and, in par- ticular, of providing the Armenians witli a national home entirely independent of Turkish rule." M. Bourgeois said that, in the name of the French dele- gation, he would make a reservation upon a question of com- petence. The Supreme Council could fix the boundaries of an independent Armenia, but neither the Assembly nor the League Council could do it. Lord Robert Cecil said that the Committee's report was based on a. decision of the Supreme Council (in the attempt to revise the treaty of Sevres at London). The Assembly adopted the resolution. REPATRIATION OF WAR PRISONERS— Dr. Nansen ac- knowledged the "willing co-operation" of the German and Russian Governments, and the invaluable aid of the American Red Cross and other organizations. He described the misery of men who had "passed three, four, five, and even six years in captivity and suijCering of every description," men of cen- tral, southern and eastern Europe, whose Governments lacked resources, credits and means for bringing the prisoners liome. "At the last meeting of the Assembly I was still appeal- ing to the Governments to provide me with further credits. Happily since then, I have received tlie payments which I had hoped for through the agency of the International Com- mittee of Relief Credits. With the money which the coun- tries represented on that Committee placed at my disposal I 153 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. have been able practically to bring my work to a conclusion, and I hope, when it is over, to be in the happy position of having- sufBcient funds to meet all the oblig-ations I have in- curred. I wish to express to you how very great is the debt of gratitude which the prisoners and the League as a whole owe to these Governments which are represented on the Re- lief Credits Committee. The smaller countries, Denmark, Sweden, Norway, Switzerland and Holland, were the first to answer my appeal. Great Britain has contributed the largest share and France has made a valuable contribution. In all, 1 have secured from these Governments credits to the total value of £425,000, and to the Governments which provided this sum, I wish to express my heartfelt gratitude. Perhaps I may turn now to the results which have been achieved. It has been my constant endeavor to bring the prisoners to their homes by the cheapest available route, and it was not long before I discovered that the cheapest route was through the Baltic Sea from the ports of Riga, Narva and Bjorko. Through these ports there have been trans- ported more than 350,000 prisoners up to the present time. From Vladivostock, which was the most expensive route, there were brought away 12,000 prisoners. From the Black Sea, and principally from the port of Novorossisk, where there are still two ships working at the collection and transport of prisoners of war scattered round the shores of the Black Sea, there have so far been brought away roughly 5,000 men. In all, therefore, for the £400,000 which have been placed at my disposal, approximately 380,000 men have been returned to their families, many of them from the most remote parts of the Russian Empire where communication was exceedingly difficult. ... In my humble view the League of Nations could, in its early years, have undertaken no more appropriate task than this. Let me read to the Assembly the list of persons brought back and landed a few days ago from the last transport which left the Black Sea: 500 women and children, 452 Czecho-Slovakians, 282 Hungarians, 215 Germans, 183 Rumanians, 142 Poles, 123 Austrians, IIG Jugo-Slavs, 30 Italians, 11 .Belgians, 3 English, 2 Bulgarians, 1 Swiss. This is indeed international work. It is indeed a true work oi: reconcihation. It is work worthy of the highest hu- manitarian ideals of the League. And it is not only humani- tarian in its significance and importance. It demonstrates that the League is an international machine which can be used for the carrying out of complicated executive duties for which the co-operation of a large number of Governments is essential; it proves that the League can carry out such work rapidly, efficiently, and at an infinitesimal cost." 154 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. OAMPAION AGAINST TYPHUS— A report from the 5th Committee showed that of £220,000 promised by member States, only £126,000 had been paid in, and that with this sum the Epidemics Commission had helped the Polish Gov- ernment to maintain an efficient sanitary barrier along the whole eastern frontier of Poland. But Russia is and will be a dangerous breeding ground for epidemic diseases, and refugees are arriving continually, averaging 3,000 daily at Baranowice. The Commission ought to be able to extend its activities to the Baltic and to Rumania and to co-operate with Russian authorities. The Commission presented the following reso- lution, which was adopted: The Assembly recommends that, in view of the economi- cal and successful results achieved by the League of Nations Epidemic Commission in reinforcing the preventive sanitary measures undertaken by the Polish Health Administration in the campaign against typhus, the work of the Commission be continued and extended to other countries as necessity arises, provided the Council considers it expedient. To this end, the President of the Assembly and the Presi- dent of the Council are requested to issue a special appeal to the members of the League for liberal financial support, and to ask those States which have not found it possible to make available the contributions which they so generously prom- ised, to do so as soon as possible. CO-ORDINATION OF INTELLECTUAL WORK— The 5th Committee recommended approval of a resolution adopted by the Council on September 2, 1921, viz.: that the Council should name a committee, consisting of not more than twelve members and containing both men and women, "to examine international questions regarding intellectual co-operation." Originally the words, "and education," followed the word "co-operation." A group of Japanese societies wrote to the President of the Assembly, advocating an annual international education council and the establishment of a permanent bureau of international education. This organization was to "counteract all the hidden forces tending toward imperialism and militarism." The Assembly had before it two reports of the Secretariat and one of the Council on the International Organization of Intellectual Work. One of the former gave a, descriptive ac- count of what the Union of International Associations at Brus- sels, comprising some 250 Internat'.onal Associations of differ- ent kinds, has accomplished in co ordinating intellectual work in all its branches. This Union started an International Uni- versity In 1920 to give advanced students of all countries a summer course on international subjects, has published some 155 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. valuable documents, and has received from the Council cer- tain assurances of sympathy and interest. Professor Gilbert Murray said that action for the co- ordination of intellectual work fell under three heads. First, there was international action for the protection of intellectual workers, who in many countries had been re- duced to a condition of great distress. There was, secondly, international action for the practical advance of knowledge, which had been seriously interrupted by the war. There was, thirdly, international action for the spread of the international spirit. In this connection account must be taken of the international organization established at Brus- sels, as a result of the work of M. Lafontaine and M. Otlet. There was also the question of an international university, which at present was little more than an organization of sum- mer gatherings. A great work might be done, not, perhaps, by the League, but on the other hand not entirely without its co-operation, In counteracting excessively nationalist tenden- cies in education. The Assembly adopted the proposed resolution. ADMISSION OF NEW MEMBERS— The 6th Committee recommended the admission of Estonia, Latvia and Lithuania to the League. Estonia was reported to have been recognized de jure by 20 States; to have a stable Government and fixed frontiers; to be governed under the form of a republic with a Council of Ministers responsible to Parliament; to have military forces of 15,000 men, naval forces of 2 torpedo-boat destroyers, 7 gunboats, 2 patrol boats, and 15 trawlers, and air forces of 35 airplanes; and to have given u, satisfactory declaration as to minorities. The Assembly voted in favor of admission by 36 votes, as against 12 absent or abstaining. Latvia was reported as having been recognized de jure by 21 States; as having a stable Government and fixed frontiers; as having a, free Government of a, democratic-republican form, with an executive Ministry of 12 members and a legis- lative chamber of 10 2 members elected, by direct universal suffrage, with proportional representation; as having military forces of 20,000 men, possessing 10 airplanes, belonging to the army, but used for postal and commercial purposes, and as requesting permission to maintain in service 4 torpedo-boat destroyers, 4 submarines, and 1,500 mines, and to put into .service 10 hydroplanes and 32 airplanes; and to have given a, satisfactory declaration on the subject of minorities. The Assembly cast 38 votes in favor of admission, with 10 absent or abstaining. Lithuania was shown to have been recognized de jure by 156 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. seven Governments and de facto by ten Governments; to have fixed frontiers, except as regards Poland; to have a dem- ooratic-repuhlican form of government with the executive power vested In a President and a Ministry of eight members, and the legislative power in an Assembly composed of 112 members elected by direct equal suffrage with proportional representation; to have no navy, but four squadrons of aero- planes, and military forces which, though increased during the past year, do not present an obstacle to Lithuania's admission to the League; and to have given satisfactory declarations as to the protection of minorities. The Committee, in approving the application, expressed the hope that Lithuania would con- tinue to give proof of a spirit of conciliation in her dispute with Poland and accept the Council's recommendation. The Assembly cast 36 votes in favor of Lithuania's admis- sion, with 12 absent or abstaining. Poland cast no vote upon any of the three. France voted for Esthonia and Latvia, but abstained on Lithuania. EASTERN GALICIA— On motion of the Special Committee the resolution about the status of Eastern Galicia, introduced September IB, was referred to the 6th Committee. COMMUNICATIONS AND TRANSIT— Ttie 2nd Committee (on Technical Organizations) presented a detailed report on the Barcelona Conference and the work of the Advisory Com- mittee to secure legal guarantees for freedom of communica- tions and transit, in accordance with Article XXIIX of the Covenant. The report contained four resolutions which were adopted by the Assembly, The first provided that the General Conference on Com- munications and Transit shall meet as of right at the seat of the League on the request of one-half of the Members of the League. A second resolution took note of the designa- tion by the Advisory and Technical Committee of a. railway expert, national of a riparian State of the Danube, and in- vited it at its next session to designate one, or more than one, other expert especially qualified in the different matters dealt with by this Committee and nationals of other riparian States of the Danube. A third resolution noted the progress already made through the League for the simplification of the formalities connected with the obtaining of passports and visas, the re- duction of passport prices, and the unification of passport regulations, a work derived from the initiative of the Con- ference on Passports, Customs ]''ormalities and Through Tickets, held in Paris in October, 1920. The resolution in- 157 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. vited all States that have not yet acted to put these mea.3- ures in force and notify the Secretary-General. The fourth resolution proposed that the Members of the League of Nations should grant to the members of the vari- ous Committees of the League, during their period of office, every possible facility in the matter of passports, particularly with regard to the regulations affecting visas and the period of their validity. September 23. The delegates of Estonia, Latvia and Lithuania were reported by the Committee on Credentials as entitled to seats in the Assembly. MANDATES — The 6th Committee introduced a general de- bate about mandates. During the discussion Sir James Allen of New Zealand, referring to the "C" mandate for Western Samoa, which New Zealand holds, illustrated the difficulty in enforcing the requirement in the Covenant that liquor traffic among the colored native races shall be prohibited, as fol- lows: You all know, under Article 22, it is demanded of the mandatory country that they shall not allow intoxicating liquor to be supplied to the native population.' We have in New Zealand a great deal of experience with regard to liquor, both as supplied to the white people and to the natives, and those who are not natives in the islands of the Pacific, which have been under our administration for many years, and more lately in Samoa. We have tried to discriminate in New Zealand between whites and natives, and have prohibited the supply of liquor in certain districts in New Zealand where the natiye population aggregates, but I am afraid not with great success. In the Cook Islands, which we have also ad- ministered, there has been discrimination with regard to liquor supplied between the whites and the natives; it has been allowed to the whites, and an attempt has been made to prohibit it to the natives. With what result? The native, realizing the injustice of this discrimination, has brewed it for himself in the bush from oranges and pineapples and such things. I visited these islands about two years ago on my way to Samoa. The white population complained they were not represented on the Island Council. They said, "We want this representation." I met the native chiefs the next day, and said, "We do not want to interfere with your rep- resentation, but the whites have asked to be represented on your native council. Has not the time come for you to aslt that you should be represented with the whites? Think it over and tell me what you say." The next day the answer was this, "We are quite prepared to admit the whfte man into the Island Council on one condition, that you treat the 158 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. whites with regard to liquor as you treat the natives." The log-ic of that was unanswerable, and I do not believe the whites have made any attempt since to obtain representation on the Council, preferring as they do the liquor to the repre- sentation. Now here I want to ask for the moral support of every Member of the Assembly. The, New Zealand Govern- ment, with this experience before it, decided that they could not carry out the trust you have committed to them with re- gard to liquor unless the prohibition is made absolute, and there should be no discrimination between white people and natives. True, M. Belgarde of Haiti placed before the As- sembly a resolution adopted by a Congress of Colored Races recently held at London, Brussels and Paris, asking that the Mandatory Commission should include a native of the man- dated territories, qualified by merit, experience and education to be a member of such a body. The Committee's report declared that immediate action by the Council on the "A" mandates would be premature be- cause of the non-ratification of the Treaty of Sevres, but the "B" mandates were considered to be in a different category, as they are founded on the Treaty of Versailles, which ha^d been ratified. Regarding Togoland and the Cameroons, it was thought that the Council should, at the earliest possible moment, formally approve the application of the mandate system thereto, and in particular adopt, in principle, the declaration signed by France and Great Britain at Paris on July 10, 1919, as to the respective spheres to be placed under the authority of each Government. The Committee suggested that the Assembly invite tlie Council to send a note to the Mandatory Powers saying that, while the Council has not felt able to proceed with the con- firmation of the "B" mandates till the conclusion of the ne- gotiations now proceeding between those Powers and the United States, nevertheless the Council is satisfied that, gen- erally speaking-, the principles laid down in the Draft Man- dates express the high object which the Covenant has in view, and that the Council has confidence that the Mandatory Powers will continue to administer the territories committed to their charge in the spirit of the Draft Mandates until the position shall have been definitely regularized. During the debates in the Committee the British, French, and Belgian Representatives had stated that they would furnish the Per- manent Mandates Commission with any information that it might require, and would raise no objection to its examina- tion of reports on mandated territories, even before the sys- tem were formally instituted. ' The Assembly approved and adopted the Committee's report. 159 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. DEPORTATION OF WOMEN AND CHILDREN IN TUR- KEY AND IN ASIA — The 5th Committee presented a report based upon the testimony of the members of the League Com- mission of Inquiry, Dr. Kennedy and Miss Emma Cushman in Constantinople and Miss Jeppe in Aleppo. The Assembly approved and adopted five resolutions con- tained in the report, as follows: "I. That there should be appointed in Constantinople a Commissioner of the League of Nations whose appointment should be officially notified to the Allied and Associated High Commissioners, to the representatives of the other interested countries and Members of the League, to the Turkish Govern- ment and to the ecclesiastical authorities of the deported populations, namely the Greek and Armenian Patriarchs; "II. That the League request France, Great Britain and Italy to instruct their High Commissioners to constitute them- selves as a Committee, whose duty it would be to concert action with a, view to giving all possible assistance and powers to the League of Nations' Commissioner, for the carrying out of his duties; 4 "III. That there should be established, under the Com- missioner of the League, a mixed Board to deal with the reclamation of women and children. This Board would be composed of the present Members of the League of Nations Commission of Inquiry, with power to co-opt In particular cases a, member of each interested nationality. This Board would look to the Allied Commissioners and to the co-op- eration of the Greek and Armenian Patriarchs for the neces- sary support in the carrying- out of its decisions. The Com- mittee emphasizes the desirability of encouraging the work of charity already being carried on in the different centers by various establishments; "IV. That the Neutral Houise for the temporary recep- tion and examination of women and children reclaimed from Turkish houses should be leorganized and placed under the direct management and supervision of the Commission of Inquiry; "V. That further Neutral Houses may be opened in other centers as circumstances permit." The Neutral House at Constantinople here referred to had been started and maintained by voluntary contributions. Dr. Kennedy estimated that the probable cost of maintaining it in the name of the League of Nations would be £1,500 a year. HEALTH ORGANIZATION— The Assembly, acting upon a report from the 2nd Committee, voted to accept the tempo- rary Health Organization proposed by the Council. It will 160 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. therefore comprise a Health Committee, of which the Epi- demics Commission will be one section. Its Secretariat is to be named by the Secretary-General, but guided by a Medical Director. This decision is without prejudice to the power of the Assembly, admitted last year, to regulate the constitution of important standing Committees of the League. In view • of the increasing importance of questions of health which more especially concern wonien, the Assembly invites the Council to take into consideration, at an oppor- tune moment, the question of strengthening the Committee by including a medical woman, experienced in public health matters, qualified to advise on such questions. The Portuguese delegation approved the report, but made a reservation upon the manner of solving difBculties which will arise. POLAND AND LITHUANIA— S3itUTncirs resolution on the understanding that the in- quiries undertaken would be of n scientific character, and when applying to any particular country would be made through, or with the consent of, the Government concerned. It also recommended that the Council invite the different Governments to furnish, in addition to the official annual re port, any information concerning the illicit production, manu facture or trade In opium or other dangerous drugs which they think likely to be useful. The Council was also requested to consider whether all nations specially concerned in either the growth or manufacture of opium or other dangerous drugs should not be represented on its Advisory Committee. The Assembly also approved the Council's resolution "that in view of the world-wide interest in the attitude of the League toward the opium question, and of the general desire to reduce and restrict the cultivation and production of opium to strictly medicinal and scientific purposes, the Advisory Committee be requested to consider and report, at its next meeting, on the possibility of instituting an Inquiry to de- termine approximately the average requirements of raw and prepared opium specified in Chapters I and II of the Con vention for medicinal and scientific purposes in different coun tries." On the statement of the Indian Delegate, however, that the Indian population is, througrhout vast areas, without adequate medical assistance, and therefore habitually takes opium in small doses as a prophylactic or an effective remedy against the diseases with which some of these regions are constantly infected, the Assembly recommended that the word "strictly" be omitted, and the word "legitimate" be substi- tuted for "medicinal and scientific"; also that reference to "prepared opium" be omitted on the ground that its coiiipletf suppression is already provided for in the Convention. Finally, the Assembly recommended that the Council re quest the Advisory Committee to include in its investigations not only the drugs mentioned in the Convention of 1912, but also dangerous drugs of wl^^tever origin which produce simi- lar effects, and to advise as to the desirability of convoking a further international conference to draw up a Convention for the suppression of the abuse of such drugs. It was pointed out that the sale and consumption of drugs of mineral or chemical origin are not covered by The Hague Convention of 1912, though their abuses are now threatening the West as opium has threatened the Bast. RUSSIAN RELIEF— The Sixth Committee reported that in- asmuch as the Supreme Council had named an Internationa 1 Relief Committee, called to meet in Brussels on October 6, 171 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the League of Nations ought not to interfere. Dr. Nansen wanted the Assembly to ask the Governments for official credits, to aslc the Council to put the International Credits Organization at the disposal of his relief work, and to give its sanction to the agreements that he had made with Soviet Russia. The Committee thought that the Assembly could go no further than a declaration of confidence in Br. Nansen. To the Committee the unwillingness of Governments to pro- vide credits for any relief work in Russia on account of hos- tility to the Soviet Government and distrust of it, was an in- superable obstacle to any effective action by the Assembly Dr. Nansen had been appointed Relief Commissioner by the Red Cross Conference at Geneva in August. He made a vigorous speech to the Assembly, predicting that the fate of 20 to 30 million people in Russia would be sealed unless finan- cial help was furnished within two months. He asked the question, Was any member of the Assembly prepared to say that, rather than help the Soviet Government, he would allow twenty million people to starve to death? No relief could be carried out in any country, least of all in Russia, against the wishes of the Government. Although Mr. Hoover's organization was feeding three million Russian children, and the "Save the Children Fund" in Great Britain were willing to feed a quarter of a million more; though the Pope had given one million lire, and the Second International at Amsterdam ten million marks; and though the Governments of Sweden, Norway, Estonia, Lat- via and Lithuania had all done something, only a small part of the misery with which Russia was faced could thus be mitigated, and it was essential that a sum of £5,000,000 be made available to save the situation before Christmas. The Assembly approved sympathetic resolutions, recom- mended by the Committee, to the effect that it considered It an urgent necessity to combat the famine in Russia; that all efforts should be encouraged which aim at alleviating it; that the Governments of all countries should interest themselves in the efforts of their national associations and grant them the greatest possible material and moral support, and that private organizations should effect the closest co-ordination In order that the efficacy of the common endeavor might be as- sured. The Assembly, noting the Conference called for Brus- sels, expressed the hope that the Governments might consider the most expedient means of coping with the financial difficul- ties, and made a special recommendation that Governments should accord gifts in kind from the liquidation of war stocks. A resolution was also agreed to that the Epidemics Commit- tee of the League be invited to co-operate in the campaign against infectious diseases in Russia and the Caucasus. 172 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Moreover, the iPresident of the Assembly was requested to transmit to His Holiness Pope Benedict XV a copy of the four resolutions above mentioned, in the hope that he may And therein a proof of the profound appreciation with which the League of Nations received the message in which His Holiness drew the attention of the Representatives of the Governments assembled in Geneva to the unhappy plight of the famine-stricken areas in Russia, and the urgency of alle- viating the misery and rendering them assistance. Finally after a lively discussion of Russian conditions, of the question of official credits and the agreement made by Dr. Nansen with the Soviet Government, the following resolu- tions were adopted: "1. That, in view of the statements made by Members of the Committee on behalf of their Governments to the eifect that these Governments did not think that under present cir- cumstances they could grant official credits, the Assembly is of opinion that this fact settles for the time being this side of the matter, and disengages the possible responsibility of the League of Nations. "Nevertheless, the League does not disinterest itself in so grave a. problem and in the efforts which are being made to solve it. It will rest with the Council of the League to take up the question should circumstances so demand, and should it consider that its intervention could prove both useful and effective. "2. The Assembly has not sufficient information as to the influences by which the Soviet Government is nioved, or as to the conditions under which they are working; but it considers that Dr. Nansen's successful repatriation of pris- oners of war augurs well for any enterprise he may be pre- pared to undertake for the relief of famine-stricken regions in Armenia, Azerbaidjan, Georgia, and Russia." During the debate, M. Spalaikovitch, head of the Yugo- slavian delegation, expressed the opinion that the Soviet Government was the cause of the distress in Russia, and should either alleviate it or abdicate. He offered a resolution severely condemning that Government. Mr. Fisher (Great Britain), Lord Robert Cecil (South Africa), and M. Hano- taux (France) quickly deprecated any transfer of the dis- cussion from a, humane to a political basis. Lord Robert brought out the fact that Dr. Nansen is working without salary. He asked, ""VOiat if great masses of the Russians, fleeing from famine and starvation, wander across into neighboring countries? That has happened in history before. What is going to be done then? . "This Assembly has, if you will allow me to say so with all respect, one defect. It does not contain a, single member 173 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. of the working class. I regret that, because I think that on a, question of this kind it would have heen of the first impor- tance to hear authentically how this matter strikes the great masses of the working classes throughout Europe. I am afraid that some of them, at any rate, may think that the League is moved by the kind of reasoning which my friend M. Spalaikovitch plainly expressed from this tribune. We know — at least I hope we know — that that is not true of the great majority of this Assembly. We know that our position is defined strictly by the authority we get from our Govern- ments. We know that the responsibility in this matter is not ours, but the responsibility of the Governments of the world. "I do not wish to criticise, and I hope that nothing I have said will be construed as a criticism of the Governments. I have already said I recognize the difficulties, the enormous difficulties, in which any responsible statesman is placed at the present time. But let me appeal, if I may do so, to them on one thing only. If they are unable to come to the assist- ance of the Kussian let them not put the thing off by calling one Conference after another, by sending inquiries this way or inquiries that way. The matter is far too serious for ma- neuvers of that kind. It requires the greatest frankness and the greatest courage, and, believe me, gentlemen, even with those qualities we shall be hard put to it to come out of this difficulty without serious disaster." On the day of this debate in the Assembly, September 30, it was announced from Riga that the A. R. A. offices there (Col. Wm. N. Haskell in charge) had already dispatched more than 5,000 tons of food into Russia, that they were now ready to send 1,600 tons of food a week, which would mean one meal a day for one week for only one million persons, and that the first supply vessel from the United States was ex- pected on the next day, October 1, with 2,000 tons of flour. October 1. THE SECRETARIAT AND LABOR OFFICE^ The Assembly approved a report from the 4th Committee on the organization of the Secretariat and the Labor Office. This report embodied the findings of a Committee of Inquiry, which had been created by the First Assembly. The most important part of the latter committee's work was a new salary scale, based on the British Civil Service. An entertainment fund was authorized, the amount not to exceed the total of the sums voluntarily surrendered for this purpose by certain high officials of the Secretariat. The status of the staff is to be regularized by a statute, the main lines of which are laid down. Selection is to be made as far as possible in equitable proportion from the va- rious States Members of the League. The higher officials are to be appointed for seven years without right of pension or 174 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. gratuity on retirement; the intermediate categories for twenty- one years; and the subordinate staff for twenty-eight years, both of the latter witli gratuity on retirement. The general age limit is set at 55. The establishment, on the initiative of the various Gov- ernments, of national liaison bureaus in the great capitals was recommended as a means of co-ordinating and unifying rela- tions of all kinds between the League and Government serv- ices. At the same time the step taken by the Secretariat to establish League branch offices in Paris and London was approved, as well as the proposal for a similar office in South America. The Committee recommended also a, branch office in Rome. In the Committee there was much discussion of the high cost of living in Geneva and of the possibility that Geneva prices were artificially boosted in order to profit by the pres- ence of the League. The Committee suggested no change in the seat of the League, but M. Georges Noblemaire, who spoke for the Com- mittee in the Assembly, said that the Committee "suggested an Inquiry into what is really the cost of living here, and if the result of this consideration of the question is merely to hang over the heads of certain shopkeepers in Geneva, I will not say the sword of Damocles, I will say a mere pin, the dis- cussion will not have been without result." REDUCTION OF AKMAMEKTS—Tiie report offered by the 3d Committee had been framed after long discussions in the Committee, which had before it the report of the Mixed Com- mission on Armaments, usually known as the League's Dis- armament Commission. The latter Cordmission's report had been published on September 19. It made known the an- swers of Governments to the request of the First Assembly for an agreement to keep, during the next two years, the mili- tary and naval appropriations within the limits set for 1921. Up to August 22 answers were lacking from 22 Governments, mostly in Hispanic America. Twenty-seven replies were re- ceived, of which 17 were classed as favorable, 7 as unfavor- able, and 3 as vague. Only Bolivia, Guatemala and China accepted the pro- posal unconditionally. Belgium, Australia and Canada ac- cepted it with the reservation contained in the recommenda- tion itself, which was that any contribution of troops asked by the League should not be included in the total. Great Britain, New Zealand, India and Italy accepted it with the reservation that the recommendation must be adopted by all the other Powers. A reference to this idea is found in most of the answers. Holland agreed, on the understanding that account be 175 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. taken of the rising prices. Denmark, Norway and Chile simply stated that increases in their budgets were improbable. Austria and Bulgaria replied that their military expendi- tures were fixed for them by the peace treaties. Sweden's re- ply was inconclusive in character. Rumania, Spain and Japan gave evasive answers. Ru- mania agreed in practice but pointed to the precariousness of its present situation in regard to Russia. Spain agreed also, but pointed out the uncertainty of the budget as a meas- ure of the extent of armaments. The Japanese answer was typical: "It is the earnest desire of the Japanese Government that an agreement should be reached between all States for the simultaneous reduction of their armaments, in accordance with the spirit of the League of Nations and with a view to the maintenance of peace throughout the world. Nevertheless, in view of the fact that the Council of the League, by virtue of the provisions of the Covenant, is closely studying plans for disarmament, the Japanese Government does not consider that it would be advisable to take any action upon the recom- mendation of the Assembly until these plans have been com- pleted." The seven States refusing to give the solicited promise were South Africa, Brazil, France, Finland, Poland, Greece and Yugo-Slavia. South Africa observed that its sudden ac- quisition of international status and the withdrawal of the imperial defense forces as well as the presence of a native population outnumbering the Europeans by four to one, form conditions so exceptional that it will be impossible at present for the Union Governemnt to determine what its defensive requirements during the next few years may be. The Brazilian Government remarked that, while the war enabled most of the other governments to perfect their na- tional defense, financial conditions forced Brazil to let its de- fensive measures fall so far behind that they have becomn inadequate to meet the requirements of the country. Finland showed that the credits set aside for military purposes have been reduced to fifteen per cent, of the entire budget in 1921, while they constituted twenty-two per cent, of the budget in 1919. Nevertheless the Finnish Government cannot give any promise for the immediate future because of the GovernJhent's absolute lack of a navy and the uncertain situation on the Eastern border. The same conditions were indicated in the Polish and Yugo-Slavian replies, while Greece pointed to its actual engagement in war with Turkey. "The Government of the Republic," says the French reply, "desires to point out that this reply should in no way be inter- preted as signifying an intention to elude the obligations laid 176 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. down in the Covenant. The Government of the Republic, on the contrary, desires to point out that faithful to the princi- ples laid down in the third resolution voted at Geneva, it has entered resolutely upon the path of reduction of armaments, as is proved by the draft bill which it has brought in to reduce the term of military service in spite of the very heavy military charges imposed upon it by its international obligations and considerations of national safety." The Commission goes on to say that the absence of Ger- many, Russia and the United States from the League is and must be an obstacle to any project for limitation of armament and control of arms traffic. The Commission made a recommendation that all nations be asked to file with the League answers to these nine questions: First — Population, area and length of frontiers. Second — Number of soldiers in time of peace. Third — Period of service and liability to service. Fourth — Number of men annually called -up for service. Fifth — Number of soldiers in time of war, with the num- bers and units of land and sea forces. Sixth — Material in use or stored in depots. Seventh — Annual military budget. Eighth — Share of expenditure per head on nb-tional defense. Ninth — Proportion national defense bears to the total of the budget. The report discusses at length the right of the League to control the armaments of members and says that this ques- tion can be brought to a, point only after the members have accepted the obligations of a disarmament agreement, when it would be in order for members to protect themselves against abuse of confidence. But the report then points out the great difficulty of lim- iting arms manufacture to State factories and finds that prob- ably it is more feasible to control private manufacture than to forbid it. It makes a long list of proposals for consideration. With regard to the control of traffic in arms the Commission makes the oft-repeated charge that America has failed to ratify the St. Germain Convention. But it also states that none of the principal Allied and Associated Powers has rati- fied it, and says that England and France are ready to ratify it when the United States does. It adds: "There again remains the case of the United States of America, which in view of the magnitude of its production of arms and ammunition, and the still more potential output of which the vast industrial resources of the country is capable, is of capital importance. 177 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "The United States was one of the signatories of the Con- vention of St. Germain, but so far as we can learn the Con- vention has not been submitted to the Senate for ratification." The report says it is absolutely useless to try to limit arms manufacture or trafHc unless all nations co-operate in the effort. The report then makes it clear that it refers mainly to land disarmament, which is regarded as the toughest problem. Referring- to President Harding's call for a conference in Washing-ton, it says: "The limitation of naval armaments, which presumably will be one of the principal problems discussed in Washing- ton, can indeed be most effectively secured by common agree- ment among- the Powers," and, it goes on: "Meanwhile a field of useful work remains open to the League of Nations. The financial position of the European States imperiously demands further reductions of military ex- penditures, and indeed it is not too much to say that the eco- nomic revival of Europe depends largely upon such reduc- tions being effected." The resolutions prepared in the 3d Committee raid ap- proved by the Assembly on October 1 are as follo^Ys: 1. That it is desirable that the Temporary Mixed Com- mission should be asked to continue the work which it has begun. 2. That the Temporary Mixed Commission be asked to make proposals on general lines for the reduction of national armaments which, in order to secure precision, should be in the form of a draft treaty or other equally definite plan, to be presented to the Council, if possible, before the Assembly next year. In order to enable the Temporary Mixed Commission to accomplish this task, the Council should be asked to strengthen this Commission. 3. That a statistical investigation be made -n-ith regard to the ai-maments of the various countries upon the lines in- dicated in the body of the Report of the 3d Committee. 4. That the Temporary Mixed Commission be requested to continue the examination of the question of the private manufacture of armaments and the trade in arms. 5. That the Council be requested to invite all the Mem- bers of the League and interested States which are not Mem- bers of the League to take part in an International Confer- ence on the private manufacture of arms and the trade in arms, which should meet as soon as possible at a date to be fixed under the responsibility of the Council. It is considered highly desirable that this date should be prior to the next session of the Assembly. 178 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Temporary Mixed Commission should be intrusted -with the task of preparing the program of the Conference and of submitting to it a draft Convention. 6. That the urgent importance of ratifying the Conven- tiori at the earliest possible moment be strongly impressed on all the Stiites signatories to the Arms Traffic Convention of St. Germain, whether Members of the League of Nations or not, and that at the same time all non-signatory States be invited to adhere to the Convention. The Assembly expresses its earnest desire that the impor- tance of this subject may be strongly urged at the forthcom- ing Conference on Disarmament at Washington. 7. The Assembly, ■ taking note of the view expressed in the report of the Temporary Mixed Commission on the Re- duction of Armaments with regard to the desirability of mak- ing provision for excluding the import of arms and ammuni- tion in time of peace from countries in which the trafflo is uncontrolled, invites the Council to prepare a draft protocol for this purpose for the consideration' of the various Govern- ments. At the same time it expresses the earnest hope that this procedure will not in any way be permitted to delay the general ratification of the Convention of St. Germain. The steps that may eventually have to be taken for the destruction of the surplus stocks of munitions may be consid- ered by the Temporary Mixed Commission. 8. That, subject to the conditions set out in the recom- mendation of the First Assembly, the recommendation that Members of the League should undertake not to exceed for the next two financial years following the present year the sum total of expenditure on military, naval and air forces pro- vided for in the budget of that year, be again forwarded to all Members of the League, together with a statement show- ing the replies already received to this recommendation. 9". That the Temporary Mixed Commission be asked to examine — in consultation with the Permanent Advisory Com- mission — whether it is advisable to address an appeal to the scientific men of the world to publish their discoveries in poison gas and similar subjects, so as to minimize the likeli- hood of their being used in any future war. 10. That it is desirable that propaganda in favor of the reduction of armaments, as contemplated in the Covenant, should be carried out with earnestness and conviction among all nations. 11. In pursuance of the third resolution of the First Assembly, the Assembly is of opinion that the Secretariat should be asked to complete the organization of the Section of the Secretariat dealing with the question of the reduction of ^ 179 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. armaments, and that this section should have a directorship of its own, oiN other equivalent official organization, quite sep- arate from and, if necessary, in addition to, those already proposed by the Fourth Committee of the Assembly. The second resolution was the result of Lord Robert Cecil's insistence in the Committee meeting on September 27 that the League must not temporize, but must do something definite. The representatives of Great Britain and France opposed Lord Robert's motion on the ground that it could produce no good results. "How," asked Mr. Fisher, "are we in the next year to draw up plans for the disarmament of the United States and Russia?" "If my proposal is not good," replied Lord Robert, "let England and France propose something. They have only criticised, but have offered nothing." The Committee gave Lord Robert 41 votes, England and Japan not voting. Resolutions 9 and 10 were also placed in the list by the Committee in response to the leadership of Lord Robert Cecil. The Council 30. Sunday, October 2. PUBLICITY— TTa.e Council listened to an address by the President of the International Journalists Association for the League of Nations. He advocated making the Council meetings, as a general rule, open to the public. 31. MINORITIES IN AiBAAT/A— Representatives of Albania and Greece took seats with the Council. The following declaration concerning protection of minorities in Albania was embodied in a report presented by Mr. Fisher (Great Britain): Article 1. The stipulations of this Declaration are recog- nized as fundamental laws of Albania and no law, regulation or official action shall conflict or Interfere with these stipu- lations, nor shall any law, regulation or official action now or in the future prevail over them. Article 2. Full and complete protection of life and lib- erty will be assured to all inhabitants of Albania, without distinction of birth, nationality, language, race or religion. All inhabitants of Albania will be entitled to the free ex- ercise, whether public or private, of any creed, religion or belief, whose practices are not inconsistent with public order or public morals. They will have the right to change their religion. Suitable provision will be made in the case of Mussulmans for regulating family law and personal status in accordance with Mussulman usage. 180 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Article 3. All persons born in Albania who are not born nationals of another State shall ipso facto be Albanian nationals. Persons habitually resident in Albania before the war will be allowed, together with their wives and children under eighteen years of age, within two years from the date of this Declaration, to become Albanian citizens, if they make ap- plication to that effect. Albanian nationals habitually resident, at the coming into force of the Treaty between the principal Allied Powers and Greece signed at Sevres on August 10, 1920, in territories transferred to Greece by treaties subsequent to January 1, 1913, shall be recognized as becoming Greek nationals ipso facto and without the requirement of any formality. Never- theless, they will have the right to opt for the Albanian nationality as provided for in Article 3 of the said Treaty of Sevres, and no hindrance shall be put in the way of the ex- ercise of this right. This right must be exercised within one year of the coming into force of that Treaty. Albania is prepared to comply with any recommendations which may be made by the Council of the League of Nations with respect to the reciprocal and voluntary emigration of persons belonging to ethnical minorities. Article 4. All Albanian nationals shall be equal before the law, and shall enjoy the same civil nad political rights without distinction as to race, language or religion. An electoral system giving due consideration to the rights of racial, religious and linguistic minorities will be applied in Albania. Differences of religion, creed or confession will not pre- judice any Albanian national in matters relating to the enjoy- ment of civil or political rights, as, for instance, admission to public employments, functions and honors, or the exercise of professions and industries. No restriction will be imposed on the free use by any Albanian national of any language in private intercourse, in commerce. In religion, in the press or In publications of any kind, or at public meetings. Notwithstanding any establishment of an official lan- guage, adequate facilities will be given to Albanian nationals of non-Albanian speech for the use of their language, either orally or in writing before the Courts. Article 5. Albanian nationals who belong to racial, re- ligious or linguistic minorities will enjoy the same treatment and security in law and in fact as other Albanian nationals. In particular they shall have an equal right to maintain, man age and control at their own expense or to establish in the future, charitable, religious and social institutions, schools 181 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and other educational establishments, with the right to use their own Language and to exercise their religion freely therein. . Within six months from the date of the present Declara- tion, detailed information will be presented to the Council of the League of Nations with regard to the legal status or the religious communities, churches, convents, schools, volun- tary establishments and associations of racial, religious and linguistic minorities. The Albanian Government will take into consideration any advice It might receive from the Leagut of Nations with regard to this question. Article 6. Provision will be made in the public educa tional system in towns and districts in which are resident f, considerable proportion of Albanian nationals whose mothei tongue is not the official language, for adequate facilities for insuring that in the primary schools instruction shall be given to the children of such nationals through the medium of their own language, it being understood that this provision does not prevent the teaching of the official language being made obligatory in the said schools. In towns and districts where there is a considerable pro- portion of Albanian nationals belonging to racial, religious or linguistic minorities, these minorities will be assured an equi- table share in the enjoyment and application of sums whicn may be provided out of public funds under the State, muni- cipal or other budgets, for educational, religious or charitable purposes. Article 7. The stipulations in the foregoing articles of this Declaration, so far as they affect the persons belonging to racial, religious or linguistic minorities, are declared to constitute obligations of international concern, and will be placed under the guarantee of the League of Nations. No modification will be made in them without the assent of a. majority of the Council of the League of Nations. Any Member of the Council of the League of Nations shall have the right to bring to the attention of the Council any infraction or danger of infraction of any of these stipula- tions, and the Council may thereupon take such action and give such direction as it may deem proper and effective in the circumstances. Any. difference of opinion as to questions of law or fact arising out of these Articles between the Albanian Govern- ment and any Power a Member of the Council of the League of Nations shall be held to be a dispute of an international character under Article XIV of the Covenant of the League of Nations. Any such dispute shall, if the other party thereto demands, be referred to the Permanent Court of International Justice. The decision of the Permanent Court shall be final 182 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and shall have the same force and effect as an award under Article 13 of the Covenant. Bishop Noli signed this Declaration for Albania. He ex- pressed the hope that the rights of Albanian minorities in Greece and Serbia would be similarly safeguarded. The Greek delegate, M. Dendramis, said that Greece was bound by clauses about minorities in the Treaty of Sevres, and that it was not the fault of Greece that that treaty was still unratified. The Italian and British representatives asked whether Greece was ready to put into force immediately the minori- ties clauses in the treaty. M. Dendramis answered that his Government reserved Ita decision and its reply. The Council voted that the stipulations in the foregoing Declaration are, as soon as they are ratified by the Albanian Government, placed under the guarantee of the League of Nations. 32. MINORITIES IN FINLAND— In the presence of M. Bnckell, representative of Finland, the Council accepted a re- port by Mr. Fisher to the effect that tha rights of racial, religious and linguistic minorities are, in all essential points, fully covered in the constitutional law of Finland. 33. THE INTERNATIONAL HYDROGRAPHIG BUREAU to which 19 Governments have adhered, is the first inter- national bureau established subsequent to the beginning of the League. In conformity with Article XXIV of the Covenant, the Council, voted to place this Bureau under the direction of the League. 34. THE SAAR VALLEY GOVERN. UENT—Tlie Council transmitted to the Saar Valley Governing Commission, with- out objection, the conclusions of the Commission on Com- munications and Ti-ansit upon the relation of the Saar A'alle\ Government to the Berne International Railway Transport Convention. The decision was that the Convention is m force in the Saar Valley, and that the Governing Commission is alone entitled now to represent the Saar railways in all matters affecting the application or revision of the Con- vention. The Council voted that the Secretary-General should ask the Saar Valley Governing Commission about possible ar- rangements for the settlement of "Enemy Debts" in the Saar Valley (debts due from residents in the valley to subjects of Great Britain and other Allied Countries). 35. MANDATES— The Council, according to the vote of the Assembly on September 23, authorized the Secretary- 183 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. General to send to the mandatory Powers a letter, of which this is the essential part: The Council, at its sitting of October 2, considered the resolution passed hy the Assembly and was glad to be able to associate itself with the views therein expressed. On the one hand, it was anxious not to take any steps which might in any way prejudice the result of the negotiations now pro- ceeding between the principal Allied Powers and the Govern- ment of the United States. On the other, it was no less anxious to allay any feelings of apprehension and anxiety which may have been caused by the unavoidable delay in the issue of the Mandates. The Council has, therefore, taken the following decisions: (a) As regards the territories which are to be adminis- tered in accordance with paragraph 5 of Article XXII of the Covenant, i.e., the former German possessions of East Africa, Togoland and the Cameroons, the Council, while reserving ex- amination of the details of the Draft Mandates laid before it on account of modifications which it may eventlally be found suitable to make, declares that, generally speaking, the principles contained therein, express the high objects which the Covenant has in view and lay down in a spirit in harmony with that of the Covenant safeguards for the rights of all the members of the League. (b) As regards Togo and the Cameroons, the Council in accordance with the joint recommendation of the French and British Governments dated December 17, 1920, approves the application of the Mandate system to these territories and adopts in principle the Declarations signed by the French and British Governments on July 10, 1919, as to the respective spheres which are to be placed under the authority of each Government. (c) The Council has no hesitation in expressing to the Mandatory Powers its confidence that they will continue to carry on the administration of the territories committed to their charge in accordance with paragraphs 4 and 5 of Article XXII of the Covenant in the spirit of the Draft Man- dates until such time as the position shall have been definitely regularized. The Council also expresses to the Mandatory Powers ita appreciation of their courtesy in communicating to the League of Nations, for its information, reports concerning certain of the territories confided to their care in accordance with the terms of Article XXII of the Covenant, even before it has been possible to confirm their Mandates. Finally the Council takes note of the Declarations made before the Sixth Committee of the Second Assembly by the Representatives of Belgium, of the British Empire, and of 184 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. France, as to the supply of information to the Permanent Mandates Commission. Under (b) it may be noted that no reference is made to the expressed intention of France to use native levies for the defense of territory outside the mandated area, if necessary, an intention contrary to the probable meaning of the fifth paragraph of Article XXII of the Covenant. The reference in the last paragraph of the Council's letter is to statements made on September 20. These gen- tlemen said that their Governments would put at the disposal of the Mandates Commission all Information which it might require, but that there was no legal obligation to do so, until after the Mandates had been confirmed. 36. DEPORTATION OF WOMEN AND CHILDREN IN TURKEY — The Council associated itself with the resolution adopted by the Assembly on September 23, and voted to offer the post of Commissioner and Chairman of the Mixed Board to Mr. William Wheelock Peet, an American resident in Con- stantinople, treasurer and business manager of the A. B. C. F. M. in Turkey since 1881, treasurer of the Constantinople chap- ter of the American Red Cross, and trustee of Constantinople College for "Women. He is also closely associated with the Near East Relief. As Commissioner he will have charge of the Neutral House. 37. ARMENIA — The Council approved a letter to the prin- cipal Allied Powers, transmitting the Assembly resolution of September 21, and expressing the accord of the Council. The Council took similar action concerning the Assembly resolution of September 27 about Eastern Galicia, and con- cerning the Assembly resolution of September 21 about the campaign against typhus. The Assembly October 3. ALBANIAN BOUNDARIES— The 6th Com- mittee reported upon the appeal from Albania and upon the controversy between Albania and Yugo-Slavia, which had been referred to the Assembly by the Council. The Assembly adopted resolutions offered by the Com- mittee: 1st, that Albania should accept the decision about frontiers soon to be announced by the Council of Ambassa- dors; 2nd, that the Council should appoint three impartial persons as a Commission to go to Albania at once, and report on the execution of the decision of the Ambassadors, and on any disturbances along the frontiers. Bishop Noli, for Albania, accepted both resolutions. In the course of the debate, he said: "If that Commission is sent there, everybody will know there is less fanaticism inside than outside Albania; that 185 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. there is more order inside Albania than outside; that our Government can compare with any other Government in the Balkan peninsula. Have the Commission sent imnaediately, for this reason: We had frontiers before the war; frontiers established by international treaties. Those treaties are signed by the Great Powers, and yet, after a war fought for freedom and for the rights of small nationalities, we found ourselves without frontiers. This is a matter which only the jurists of the Great Powers can explain. I shall not try to explain It. "Today they say to us: Tou have no frontiers, and there- fore you cannot accuse anyone of violating them. Conse- quently, every one of our neighbors considers himself author- ized to invade our territory, and presumes to blame us if we resist invasion. No one can blame us for it." BUDGET FOR 1922 — The 4th Committee presented recom- mendations and resolutions, extending the rules of financial administration adopted by the First Assembly . The total budget for the year 1922 was fixed at 20,873,945 gold francs, which, because of various economies especially in capital ex- penditure and in the International Labor Office, was 376,065 gold francs less than the budget for the previous year. In order to secure a larger measure of financial control than previously exercised, the Assembly approved the creation of a Committee of Financial Control, consisting of from three to five members, one of whom at least should be a financial expert. League members not represented in the Council shall be represented in this Committee. This Committee would both examine the accounts for the previous financial year and inves- tigate in detail the budget for the ensuing year, which must be submitted to this Committee before being given to the Council. Statement of Income and Expenditure for 1922, as Approved by the Assem-bly. Income Gold francs Expenditure Gold francs I. Ordinary contribution A. League Expenditure, toward normal up- 1. Assembly and Council keep 13,251,425 Meetings 1,000,000 'i. Ordinary contribution 2. General Services of toward upkeep of the Secretariat .... 6,145,060 Labor Organization. 6,135,610 3. Special Organizations 3. Extraordinary contri- of the League 4,606,376 bution toward cap- i. Capital Expenditure. 1,486,910 Ital account 1,486,910 B. Worldng capital re- 4. EJxtraordlnary contri- placement — tlon to r e p 1 a c e 6, Permanent Court of working capital — International Jua- tloe 1,500,000 20.873,946 B, Labor Organization. 7. Estimates for 1922., 6,135,610 186 20,873,945 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. AMENDMENTS TO THE COVENANT— Amendments, after being considered at length in the first and other committees, were debated in the Assembly during October 3 and 4. I. Amendment of Article XXVI. This was the first sub- ject brought before the Assembly by the 1st Committee. A preliminary question arose from the fact that the Cove- nant makes no provision as to the method by which amend- ments should be submitted to the nations for their ratification. Certain members of the Assembly believed that unanimity was required in that body; others that this would make amendment almost impossible and was obviously not the in- tention of the Covenant, which specifically provided for States refusing to' ratify the amendments adopted. The Assembly unanimously agreed, however (37 votes being recorded), that for the present session no amendment should be passed unless it received a three-fourths majority of the Assembly, includ- ing all the members of the Council. By the same vote the Assembly approved the new form of Article XXVI, as proposed by the 1st Committee, thus: "Amendments to the present Covenant the text of which shall have been voted by the Assembly on a three-fourths ma- jority, in which there shall be included the votes of all the members of the Council represented at the meeting, will take effect when ratified by the members of the League whose representatives composed the Council when the vote was taken and by the majority of those whose representatives form the Assembly. "If the required number of ratifications shall not have been obtained within twenty-two months after the vote of the Assembly, the proposed amendment shall remain without effect. "The Secretary-General shall inform the members of the taking effect of an amendment. "Any member of the League which has not at that time ratified the amendment is free to notify the Secretary-Gen- eral within a year of its refusal to accept it, but in that case it shall cease to be a, member of the League." In the original report of the Committee the time for rati- fication was 18 months. The change to 22 months was made upon the suggestion of M. TJrrutia (Colombia). Sir James Allen (New Zealand) asked whether a three- fourths majority of the Assembly meant three-fourths of the whole Assembly, or of those present at a meeting. He pro- posed to put on the agenda of the next Assembly two questions: 1. "What constitutes a quorum in the Assembly and in Committees? 187 SECOND YEAR BOCMC OF THE LEAGUE OF NATIONS. 2. Modify the rule of procedure which permits delegates abstaining from a, vote to be counted as absent. Original form of Article XXVI. Amendments to this Cove- nant will take effect when ratified by the members of the T.eague whose representatives compose the Council and by a majority of the members of the League whose representatives compose the Assenably. No such amendment shall bind any member of the League which signifies Its dissent therefrom, but in that case it shall cease to be a member of the League. It was agreed that, inasmuch as an Assembly resolution of amendment is subject to ratification by the States, the amendments should take the form of protocols, embodying the resolutions as voted by the Assembly, signed by the Presi- dent and Secretary-General and also open to signature by plenipotentiaries. The form of such a protocol was approved, thus: Protocol to an amendment to Article .... of the Covenant. The Second Assembly of the League of Nations, under the Presidency of M. H. A. van Karnebeak, assisted by Siir Eric Drummond, Secretary-General, adopted at its meeting of J the following resolution, being an amendment to Article .... of the Covenant. (Here follows the resolution.) The undersigned, being duly authorized, declare that they accept, on behalf of the members of the League which they represent, the above amendment. The present protocol will remain open for signature by the members of the League; it will be ratified and the ratifi- cations will be deposited as soon as possible with the Secre- tariat of the League. It will come into force in accordance with the provisions of Article 26 of the Covenant. A certified copy of the present protocol will be trans- mitted by the Secretary-General to all members of the League. Done at Geneva, on in a single copy, of which the French and English texts are both authen- tic and which will be kept in the archives of the Secretariat of the League. (Signed) President of the 2nd Assembly. Secretary-General. For For II. October 4. Amendment of Article XVI. The Eco- nomic "Weapon. The first part of the report of the 3d Com- 188 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. mittee on this subject was substantially approved by the Assembly on September 27. Amendments to Article XVI were debated on October 3 and 4, and adopted October 4. The original and amended texts are shown in comparison, thus: SANCTIONS. Article 16. Should any member of the League resort to war in disregard of its covenants under Articles 12, 13 or 15, it shall ipso facto be deemed to have committed an act of war against all other members of the League, which hereby un- dertake immediately to subject it to the severance of all trade or financial relations, the prohibition of all intercourse be- tween their nationals and the nationals of the covenant-break- ing State, and the prevention of all financial, commercial or personal intercourse between the nationals of the covenant- breaking State and the nationals of any other State, whether a member of the League or not. It shall be the duty of the Council in such a case to rec- ommend to the several Governments concerned what effective military, naval or air force the members of the League shall .severally contribute to the armed forces to be used to protect the covenants of the League. The members of the League agree, further, that they will mutually support one another in the financial and economic measures which are taken under this Article, in order to mini- mize the loss and inconvenience resulting from the above measures, and that they will mutually support one another in resisting any special measures aimed at one of their number by the covenant-breaking State, and that they will take the necessary steps to afford passage through their territory to the forces of any of the Members of the League which are co- operating to protect the covenants of the League. Any member of the League which has violated any cove- nant of the League may be declared to be no longer a mem- ber of the League by a vote of the Council concurred in by the representatives of all the other members of the League represented thereon. The Assembly resolves that: 1. The latter part of the first paragraph of Article 16 of the Covenant shall read as follows: ". . which hereby undertake immediately to subject it to the severance of all trade or financial relations, the prohi- bition of all intercourse between persons residing in their ter- ritory and persons residing in the territory of the Covenant- breaking State, and the prevention of all financial, commer- cial or personal intercourse between persons residing in the territory of the Covenant-breaking State and persons residing 189 SECOND YEAR BOOK OF* THE LEAGUE OF NATIONS. in the territory of any other State, whether a member of the League or not." 2. The second paragraph of Article 16 shall read as follows: "It is for the Council to give an opinion whether or not a breach of the Covenant has taken place. In deliberations on this question in the Council, the votes of members of the League alleged to have resorted to war and of members against whom such action was directed shall not be counted." 3. The third paragraph of Article 16 shall read as fol- lows: "The Council will notify to all members of the League the date which it recommends for the application of the eco- nomic pressure under this Article." 4. The fourth paragraph of Article 16 shall read as fol- lows: "Nevertheless, the Council may, in the case of particular members, postpone the coming into force of any of these measures for a specified period where it is satisfied that such a postponement will facilitate the attainment of the object of the measures referred to in the preceding paragraph, or that it is necessary in order to minimize the loss and incon- venience which will be caused to such members." In the discussion of these amendments in the Assembly on October 3, M. Frangulis, delegate from Greece, declared that before any economic sanctions are applied, the Council should decide whether a breach of the Covenant existed. He moved to prefix to the second paragraph of the new Article the words, "Before any of the sanctions are put in force." M. Schanzer (Italy) for the Committee opposed the proposal on the ground that naember States were to determine for themselves whether there had been a breach of the Covenant, but he thought it unlikely that any State would actually apply economic sanctions before the Council had expressed its opinion. M. van Swinderen (Netherlands) moved that the whole matter be deferred until the next Assembly. This motion was disposed of on the next day, October 4, by the adoption of the resolution listed as No. 1, under the date of September 27. M. Frangulis' amendment was defeated by 27 votes against 11, and then the clauses of the new Article XVI were unanimously approved. III. Argentine Amendment to Article 1. The Argentine amendment, "that all sovereign States rec- ognized by the Community of Nations be admitted to join the League of Nations In such a manner that if they do not be- come members of the League this can only be the result of a 190 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. voluntary decision on tlieir part," was considered at length. It was recognized that tlie Argentine was actuated by the liighest motives in proposing a clause which would uncondi- tionally throw open the doors of the League to all States, but at the same time it was felt that the proposed amendment was not only admitted by its authors to be imperfect in draft- ing, but that it aimed at u radical transformation of the whole character of the League, and would require several other fundamental changes in the Covenant. Consequently, though certain of these difficulties might be met by textual changes, the Assembly reluctantly decided that, in view of the regret- table absence of the Argentine Delegation, and until the prin- ciple contained in its proposal couM be accepted, any decision on the amendment proposed should be postponed. Delegates of Uruguay, Colombia, Chile and Spain spoke in a. spirit favor- able to this conclusion and also in laudation of the principle advocated by Argentina. IV. Admission of Small States. The First Committee re- ported on the relations of very small States, such as Liechten- stein, to the League. The Committee had referred the ques- tion to the special committee on amendments. There were three ways proposed by the Amendments Committee — that of association, that is to say, representation with no vote; that of representation by being a Member State; or, thirdly, limited participation when the interests of the particular State were at stake. The First Committee was of the opinion that any of these solutions would require an Amendment of the Covenant, and as the question was not immediately before the Assembly, through a demand being made, it was decided that no amend- ment should be proposed. Moreover, it was pointed out that States which are not members of the League have an oppor- tunity of taking part in its Technical Organizations, and are also able to register their treaties with the League, so that there are means of connection for them with the League. The First Committee therefore proposed to await the re- sults of experience in such collaboration before considering further the question of admission to the League. The Assem- bly adopted this, view. v. Amendments Proposed by Scandinavian Governments. These Governments had proposed an amendment to Article III, providing a. fixed date for an obligatory annual session of the Assemblj', and for a meeting of the Assembly whenever a fixed number of member States concurred in a call. The Commi.tee pointed out that the object of this amendment was secured by the Assembly rules of procedure, and the Scandinavian delegations were informed that their Governments withdrew the proposed amendment. 191 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The amendments proposed by Norway and Sweden for Articles XII and XV were designed to introduce a system of Permanent Commissions of Arbitration and Conciliation. The First Committee did not recommend the adoption of the amendments, though the procedure of conciliation was ap- proved as in conformity with the spirit of the Covenant, and the Council was invited to appoint a Committee to investigate the specific proposals made, with a view to formulating a body of rules. Similarly, the Danish, Norwegian and Swedish proposals to render more absolute and more precise the obli- gation to resort to arbitration were not accepted, as it was felt desirable to leave to the parties to a dispute a free choice between various procedures of settlement, and not to impose compulsory arbitration. The Assembly adopted the conclusions of the Committee. The Scandinavian Governments proposed the elimination of the word "generally," near the end of the second paragraph in Article XIII. This was a move towards the principle of obligatory Jurisdiction. The Committee pointed out that since this amendment was suggested a permanent court had been estab- lished, and that some States had already conferred upon it a compulsory jurisdiction. It was the opinion of the Committee that this principle should be permitted to develop gradually. The Scandinavian Governments no longer insisted upon this amendment, and the Assembly sustained the Committee in rejecting it. VI. Arriendments to Articles XII, XIII, XV, made necessary by the creation of the Permanent Court, were reported by the First Committee and approved by the Assembly, as fol- lows (new matter in italics): ARTICLE XII. "The members of the League agree that, if there should arise between them any dispute likely to lead to a rupture they will submit the matter either to arbitration or judicial settle- ment or to inquiry by the Council and they agree in no case to resort to war until three months after the award by the ar- bitrators or the judicial decision, or the report by the Council. "In any case under this Article, the award of the arbi- trators or the judicial decision shall be made within a reason- able time, and the report of the Council shall be made within six months after the submission of the dispute. ARTICLE XIII. "The members of the League agree that, whenever any dispute shall arise between them which they recognize to be suitable for submission to arbitration or judicial settlement, 192 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and which cannot be satisfactorily settled by diplomacy, they will submit the whole subject-matter to arbitration or judicial settlement. "Disputes as to the interpretation of a treaty, as to any question of international law, as to the existence of any fact which, if established, would, constitute a breach of any inter- national obligation, or as to the extent and nature of the rep- aration to be made for any such breach, are declared to be among those which are generally suitable for submission to arbitration or judicial settlement. "For the consideration of any such dispute, the court to which the case is referred shall 6e the Permament Court of In- ternational Justice, established in accordance vAth Article 14 or any tribunal agreed on by the parties to the dispute or stip- ulated in any convention existing between them. "The members of the League agree that they will carry out in full good faith any award or decision that may be rendered, and that they will not resort to war against a member of the League which complies therewith. In the event of any failure to carry out such an award or decision, the Council shall pro- pose what .steps should be taken to give effect thereto." The first paragraph of Article XV shall read as follows: "If there should arise between members of the League any dispute likely to lead to a rupture, which is not submitted to arbitration or judicial settlement in accordance with Article 13, the members of the League agree that they will submit the matter to the Council. Any party to the dispute may effect such submission by giving notice of the existence of the dis- pute to the Secretary-General, who will make all necessary arrangements for a full investigation and consideration there- of." VII. Amendments of Article XXI. The text of this Article In the Covenant is as follows: Nothing in this Covenant shall be deemed to affect the validity of international engagements, such as treaties of arbi- tration or regional understandings like the Monroe Boctrine, for .securing the maintenance of peace. China and Czecho-Slovakia had proposed amendments to Article 21. China having in mind doubtless the Lansing-Ishii Agreement and the secret treaty of London about Japanese claims in China, asked that the words "regional understand- ing" should be left out. If this expression were retained, China asked that at the end of Article 21a, conditional clause might be added in order that such understandings should not prejudice the rights and interests of the other members of the League which were not parties to it. On the other hand, the Czecho-Slovakian delegation asked that regional understandings should be maintained, and en- 7 193 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. couraged by the League. This proposition was obviously for- mulated for the advantage of the Little Entente. A committee of jurists appointed by the Council had sub- mitted the following as a possible substitute for Article XXII. "Nothing in this Covenant shall be deemed to affect the validity of international engagements, such as Treaties of Arbitration or regional understandings, like the Monroe Doe- trine, for securing the maintenance of peace. "Agreements between members of the League tending to define or complete the engagements contained in the Cove- nant for the maintenance of peace, or the promotion of Inter- ternatlonal co-operation, may not only be approved by the League, but also promoted and negotiated under its auspices, provided these agreements are not inconsistent with the terms of the Covenant. "Special Conferences of the members of the League concerned may be summoned for this purpose by the Council or by the Assembly." The First Committee reported in favor of no action and no change in Article XXI, and the Assembly approved its recommendations in these words: "The First Committee has examined the different pro- posals concerning the Article. It has recognized the utility of the ideas on which they are based. However, it is of the opinion that the time has not yet arrived for a revision of the Article. This opinion is further strengthened by the fact that the present text does not exclude the application of thi ideas mentioned above. "The Committee therefore proposes to the Assembly that Article 21 should be retained in its present form, and draws the Assembly's attention to the fact that agreements between members of the League tending to define or complete the en- gagements contained In the Covenant for the maintenance of peace or the promotion of international co-operation, may be regarded as of a nature likely to contribute to the progress of the League in the path of practical realizations. "Such agreements may also be negotiated under the aus- pices of the League of Nations, for example, in special con- ferences, with Its assistance." VIII. Canadian Proposal to omit Article X from the Covenant. This proposed amendment of the Covenant had evoked widely divergent opinions in the First Committee. This is the text of Article X: The members of the League undertake to respect and preserve as against external aggression the territorial in- tegrity and existing political independence of all members of the League. In case of any such aggression or in case of any threat or danger of such aggression, the Council shall 194 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. advise upon' the means by which this obligation shall be fulfilled. Mr. Doherty (Canada), on September 21, explained to the Committee why his delegation wished to eliminate this Article. He contended that the Article appeared to assert as a principle that possession or the status quo should prevail even over the needs of justice. The obligation to defend a possibly unjust situation could not be imposed on any nation in the world. "All the nations of the w^orld are told that they will be obliged with all the means in their possession to come to the assistance, not of the party considering Itself injured, but of the party in unjust possession." The speaker concluded that those who were afraid of Article 10 could excuse themselves from following any recom- mendations which tile Council might address to them, since there was no legal obligation upon them to observe them. But whether or not it was possible to conform with it. Article 10 had thus ceased to be either a protection or a guarantee. It was therefore without effective value, and the States which counted upon it for protection had, equally with those States upon whom the obligation of protecting was imposed, good reason to complain of it. On the other hand, on the assumption that the principle of protected possession should be maintained, it should ba asked who would have to furnish such protection. Was it just to impose the same obligation upon the poor and the weak; upon countries the resources of which were illimitable, and upon countries which were struggling for their verv existence? Secondly, was it just to impose a mutual obligation to guarantee against certain countries, and to submit those which were not exposed to the same risks as those which were seriously so exposed ? It had been said that this constituted an unlimited liability company of mutual assurance, but a company had never been contemplated in which no regard was had to the risks of those who joined it, and where every one had to pay the same assurance premium. It was the business of the League of Nations to draw a distinction and to indicate which nations had need of pro- tection and which nations should afford such protection. Can- ada would willingly subscribe to a system which made dis- tinctions of this nature, but it protested against an obliga- tion, in itself unjust, which was raised into a fundamental principle, and consisted in invariably giving to peace the pref- erence over war. Canada could not subscribe to such a sys- tem because, however great the importance which she at- tached to peace, it was impossible for her to subscribe to methods which guaranteed a state of affairs which appeared to her to be unjust. 195 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The First Committee prepared and debated a long re- port, the fundamental doctrine of which was that Article X does not perpetuate the existing territorial status quo, but only excludes acts of aggression from without as means of modi- fying territorial integrity and political independence. The re- port contained the text of the article as first proposed by President Wilson (Article III of Mr. Wilson's original plan), which read as follows: (The italicised portions appeared for the first time in the second draft.) "The Contracting Powers unite in guaranteeing each other's political independence and territorial integrity, as against external aggression, but it is understood between them that such territorial readjustments, if any, as may in future become necessary by reason of changes in present racial con- ditions and aspirations or present social dnd political relation- ships shall be pursuant to the principle of self-determination, and also such territorial readjustments as may in the judgment of three-fourths of the delegates be demanded by the welfare and manifest interest of the peoples concerned may be effected if agreeable to those peoples and to the State from which the territory if separated, or to which it is added; and that terri- torial changes made in equity involve material compensation. The Contracting Powers accept without reservation the prin- ciple that the peace of the world is superior in importance to every question of political jurisdiction or boundary." This was finally whittled down to the form adopted for Article X. The Committee drew up a resolution of interpretation oE the following nature: "Article X was not intended to perpetuate territorial and political organizations as established and as existing at the time of the recent treaties of peace. Changes may be effected in that organization by various legitimate means. The Cove- nant admits the possibility. "The intention of Article X is to enunciate the principle that hereafter the civilized world cannot tolerate acts of aggression as a means of modifying the territorial status quo and political independence of States. "To this end the members of the League have pledged themselves, first, to respect the territorial integrity and ex- isting political independence of all States members of the League, and, secondly, to maintain this integrity and inde- pendence against any external aggression, whether on the part of a State member or State non-member of the League. "With the view of assuring fulfillment of this second ob- ligation the Council shall advise upon means; it must do so not merely in the case of actual aggression, but also in 196 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. case of danger or threat of aggression. The Council will per- form this funttion by addressing to members such recom- mendations as are deemed proper in regard thereto, taking into account Articles XI, XII, XIII, XV, XVlI and XIX of the Covenant." The report declares members are not obliged to take part In any military action, being free to make their own ultimate decision. But finally the Committee decided to lay before the As- sembly only the following resolution of postponement which the Assembly approved October 4: Whereas a. motion has been submitted by the Canadian Delegation for the striking out of Article 10 of the Covenant; Whereas widely different opinions have been expressed with regard to the legal bearing of this Article and its re- lationship to the other Articles of the Covenant, especially to Articles 12 to 17; And whereas the legal and political arguments made both in favor of and against the striking out of Article 10 are of great weight; The Assembly postpones the continuation of the examina- tion of the proposal and the decision until its next Session, and recommends that this proposal be decided before any other amendment. PROTECTION OF MINORITIES— In considering Prof. Mur- ray's motion for the establishment of a Permanent Com- mission on complaints from minorities, the First Committee found that on October 25, 1920, the Council had authorized its President and two Council members, to be named by him, to act as such a Commission whenever needed. The Com- mittee deemed further action unnecessary, and the Assembly approved the report. The Permanent Mandates Commission Held its first meeting on October 4 in the League of Nations building at Geneva, elected Marquis Alberto Theodoli (Italy) to be provisional chairman, and adopted rules of procedure. Buergertland On October 4 a representative of the Hungarian Govern- ment in the ofBce of the Allied Military Commission of Con- trol (British, French and Italian) at Oedenburg, chief town of West Hungary or Buergenland, signed a protocol handing over that territory to the Commission for transference to Austria, according to the terms of the Treaty of Trianon. Hungary withdrew its regular troops from the territory, 197 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. but disowned responsibility for "irregular troops," of whom there were several groups, some avowed partisans of Carl of Habsburg, some of Regent Horthy, others mere adven- turers, but all united in the determination that Austria should not have Buergenland. On account of these bands the 'Aus- trian Government refused to sign the protocol or to attempt to re-occupy the tfrritory. The Allied Commission had no forces other than a local gendarmerie on which it could scarcely rely. Through the good offices of the Italian Governnaent the representatives of Austria and Hungary signed at Venice October 13, a supplementary or auxiliary agreement, the new feature of which was a plebiscite to be held in Oedenburg and several other districts of Buergenland. This agreement also was rejected by most of the "irregulars." The Assembly Wednesday, Oct. 5. ARTICLE XVIII. PUBLICITY FOB TREATIES — The First Committee reported an amended form of Article XVIII with an interpretation of the purpose anci scope of the Article and a series of nine regulations concern- ing manne- of procedure under the Article. The amended article would have excluded from registration instrumentf of a purely technical or administrative nature, having no bearing on political international relations. An extended debate brought out the di<"aculty of defining such instruments, and the Assembly finally voted to adjourn consideration of the whole matter until the Third Assembly. An effort was made by resolution to permit Member States to interpret their obligations under Article XVIII provisionally in accordance with the conclusions of the Committee, but five States voted in the negative, so although 28 States voted "yes," the mo- tion was practically lost. A resolution is passed only by a unanimous vote. UNANIMITY — The Assembly approved the report of the First Committee that the time had not yet come for amend- ing Article V '^o as to permit departures from the rule of unanimity in voting. The Netherlands and Colombia had already withdrawn amendments which they had' proposed. ALLOCATION OF EXPENSES; AMENDMENT OF AR- TICLE VI — Upon recommendation by the Fourth Committee the A-Ssembly adopted for ratification by the members of the League two amendments to Article 6 of the Covenant, the first pro- viding that hereafter the expenses of the League shall be borne by the members in the proportion decided by the As- 198 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. sembly, and the second laying- down a new system of alloca- tion to be applied from January 1, 1922, until a revised allocation shall have been accepted by the Assembly. If the States ratify the proposed amendments the fifth paragraph of Article VI will read as follows: "The expenses of the League shall be borne by the mem- bers of the Leag;ue in the proportion decided by the Assem- bly;" and this new piragraph will be added to the Article: "The allocation of the expenses of the League set out in Annex 3 shall be applied as from January 1, 1922, until a re- vised allocation has come into force after adoption by the Assembly." Upon these amendments there were one or two negative votes, and the President's formula of announcement wan: "The members of the Council being in the majority, I declare the motion carried." The Assembly also approved the following table as an amendment to the Annex to the Covenant. It must be re- membered that until the ratification of the amendment to Article VI by all members of the Council and by a majority of the States represented in the Assembly, the old system of allocating expenses remains in force. Under the old sys- tem the unit of calculation is 40,453.38 gold francs; under the new the unit is 22,159.18 gold francs. Allocation of the Expenses of the League Old System of Postal New System States. Union. Units Units Payable. Payable. Albania 1 $7,805.54 2 $8,551.31 Argentina' 35* Australia 25 195,140.47 15 64,135.38 Austria 5 39,028.09 2 8,551.31 Belgium 15 117,084.28 15 64,135.38 Bolivia 3 23,416.82 5 21,378.46 Brazil 15 117,084.28 35 149,649.02 British Empire.... 25 195,140.47 90 384,811.87 Bulgaria 5 39,028.09 10 42,756.92 Canada 25 195,140.47 35 149,649.02 Chile 5 39,028.09 15 64,135.38 China 25 195,140.47 65 277,919.76 Colombia 5 39,028.09 10 42,756.92 Costa Rica 3 23,416.82 2 8,551.31 •Argentina has never made any payment to the League of Nations. The estimates have been framied therefore without including payments from that republic. When Argentina pays the contributions of the States will have to be readjusted. 199 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Old System of Postal New System States. Union. Units Units Payable. Payable. Cuba 3 23,416.82 10 42,756.92 Czecho-Slovakia . . . 15 117,084.28 35 149,649.02 Denmark 10 78,056.00 10 42,756.92 Estonia 3 23,416.82 5 21,378.46 Finland 10 78,056.00 5 21,378.46 France 25 195,140.47 90 384,811.87 Greece 5 39,028.09 10 42,756.92 Guatemala 3 23,416.82 2 8,551.31 Haiti 3 23,416.82 5 21,378.46 Honduras 3 23,416.82 2 8,551.31 India 25 195,140.47 65 277,919.76 Italy 25 195,740.47 65 277,919.76 Japan . . . 25 195,140.47 65 277,919.76 Latvia 5 39,028.09 5 21,378.46 Liberia 1 7,805.54 2 8,551.31 Lithuania 3 23,416.82 5 21,378.46 Luxemburg 3 23,416.82 2 8,551.31 Netherlands 15 117,084.28 15 64,135.38 New Zealand 3 23,416.82 10 42,756.92 Nicaragua 3 23,416.82 2 8,551.31 Norway 10 78,056.00 10 42,756.92 Panama 3 23,416.82 2 8,551.31 Paraguay 3 23,416.82 2 8,551.31 Persia 3 23,416.82 10 42,756.92 Peru 5 39,028.09 10 42,756.92 Poland 25 195,140.47 15 64,135.38 Portugal 10 78,056.00 10 42,756.92 Roumania 15 117,084.28 35 149,649.52 Salvador 3 23,416.82 2 8,551.31 Serb-Croat-Slovene State 10 78,056.00 35 149,649.02 Siam 3 23,416.82 10 42,756.92 South Africa 25 195,140.47 15 64,135.38 Spain 20 156,112.38 35 149,649.02 Sweden 15 117,084.28 15 64,135.38 Switzerland 15 117,084.28 10 42,756.92 Uruguay 3 23,416.82 10 42,756.92 Venezuela 3 23,146.82 5 21,378.46 Under the new plan Great Britain and France each must pay 9.2 percent, China, India, Italy and Japan are placed in the second category and are called upon to pay 6.65 per- cent each. In the third category are placed Argentina, Spain, Brazil, Rumania, Jugo-Slavia and Caecho-Slovakia, whose individual shares are fixed at 3.58 percent. The scale is grad- 200 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. uated downward to .21 of 1 percent which will be paid by Nicaragua, Luxemburg, Panama, Paraguay, Salvador, Costa Rica, Guatemala, Honduras and Liberia. Great Britain and France will pay 1,800,000 gold francs, while the Nations in the second category will each pay 1,300,- 000. The countries in the lowest category will be called upon tor 42,000 gold francs. At the same time the following reconmendations and resolution were adopted: Recommendation 1. The Assembly recommends that, when a revised scheme of allocation of the expenses of the League has been adopted after consideration of the fresh recommendations of the Ex- pert Committee, members of the League which may, with effect from January 1, 1921, and up to the year for which the revised scheme is adopted, have paid more than they are called upon to pay under the operation of such scheme, should be entitled to a refund of the excess amount paid. Such refund shall be made as surplus funds accrue and without prejudice to the maintenance of the working capital account of the League at its full normal figure. Recommendation 2. The Assembly, recognizing that the proposals of the Ex- pert Committee (A. 40, 1921), are still susceptible of improve- ments and adjustments after a more exhaustive investigation of the data, recommends that this Committee, so ably pre- sided over by M. Reveillaud, be reappointed by the Council to continue its work and, after taking account of the various factors not yet fully examined, to submit a further report indicating such modifications of the allocation provisionally accepted as it may deem equitable. Resolution. In order to provide for the carrying out of the above de- cision, the Secretary-General is instructed to include the sum of 16,000 gold francs in the Budget of the League for the fourth fiscal period (1922), it being understood, however, that, before any of the said appropriation be expended, a detailed estimate shall be submitted to the Council of the League and shall be approved by it. Recommendation 3. The Assembly recommends the Council to see that the Committee charged with preparing a final scheme for the allocation of expenses shall present this table to the As- sembly of 1923. In this connection the Assembly adopted these additions to its own rules of procedure: SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 1. That no proposal for a, change in allocation of ex- penses shall appear in the agenda, unless it has been sent to members at least four months before the opening of the session; 2. That before the Assembly votes on resolutions in- volving expenditure, the Finance Commission shall give its opinion on the advisability of the proposed expenditure, with due regard to budgetary resources. AMENDMENT OF ARTICLE IV. ELECTION OF NON-PER- MANENT MEMBERS OF THE COUNCIL— Won recommenda- tion by the First Committee, the Assembly voted that, sub- ject to the usual ratification, the following paragraph shall be inserted between the second and third paragraphs of Article IV of the Covenant: "The Assembly shall fix by a two-thirds majority the rules dealing with the election of the non-permanent mem- bers of the Council, and particularly such regulations as re- late to their term of office and the conditions of re-eligibility." The Assembly approved recommendations of the Com- mittee that non-permanent members of the Council in future should be elected according to a system of rotation for a fixed period, that the advice of the Council adverse to an increase this year in the number of non-permanent members should be heeded, and that, next year, when a new system Is con- structed, the two terms of one year, for which the present members of the Council have already been elected, shall be taken into consideration, not only as regards the period of office for which any such members should serve if re-elected, but also as regards the conditions of re-eligibility. The Assembly thereon proceeded to a vote, which re- sulted in the re-election of Brazil, Spain, Belgium and China for the year 1922. AMENDMENTS— The Assembly voted .that the amendments which have been deferred and others that may be proposed may be submitted to further consideration by the Committee on Amendments, whose labors for the First Committee were highly praised. After a valedictory address by President van Karnebeek, the Second Assembly adjourned sine die. Reparations October 6. On this day at Wiesbaden, Dr. Walter Rathe- nau. Minister of Reconstruction in Dr. Wirth's German Cabi- net, and M. Louis Loucheur, Minister of Liberated Regions in Premier Briand's Government, signed an economic pact be- tween Germany and France, whereby the former country 202 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. would deliver to France between the present time and May 1, 1926, building material up to the value of 7,000,000,000 gold marks, for the reconstruction of the devastated area. The transaction, it was provided, would be handled by two companies, one to be organized by Germany and the other by France, each to be under Government control, but to allow participation by some private capital. The German company is to look after the assembling of material ordered by the French company at the shipping points. Transportation and delivery by the German com- pany at suitable terminals and on suitable dates, also was provided for, the payment to be made to the manufacturera out of German Government bonds to be issued specially for this purpose. If these respective organizations should be unable to reach an agreement respecting deliveries, prices, transporta- tion and acceptance, decision as to disputed points will be left to a commission of three. This commission will be made up of one Frenchman, one German and a third person choseu by common consent, or appointed by the President of the Swiss Confederation. It will fix the price list every three months, and the list will correspond to normal prices in the Interior of France, less customs duties and transportation charges. The semi-ofHcial summary does not deal with the ques- tion of exchange. Four supplementary agreements, dealing with deliveries of cattle, machinery, coal and rolling stock, drafted by experts to cover details and technical points, were signed this morning by M. Loucheur and Dr. Rathenau. The credits to be made on the books of the Reparations Commission are subject, says the summary, to three limita- tions, as follows: "1. Only 35 per cent, of the value of the merchandise (if the deliveries reach 1,000,000,000 gold marks), or 45 per cent, if the total amount of presentations do not reach 1,000,- 000,000 marks, will be credited. "2. Germany will never be credited with more than 1,000,000,000 gold marks to May 1, 1926. "9. Germany will never be credited with a sum superior to France's share in the yearly reparations." This agreement must also have the approval of the Repa- rations Commission, of the Reichstag and of the French Chamber. The Commission approved it on October 20, but noting that it involved departures from the Treaty of Ver- sailles under which the Commission acts, it merely recom- mended the agreement to the favorable consideration of the Governments. 203 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Council Thursday, Oct. 6. 38. ' MANUFACTURE OF AEROPLANES AT DANZIG — Inasmuch as certain persons wished to engage in the manufacture of aeroplanes at Danzig, the High Com- missioner asked the League, September 21, to define what types of aeroplanes were excluded by the prohibition of the manufacture, sale, storage and traffic of war material in the Free City. The question being referred to the Permanent Armaments Commission, and by it to the Air Sub-Commission, the latter body reported to the Council, defining what heavier- than-air craft and dirigibles should be classed as military, with a recommendation that these definitions be revised every two years. The Council sanctioned the transmission of this report to the High Commissioner. October 8, the Polish-Danzig negotiators made a tempo- rary agreement concerning the use of Danzig harbor by Polish warships. Poland is to tell Danzig how many ships it wants to keep in the port, and the Harbor Board is to provide dock- ing facilities. 39. 8AAR VALLEY — The Council was informed that nego- tiations had been begun between the German Government and the Saar Valley Governing Commission concerning "Enemy Debts" in the Valley, and that the proposal made by Germany would involve heavy expenditures. The Treaty of Versailles is silent on this subject. 40. ALBANIA — Acting upon the request of the Assembly that a Commission of Inquiry should be appointed to proceed at once to Albania, the Council voted that such a Commission should be in Albania by November 1, 1921, but should take no action until after the decision of the Powers (Council of Ambassadors) is known. The Commission may appoint impartial observers, the Secretary-General shall provide the necessary staff, and the expenses shall be charged to the Budget item "Unforeseen Expenses" up to a maximum of 50,000 gold francs. The members of the Commission are M. Thesleffi (Finland), Col. Schaeffer (Luxemburg), and Maj. Meinich (Norway). October 10. 41. MANDATES — This meeting was devoted to a report from the Mandates Commission, of which the Marquis Theodoli (Italy) is chairman. The Commission pre- sented its rules of procedure which were provisionally ap- proved. The Commission questioned: 1. The nationality of inhabitants of mandated areas, suggested particularly by the study of reports on Southwest Africa. 204 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Council voted that Marquis Theodoli and two of his colleagues should be a sub-committee to study this question and report upon it at the next meeting of the Council. 2. Can a territory under a "B" mandate be incorpo- rated in the neighboring possessions of the Mandatary for Customs purposes, without infringing the principle of eco- nomic equality enjoined in Article XXII, paragraph 5 ? 3. When Mandataries are prohibited from exacting com- pulsory labor, is that a prohibition of an obligation to work, "■yvhlch is the foundation of all civilized society"? 4. There are differences between the texts of British draft mandates of the "B" class, and the French eind Belgian drafts. The Commission presumes that difference in phrase does not imply a difference in substance. (See texts of all mandates in First Tear Book, pp. 59-68.) The Commission is aware that Its duties are limited to the examination of questions relating to the observance of mandates. Having in view the coming submission of the first annual reports from the Mandataries, the Commission sub- mitted questionnaires covering both the "C" mandates, whose terms were approved by the Council a, year ago, amd the "B" mandates, whose terms are still unconfirmed. The Council voted to send the questionnaires and ques- tions 2, 3 and 4 to the Governments. The text of the questionnaire for the "C" mandates fol- lows. The text for the "B" class is identical except where differences are noted. 1. SLAVERY. A. 1. What measures are being taken with a view to insuring the suppression of the slave trade? 2. What results have been obtained? B. 1. Is slavery recognized legally? 2. Does domestic or other slavery still exist? Give sta- tistics. 3. What are the principal causes of slavery? (gambling, drink, etc.) 4. Is the pledging of a, person recognized legally? 5. Under what conditions can a slave get his freedom? 6. What measures have been taken, or are being taken, to provide for the emancipation of slaves and to put an end to all slavery, domestic or otherwise? 7. Is there any time limit fixed for the emancipation of slaves? In the affirmative — how long is the period? II. LABOR. A. 1. Have measures been taken to ensure, in accordance with Part XIII of the Treaty of Versailles, the taking into 205 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. consideration of conventions or recommendations of Inter- national Labor Conferences? 2. Are these conventions or recommendations being car- ried into effect? 3. By what other provisions is free labor protected? B. 1. What are the measures intended to ensure the prohibition of forced labor for purposes other than essen- tial public works and services and what are the effective re- sults of these measures? 2. For what public works and services is forced native labor required ? How is this regulated ? 3. Are there any other forms of forced labor, such as labor in lieu of taxation, maintenance of highways, etc. f If in the afHrmative, how are these regulated? C. 1. How is the recruiting of labor required by private enterprise organized and regulated? Does the Administra- tion participate in this recruiting? 2. Does the Administration allow recruiting in the Man- dated areas of labor for another territory? If so, under what conditions? 3. Is there any system of indentured (Chinese or other) labor in the territory? If so, what are the conditions of in- denture and what steps are being taken to provide for the moral and material well-being of the natives of the territory, vis-a-vis the indentured laborers? (This question is not in the "B" class questionnaire.) 4. What compulsory and disciplinary measures are au- thorized with respect to native labor? 5. What powers has the Administration for controlling labor contracts in order to insure their loyal fulfillment both on the part of employer and em.ployed; and what powers does it possess to prevent any abuses in this respect? III. ARMS TRAFFIC. 1. What measures are being adopted to control the traf- fic in arms and munitions? 2. What are the statistics relating to imports of arms and munitions of different categories? IV. TRADE AND MANUFACTURE OF ALCOHOL AND DRUGS. 1. What steps are being taken to assure the prohibition of abuses of the liquor traffic? 2. How is the campaign against alcoholism organized? 3. What are the effects of these measures? (Statistics relative to the import and to the local manufacture of alco- holic liquors, etc.) 4. What are the countries of origin of alcoholic liquor, other than wine and beer, imported into the territory? 206 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 5. What measures have been taken to assure the pro- hibition or regulation of the importation, production and con- sumption of other dangerous drugs? V. LIBERTY OF CONSCIENCE. 1. What measures are being taken to guarantee liberty of conscience and religion? 2. What restrictions have been laid down for the main- tenance of public order and morality? 3. Is there free exercise of religious worship and In- struction ? 4. If not, what restrictions are there to limit such ex- ercises? 5. What are the results of such restrictions? VI. MILITARY CLAUSES. 1. Are there any fortresses or military or naval bases? 2. What are the forms of native military organization and instruction? 3. Are there any police forces independent of the mili- tary charged with the defence of the territory? What is the respective importance of these two forces and the amount spent on each? 4. In what respect is the military organization of the Mandated territory different from that in force In the neigh- boring possession of the Mandatory Power? VII. ECONOMIC EQUALITY. 1. What derogations are there to the principle of eco- nomic equality as regards (In the "B" questionnaire this question reads thus: What provisions are made to secure eco- nomic equality as regards:) : (a) concessions; (b) land tenure; (c) mining rights (In particular prospecting); (d) fiscal regime (direct and Indirect taxation); (e) customs regulations (imports, exports, transit) ? 2. What immigration laws are there? (Instead of this question the "B" questionnaire asks: 2. What are the excep- tions, If any, in each category?) VIIL EDUCATION. 1. What steps are being taken for the elementary educa- tion of the natives of the territory? Is this education free to all natives, and, if not, in what cases Is It free? 2. What steps are being taken to provide for higher edu- cation of the natives, such as medical, veterinary and tech- nical? SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 3. In what languages is instruction given in tlie differ- ent categories of scliools? 4. Are Mission scliools compelled to submit to certain conditions? If so, what? IX. PUBLIC HEALTH. 1. What steps are being taken in the territory to pro- vide for public health, sanitation, and to combat endemic and epidemic diseases? 2. What provisions are made for medical assistance? 3. What is the actual situation as regards prostitution, and what steps are being taken in this matter? X. SYSTEM OF LAND TENURE. 1. What systems of land tenure and forest law exist? How are they legally recognized? What lands are considered as belonging to the State, and what are regarded as communally owned? 2. What measures are being adopted for the registration of landed property? 3. What are the regulations for the alienation of land in which natives or native communities exercise rights, by virtue of heredity or use? 4. What other measures are being taken to protect the rights and interests of natives and native communities in re- spect to land (usury, forced sale, etc.)? XI. MORAL, SOCIAL AND MATERIAL WELL-BEING. What are, generally speaking, the measures adopted to insure the moral, social and material welfare of the natives? (Measures to maintain the interests, rights and customs of the natives, their participation in public service, native tribu-, nals, etc.) XII. PUBLIC FINANCES. The general schedule of receipts from, and expenditure on, the territory, budget system, indication of the nature and assessment of taxes. XIII. DEMOGRAPHIC STATISTICS. Births, marriages (polygamy), deaths, emigration and immigration. The Permanent Mandates Commission would be grateful to the Mandatory Powers if they would be good enough to add to the annual reports the text of all the legislative and administrative decisions taken with regard to each Mandated territory in the course of the past year. 42. October 12. ALBANIA — Telegrams from the Albanian Government dated October 9 and 10 were presented, com- 208 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. plaining of new Serbian attacks on Albanian territory. The members of the Council agreed to notify their Governments. Great Britain and Italy had already sent warnings to Bel- grade. 43. REDUCTION OF ARMAMENTS— The Council ap- proved and adopted resolutions 1, 2, 3, 4, 6 and 9, which were passed in the Assembly on October 1. The consideration of 5, 7, 8, 10 and 11 was postponed, in order to await the results of the Washington Conference. In accordance with resolution No. 1, the Secretary-General is to ask the Mixed Commission to continue its work, and so that it may be more widely repre- sentative, the Commission is to be invited to submit to the Council the names of six new members whom it wishes to co-opt. 44. TRAFFIC IN OPIUM— The Council approved the rec- ommendations adopted in the Assembly on September 30. It also voted that the Governments of Germany and Yugo-Slavia be each invited to nominate a representative to serve on the Advisory Commis.sion on the Opium TrafBc. 45. COMPENSATION FOR DR. NANSEN'S ASSISTANT— The Council voted to offer Captain Finne 7,500 gold francs in recognition of his voluntary aid to Dr. Nansen during the last fifteen months. 46. ROTATION IN OFFICE— The Council asked the Eco- nomic and Financial Commission to observe the principle of rota- tion in choosing its Chairmen (in each section), and con- firmed M. Ador as president of the Commission for another year. 47. COMMISSION OF FINANCIAL CONTROL— In accord- ance with an Assembly vote of October 3, the Council chose the following persons to be a Commission of Financial Control: MM. Noblemaire (Prance), Waddington (Chile), Nederbragh (Holland), Dusek (Czecho-Slovakia), and Sir James Allen (New Zealand). The Council adjourned, October 12, after deciding the Upper Silesian controversy as already noted. Neutralization of Aaland Islands A Conference upon the neutralization of the Aaland Islands, convoked by the League of Nations, sat at Geneva, October 10-20, 1921. Ten States were represented, Denmark, Estonia, Finland, France, Germany, Great Britain, Italy, Latvia, Poland, S\veden. A Convention, drawn up by the Conference, provides for the demilitarization and neutralization of the islands on land and sea and in the air. The islands may not be fortified. 209 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. It the neutrality of one of the islands should be endangered by an act of violence or the outbreali of war, Finland is em- powered to lay minefields temporarily in the zone and to ward off agg-ression there until the high contracting Powers can intervene. Finland must report such a case immediately to the League Council. If it is necessary to safeguard the maintenance of this Convention or to take steps against its violation, the High Contracting Powers are to refer individually or jointly to the Council of the League, in order that the latter may decide on the measures to be taken, and undertake to help in carry- ing out the measures thus decided upon. For this purpose the Council will invite Powers parties to the present Conven- tion to sit in the Council, whether these Powers are or are not members of the League. The vote of the representative of the Power accused of having violated the provisions of this Convention will not count in the voting on the decision taken by the Council. If unanimity is nevertheless not achieved, the High Contracting Parties are severally authorized to take any steps that the Council may decide upon by a majority of two-thirds, the vote of the accused Power once more not counting. The Convention contains an agreement that its provisions are to remain in force whatever changes may occur in the interrelations of the Baltic States. Sweden ratified this Convention, November 18. On the previous day Chicherin, the Soviet Minister of Foreign Af- fairs, had notified Sweden that Russia would not recognize this Geneva Convention because it had been prepared without consulting Russia, and Sweden's confirmation of the agree- ment would be regarded by Russia as a hostile act. Panama October 13, the Senate of Colombia ratified the treaty with the United States, which had been approved by the United States Senate on April 20. Thus ended the wrangle which began when the republic of Panama was established and recognized by the United States. Now Colombia for the first time recognizes the independence of Panama, and the United States is to pay to Colombia $25,000,000. The text of the treaty in its final form is in Current History for June, 192], pp. 542-3. France Treats With Kemal Pasha and Discards the Treaty of Sevres It has already been noted that the Supreme Council at London, February 2 1 -March 12, offered to the belligerent 210 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Turks and Greeks new terms of peace which traversed the terms of the Treaty of Sevres. These proposals (see Current History for May, 1921, pp. 347-349) were rejected by the Greeks and not entirely accepted by the Turks. It has already been noted that at the same time M. Briand and tlie representative of Kemal Pasha signed at London (March 9) a secret agreement, preliminary to a more general treaty. Italy signed a. similar secret agreement with Angora on March 12. These agreements were intended to deprive Greece of the fruits of any victory that it might win over the forces of Kemal Pasha, to restore Turkey to a place among the Powers, to insure to Italy the economic exploitation of the Adalian territory and a great hinterland in Anatolia, and to draw a new boundary between Asiatic Turkey and French Syria, whereby Cilicia was to be returned to the Turks and France would get control of a section of tho railway line to Mosul and Bagdad. These changes in bound- ary were disquieting to thousands of Armenians who had been saved from the massacres and had been encouraged to settle in Cilicia (Little Armenia) because that land was to be under Christian (French) control. The terms of these secret agreements are in Current History for May, 1921, pp. 203-205. See also Current History for April, pp. 57-75. The secret pacts, made during the Great War, for partitioning Asia Minor are all published with maps in Current History for December, pp. 500-504, and for Jan- uary, 1922, pp. 653-659. The final treaty between France and the Kemalists, here foreshadowed, was signed at Angora, October 20, 1921, wa.s ratified almost immediately by the Angora Parliament and by Premier Briand- on October 30, just before he started for the Washington Conference. The text may be read in Cur- rent History for January, 1922, pp. 661-663. It may be sum- marized thus: Article I says: "The high contracting parties declare that from the signing of this agreement the state of war shall cease between them. The armies, civil authorities and populations shall be immediately notified." Article II provides for the exchange of prisoners. Article III provides that within two months Turkisli troops shall withdraw to the north and the French troops to the south of the line fixed by Article VIII. Article IV provides for arranging the details of evacu- ation. Article V declares that amnesty shall be granted by the authorities of both Governments to political offenders. Article VI provides that Turkey shall sign an agreement for the protection of minorities along the same lines as those 211 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. laid down in the European treaties. Article VII provides for a, special regime for the port of Alexandretta. Article VIII fixes the line between Turkey and Syria. It runs from a point on the Bay of Alexandretta, near Bayas, to the railroad station of Meidan, thence southeast, leaving the region of Marsova in Syria and Killis in Turkey. The line rejoins the railroad at Tchoban Bey, and follows the rail- road to Nisibin, and thence northeast to Jezireh on the Tigris. The railroad right of way remains legally Turkish. Article IX says that the tomb of Suleiman Shah, the grandfather of the Sultan Othman, the founder of the Otto- man dynasty, located at Djaber-Kalessi, shall remain Turkish. Article X says: "The Government and Great Assembly of Turkey accepts the transfer of the concession of the section of the Bagdad Railroad between Bozanti and Nisibin, as well as the branch lines in the province of Adana, to the French gfoup desig- nated by the French Government, with all the rights, privi- leges and advantages attached to such concessions, in particu- lar as concerns the exploitation of trafHc." The article then goes on to say that each party shall have the right to use the railroad for the transportation of troops and adds: "On this section of the railroad no differential tariff may be established in principle. However, the two Gov- ernments reserve the right to study such derogation of thi9 rule as may become necessary." Article XI establishes a mixed commission to draft cus- toms regulations between Turkey and Syria. Article XII provides a water supply for the City of Aleppo. Article XIII absolves nomads from having to fulfill cus- toms formalities in wandering across the frontier line. With the text of the treaty came to France a covering letter from Kemal Pasha, which was highly significant. The most weighty paragraphs were these: "The Government and Grand Assembly, being desirous of furthering the development of material interests between the two countries, empower me to assure you that they are disposed to accord concessions of mines of iron, chrome and silver in the valley of Harchite for ninety-nine years to a French group which must proceed within five years to the exploitation of this concession by a company formed accord ing to the Turkish laws and with the participation of Turkish capital up to 50 per cent. In addition, the Turkish Govern- ment is ready to examine with the greatest good will other requests which may be made by French groups relative to concessions in mines, railroads, ports and rivers on condition 212 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. that such requests conform to the interests of both France and Turkey." The letter also expresses a desire to have French spe- cialists in the Turkish technical schools, and concludes with the hope "that from the date of this agreement the French Government will authorize French capitalists to enter into economic and financial relations with the Government of the Grand National Assembly of Turkey." The Angora Assembly promptly, after this, authorized its Finance Minister to borrow in France 10,000,000 Turkish pounds, in normal times $43,900,000. November 11 the British Embassy in Paris, and at vari- ous times, especially in a speech on November 24, Lord Cur- zon, the British Foreign Secretary, censured these agree- ments severely. It was pointed out that France held the Syrian territory as a mandatary under the League of Nations, and had no right to dispose of such territory. France had recognized the Angora Government as the sovereign power In Turkey, while Great Britain regarded the Constantinople Government as sovereign. Lord Curzon declared that there will never be peace if any one Power tries to steal a. march on others. British opinion saw in the treaty a distinct threat to the San Remo Oil Agreement and to the supplementary Franco- British Agreement of December 23, 1920. The Kemalists have never recognized the British claims to Turkish oil fleld•^. M. Briand said that the treaty was necessary because France could not carry on a war in Cilicia against the Turks and that the evacuation of the Cilician region would set free 70,000 French soldiers. Undoubtedly the treaty was, in part, a French answer to the British enthronement of Feisal at Bagdad as King of Irak, and to the virtual assumption of British control at Constantinople, where the English Com- missioner was practically supreme. Charles of Habsburg's Second Raid on Hungary October 20 the late Emperor-King and his wife came from Switzerland to Buergenland by aeroplane. This was partly what the military chaos in Buergenland (West Hun- gary) had been maintained for, and an army of about 12,000 men was immiediately at Charles' disposal. During the next two days he gathered about him leading Magyar royalists, came to Oedenburg, formed a. provisional government, con- voked the Hungarian Parliament that had been dissolved bj the revolution of October, 1918, and started for Budapest. The Hungarian monarchists hoped that the monarchies in Rumania and Yugo-Slavia would sympathize with them. This hope was futile. Within a few hours after Charles' coup 213 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. d'etat at Oedenburg was announced mobilization was orderej in Czecho-Slovalcia and Yugo-Slavia, and Rumania said that it would stand by the Little Entente. Tlie three Governmentsj notified Regent Horthy of Hungary that the return of Charles would mean war. The Allied Ministers at Budapest re- minded Horthy that on February 2, 1920, the Council of Am- bassadors had declared that no Habsburg would be allowed to reign in Hungary again. October 24 the Council of Ambassadors sent to Biidapest an ultimatum demanding the arrest of Charles, his deposition from the throne of Hungary, and his surrender to the Allies. But on that day Charles and his soldiers were caught between a force, loyal to Horthy, coming from the capital and a force of Horthyite "irregulars" from Buergenland. Charles' troops had no artillery and the fighting was soon ended. Charles, his Queen Zita, and their chief counselors were captured and imprisoned. The Hungarian Government demanded Charles' abdication, which he refused to give. The Council of Arpbassadors, October 27, decided that Charles should be interned in a British warship on the Danube and taken to some place chosen by the Allied Powers to be his permanent residence. November 3 Charles and Zita were thus surrendered to British keeping, and they were con- veyed to Funchal in the island of Madeira and left in the care of Portugal. The Hungarian Government, under external compulsion from the Great Powers and the Little Entente, secured an act from the National Assembly (November 5-6) depriving the House of Habsburg of its hereditary rights in Hungary. The Council of Ambassadors objected to the wording of the statute, which would not prevent an election of a Habsburg monarch by popular vote. On November 8 the Hungarian Government issued a declaration barring the election of any Habsburg to be King, and this was later ratified by the Assembly. Thus a nation, most of whose leaders and upper classes were strongly monarchist in sentiment, lost its right to recog- nize the legitimate heir to its crown. But the Government left in power, that of the Regent Horthy, is despotically monarchistic, militarist and Junker. Danzig-Poland The long negotiations between Poland and the Free City of Danzig were ended at Warsaw on October 24-25, when a treaty determining political and economic relations was signed. Customs frontiers between the two parties were abolished and Danzig becomes a part of the economic sys- tem of Poland. 214 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. This treaty contains 244 articles in nine parts. It com- pletes the Convention of November 9, 1920, and provides for its execution. The first part deals with rules for naturaliza- tion as a citizen of the Free City, and for a system of frontier- permits to Danzig and Polish nationals; the ways in which foreign societies can become Danzig societies and the mutual right of the two contracting parties to set up commercial houses. The second part of the Agreement deals with legal ques- tions; parts III to VII concern postal and telegraphic, finan- cial, customs and trade relations between the Free City of Danzig and Poland, as well' as between the two contracting parties and foreign countries. The eighth part deals with the supplying by Poland to Danzig of foodstuffs, fuel and raw materials. The ninth and last part is concerned with que.-^- tions of education and language. Decisions by the High Commissioner, Gen. Haking, in cases of dispute and of doubtful interpretation were given out in November and December as follows: 1. Residence in Danzig precludes the possession of an- other domicile in a foreign State. The same person cannot be domiciled in two jurisdictions. Accepted by both Poland and Danzig. 2. Polish officials. Nationals (except the diplomatic rep- resentative) and ships in Danzig are in general subject to the laws and courts of the Free City. Polish property is exempt from Danzig taxes, except that Polish ships are subject to the harbor dues. Poland appeals to the Council against this decision. 3. Danzig may expel a Polish citizen, but as a, courtesy should allow seven days to the Polish representative in Dan- zig for examining the case before the decree is issued. Ar appeal to the Commissioner is always possible. Poland and Danzig both appealed against this. 4. Poland may refuse a request of Danzig concerning foreign affairs if the matter is detrimental to the interests of Poland, but Poland may not impose on Danzig a foreign pol- icy detrimental to the interests of the Free City. Poland must give reasons to Danzig within 30 days. Appeals lie to the High Commissioner. Danzig appealed against this. 5. Poland shall allow Danzig to treat directly with Germany concerning such local administrative and judicial relations as are settled by treaty between Poland itself and Germany. Danzig appealed against this. 6. The administration and control of the whole Vistu.a River within Danzig territory belongs to the Harbor Board, of which Col. de Reynier (Swiss) is President. Poland ap- peals to tte Council against this decision. 215 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Albania On Saturday, November 5, the Council of Ambassadors concluded its examination of the question of Albaniau boundaries, and informed the Allied Powers of its decisions. Simultaneously Great Britain asked the Secretary-General to call a meeting- of the Council of the League to consider the situation caused by the "continued advance of Tugo- Slav forces into Albania." November 9, through the Coun- cil of Ambassadors, the four great Powers announced that the Albanian frontiers of 1913 would hold, except for four very small alterations, three to the advantage of Yugo- slavia and one to the advantage of Albania. The Powerb also definitely recognized the Albanian Government at Tirana. Third Porto Rosa Conference This conference of the Austro-Hungarian Succession States, which was postponed from July to November, finally completed most of the work outlined by Its predecessors in April and June. Its sessions took place during November and two weeks in December. Austria, Czecho-Slovakia, Poland Hungary, Rumania, Serbia and Italy were represented. An unofficial observer from the United States was also present. The agenda for this Conference dealt with restrictions upon trade and transportation between the Succession States. After the close of the war each of these States had excluded imports as a protective measure, and had prohibited exports of articles regarded as necessary for domestic use, such as foodstuffs, raw materials and some manufactured products. The result was a regime of economic hostility or even warfare. There were no general treaties of commerce. Inter-State traf- fic was carried on under a mass of special agreements made from time to time by interested States. At the Conference the States agreed to the principle that import and export prohibitions shall be abolished; the former, on and after July 1, 1922; the latter, at a date to be deter- mined subsequently. No new prohibitions may be issued. After the dates set, prohibitions will be permitted only for reasons of public security; for reasons of a sanitary or veterinary nature; for articles under State monopoly or in- volving a traflac that must be kept under control; or for rea- sons of commercial policy towards a non-Succession State. The States agree not to offend the spirit of the agree- ment by administrative measures; not to levy prohibitory cus- toms duties or other taxes; and to conclude with each other by July 1, 1922, commercial treaties based on the principle of J-eedom of traffic. These agreements are to embody the "most-favored 216 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. nation" principle, but it was stipulated that that principle should not apply to special treaties between two Succession States. The meaning of this was illustrated when a special Vustro-Czecho-Slovak treaty was signed at Prag on December 6, which amounted to a financial and commercial alliance be- tween the two States with political pledges also. Czecho- slovakia agreed to make a loan to Austria. Each State recog- nized that it needed the other. In problems of transportation there were three principal obstacles to contend with. One was derived from the dis- cordant agreements about railway traffic among the several States. There had been twenty-one such conventions, and yet each new frontier was practically a barrier where train-service stopped, goods could not cross without vexatious delays and ruinous exactions, passports were inspected and subjected to additional fees, and all luggage arjd goods searched. Frequently fluctating currency values heightened the confu.sion. To put an end to this chaos the Conference adopted a United Traffic Convention, which would restore through- trafHc, though some clauses were accepted by Rumania only on condition that all European States adhere to the Con- vention. A second_ obstacle was the undetermined ownership, of railway rolling-stock, formerly the property of the Dual Monarchy on its State-owned railroads. Bach Succession State seized what cars and trucks it found within its reach and then refused to let them go out of the country. Rumania whose railway property had been wrecked by the Germans during the war, retaliated when the Ruman troops occupied Hungary in 1919 by looting that country. It took between 30,000 and 40,000 freight cars from Hungary into Rumania nd claimed to hold them as compensation or as the booty of war. Ever since December, 1919, an Allied Commission had been trying to straighten out this tangle but without success. Because ownership was uncertain, no State was willing to shoulder the expense of repairing rolling-stock. The agreements concluded at Porto Roso set free about 115,000 cars for inter-State traffic, and provided for the needed repairs. Rumania was allowed to mark the cars then in her pos- session "without prejudice to their ultimate allocation," and then they were to be used among all the Succession States. A third obstacle was the difficulty of obtaining and dis- tributing railway supplies. It was agreed that a. Commission should be appointed to find out how fuel, lubricants and other necessities should be allotted and distributed among the Succession States. 217 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Conference also adopted agreements for the common control and development of telegraphic and telephonic com- munication between the States, for lowering postal rates, and for resuming the postal money order service. Several con- ventions regulated the application of the tariffs of the various Sitates to inter-State traffic so as to facilitate business and insure the just settlement of accounts. It was agreed that a special committee of Italian, Aus- trian and Ruman railway experts should prepare a system of through-tariffs and freight classifications for the Succession States. Their work is to be reported by Italy to the Central OfHce at Bern, which will then be requested to invite all States adhering to the International Railway Convention to meet and confer upon these matters. Finally a conference of the Succession States should meet at Gratz, in Austria, on January 6, 1922, to consider the abo- lition or softening of restrictions upon passports, in accord- ance with the recommendations of the Passport Conference held under the auspices of the League of Nations at Paris in October, 1920. This Conference was felt to be a remarkably successful effort to reconstruct the economic order within the areas for- merly ruled by the Habsburgs, and now dominated by the Little Entente. It was the first move to restore, the economic unity of the old Dual Monarchy under its new names and masters, a step undoubtedly necessary for the prosperity of the Danubian States. The texts of all the agreements of the Porto Roso Conference are to be published in English in pam- phlet form in July, 1922, by the American Association for International Conciliation. Soviet Russia and the Washington Conference Neither Soviet Russia nor any of the States within the territory of the old Russia were invited to the Washingrton Conference, although the Chita and Vladivostok Govern- ments sent delegations not officially recognized. The Bolshevik rulers protested against this omission in a note said to be ad- dressed to the Allied and Associated Powers and printed in the official Soviet organ, Izvestia, on November 4, 1921. A trans- lation of this note, printed in the New York Times for Janu- ary 15, 1922, reads as follows: "The protest voiced by the Russian Government on July 19, 1921, against the calling of an international conference on the problems of the Jaciflc without Russia's participation has been disregarded by the Powers. "In view of the approaching conference, the Russian Government repeats its protest against this attempt to decide, 218 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. in the absence of a, Russian representative, questions which directly concern Russia. The Government of Russia also wishes to reiterate the statement that it reserves for itself complete freedom of action on all questions which will be discussed at this conference, and that it will make use of this freedom on all occasions and by all means which it deen\s expedient for this purpose. "The toiling masses of Russia received with the greatest indignation the fresh manifestation of a policy of violence and injustice toward their country. The Government of Workers and Peasants of Russia affirms that the 130,000,000 people composing Russia will not allow others to force their will upon them or to treat them as the dumb subjects of their decisions. The toiling masses of Russia, who are doing their utmost in the work of economic reconstruction, know that, in spite of the famine caused by the Allied blockade and the drought, the moment of Russia's economic restora- tion and the strengthening of its political power is rapidly approaching. "Those who are now violating the most elementary prin- ciples of decency and respect for Russia's sovereign rights will then be faced with the consequences of their actions to- ward Russia. It is only with the greatest indignation that the people of Russia can regard the statement that the great Powers are taking it upon themselves to safeguard Russia's Interests. During the past few years Russia has had suf- ficient proof of the 'solicitude' of the great Powers. Its in- terests are now to be guarded by the same Governments that have been bleeding it, sending the Czar's Generals against it and trying to strangle it by a, ruthless blockade. The toil- ing masses of Russia know full well that when these Powers undertake to solve for Russia questions involving the inter- ests of Russia these questions will be decided on the basis of considerations entirely foreign to the interests of Russia and to the detriment of the people of Russia. The latter know in advance that any agreement by the Powers under- taking to decide anything for Russia would undoubtedly turn out to be of the same order as the treaties of Versailles and Sevres. "But Russia is not a conquered country. It has conic forth victorious from all the trials to which It has been sub- jected by the very same Powers who now assume the task of caring for Russia's interests. The toiling masses of Rus- sia have already shown sufficiently that they can withstand any attacks directed from abroad ai.d they are likewise able 219 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. to repel in the same way every new attempt of a similar na- ture. No matter what kind of public agreements may be concluded at Washington there will surely remain a sus- picion, almost a certainty, that secret agreements aimed against Russia have also been made, and as a result an addi- tional element of mistrust, suspicion and complications of all kinds will be introduced into international relations. "Under such circumstances the decisions of the Wash- ington Conference will Inevitably become nothing but the source of new conflicts, new entanglements and new catas- trophes. Not peace, but discord and strife and hatred, sure to become the cause of fresh disasters for the whole world, will be brought into international relations. "(Signed) CHICHERIN, "People's Commissar for Foreign Affairs." Beginning of the Washington Conference The Washington Conference began on Saturday, Novem- ber 12, at half -past ten in the morning in Continental Memo- rial Hall, the building of the Daughters of the American Revolution. The delegates sat about tables in the body of the hall. Members of the two houses of Congress and of the diplomatic corps were in the balcony. The sides of the cen- tral hall were filled with experts, secretaries and journalists. The personnel of delegations included: Principal Delegates UNITED STATES. Charles Evans Hughes, Secretary of State. Elihu Root, former Senator and ex-Secretary of State. Henry Cabot Lodge, Senator from Massachusetts. Oscar W'. Underwood, Senator from Alabama. Staff. An Advisory Committee, 17 men and 4 women; Secretariat, 16 persons; Ceremonial, Protocol, etc., 5 persons; Technical: Limitation of Armament. For the State De- partment, 2 persons; for the War Department, 9 persons; for the Navy Department, 9 persons; for Chemical Warfare, one person with the Army and Navy officers; for Pacific and Far Eastern Questions, 16 persons; for Legal Questions, 4 persons; for Economic Quefstions and Merchant Marine, 2 persons; for Communications, 4 persons; Cartography, 2 persons; for the Press, 2 persons; Archives, 1 person; Disbursing Officer, 1 person; Editor, 2 persons; Total, 101 persons. BBLG-IUM. Delegate, Barun de Cartier, Belgian Ambassador at Wash- ington, with 4 Technical Advisers and 3 Secretaries.- Total, 8 persons. 220 SECOND YET^R BOOK OF THE LEAGUE OF NATIONS. BRITISH BMiPIRE. The Right. Hon. David Lloyd George, O. M., Prime Min- ister and First Lord of the Treasury. The Right Hon. Arthur J. Balfour, O. M., Lord President of the Council. The Right Hon. Lord Lee of Fareham, G. B. E., K. C. B., First Lord of the Admiralty. Sir Robert Borden, G. C. M. G., K. C, M. P., former Prime Minister of Canada, for Canada. Senator the Hon. George F. Pearce, J. P., Australian Min- ister for Defense, for Australia. Mr. v. S. Srinivasa Sastri, member of the Vice Regal Council of the Government of India, for India. Sir J. W. Salmond, Judge of the Supreme Court of New Zealand, for New Zealand. The Right Hon. Sir Auckland Geddes, K. C. B., the Brit- ish Ambassador at Washington, in the absence of the Prime Minister or of any other delegate. Staff: Foreign Affairs, 8 persons; Naval Section, 9 per- sons; Military Section, 7 persons; Air Section, 4 persons; Eco- nomic Section, 2 persons; Canadian Section, 2 persons; Aus- tralian Section, 4 persons; New Zealand Section, 2 persons; Indian Section, 3 persons; Publicity, 2 persons; Secretariat, 9 persons; Total, 59 persons. CHINA. Dr. S. Alfred Sze, Minister to the United States. Mr. V. K. "Wellington Koo, Minister to Great Britain. Dr. Chung-Hui Wang, Chief Justice of Supreme Court of China. Mr. Chao-Chu Wu. Staff: Advisers, 7 persons; Secretariat, 41 persons; Coun- selors, 12 persons; Technical Delegates, 17 persons; Direc- tors of Departments, 4 persons; Attaches, 33 persons; Trans- lators, 6 persons; Clerks, 12 persons; Total, 136 persons. FRANCE. M. Aristide Briand, Prime Minister and Minister of For- eign Affairs. M. Rene Viviani, former Prime Minister. M. Albert Sarraut, Minister of Colonies. M. Jules Jusserand, French Ambassador at Washington. Staff: Secretariat, 8 persons; Experts-Military, 8 persons; Naval, 5 persons; Legal, 1 person; Political, 2 persons; Finan- cial and Economic, 4 persons; Colonies, 4 persons; Cables and Wireless, 1 person; Publicity, 3 persons; Counselors, 3 per- sons; Total, 43 persons. 221 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ITALY. His Excellency Carlo Schanzer, Senator, ex-Minister of Treasury, Chairman. His Excellency Vittorio Rolandi-Riccl, Italian Ambassador to the United States. Senator Luigi Albertini. Mr. Filippo Meda, ex-Minister of Treasury, Representa- tive. Staff: Secretariat, 10 persons; Diplomatic Advisers, 4 per- sons; Military Advisers, 4 persons; Naval, 3 persons; Aviation. Advisers, 2 persons; Economic, 6 persons; .Publicity, 2 per- sons; Total, 35 persons. JAPAN. Admiral Baron Tomosaburo Kafo, Minister of Marine. Baron Kijuro Shidehara, Japanese Ambassador to United States. Prince lyesato Tokugawa, President of House of Peers. Mr. Masanao Hanihara, Vice Minister for Foreign Affairs. Staff: Ninety persons. Total, 94 persons. NETHERLANDS. Jonkheer H. A. van Karnebeek, Minister of Foreign Affairs. Jonkheer P. Beelaerts van Blokland, Envoy Extraordi- nary and Minister Plenipotentiary. Dr. B. Moresco. Vice-President of the Council of the Netherlands East Indies. Alternate Delegates. Dr. J. C. A. Everwijn, Netherlands Minister to the United States. Jonkheer W. H. de Beaufort, Counselor of Legation, Washington. Staff: Eight persons. Total, 13 persons. PORTUGAL. Viscount d'Alte, Portuguese Minister to the United States, Captain S. de Vasconcellos. Staff: Secretary, 1 person. Total, 3 persons. The interpreters for the Conference were Prof. G. H. Camerlynck and Prof. Rene Talamon, equally conversant with French and English, the official languages of the Conference. The Secretariat of the Conference itself included seven persons, among them Mr. John W. Garrett, who became the Secretary-General. Secretary Hughes was provisional Chairman. After prayer by Rev. Dr. W. S. Abernethy, Secretary Hughes introduced the first speaker with the words, "The President of the United States." PRESIDENT HARDING said: Mr. Secretary and Mem- bers of the Conference, Ladies and Gentlemen: It is a great 222 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. and happy privilege to bid the delegates to this conference a, cordial welcome to the capital of the United States of Amer- ica. It is not only a satisfaction to greet you because we were lately participants in a common cause, in which shared sac- rifices and sorrows and triumphs brought our nations more closely together, but it Is gratifying to address you as the spokesman for nations whose convictions and attending ac- tions have so much to do with the weal or woe of all mankind. It is not possible to overappraise the importance of such a conference. It is no unseemly boast, no disparagement of other nations which, though not represented, are held in highest respect, to declare that the conclusions of this body will have a signal influence on all human progress — on the fortunes of the world. Here is a meeting, I can well believe, which is an earnest of the awakened conscience of twentieth century civilization. It is not a convention of remorse, nor a session of sorrow. It is not the conference of victors to define terms of settlement. Nor is it a council of nations seeking to remake humankind. It is rather a coming together from all parts of the earth, to apply the better attributes of mankind to minimize the faults In our international relationships. Speaking as official sponsor for the invitation, I think I may say the call is not of the United States of America alone; It is rather the spoken word of a. war-wearied world, strug- gling for restoration, hungering and thirsting for better rela- tionship; of humanity crying for relief and craving assurances of lasting peace. It is easy to understand this world-wide aspiration. The glory of triumph, the rejoicing in achievement, the love of liberty, the devotion to country, the pangs of sorrow, the burden.s of debt, the desolation of ruin — all these are ap- praised alike in all lands. Here in the United States we are but freshly turned fronj the burial of an unknown American soldier, wheti a nation sorrowed while paying him tribute. Whether it was spoken or not, a hundred millions of our people were summarizing the inexcusable cause, the incalcu- lable cost, the unspeakable sacrifices, and the unutterable sorrows, and there was the ever-impelling question: How can humanity justify or God forgive? Human hate demands no such toll; ambition and greed must be denied it. If mis- understanding must take the blame, then let us banish it, and let understanding rule and make good will regnant every- where. All of us demand liberty and justice. There cannot be one without the other, and they must be held the unques- tioned possession of all peoples. Inherent rights are of God, and the tragedies of the world originate in their attempted denial. The world today is infringing their enjoyment by 223 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. arming to defend or deny, when simple sanity calls for their recognition through common understanding. Out of the cataclysm of the World War came new fel- lowships, new convictions, new aspirations. It is ours to make the most of them. A world staggering with debt needs its burden lifted. Humanity which has been shocked by wanton destruction would minimize the agencies of that destruction. Contemplating the measureless cost of war and the continuing burden of armament, all thoughtful peoples wish for real limitation of armament and would like war outlawed. In soberest reflection the world's hundreds of millions who pay in peace and die in war wish their statesmen to turn the expenditures for destruction into means of construction, aimed at a higher state for those who live and follow after. It is not alone that the world can not readjust itself and cast aside the excess burdens without relief from the leaders of men. War has grown progressively cruel and more de- structive from the first recorded conflict to this pregnant day, and the reverse order would more become our boasted civi- lization. Gentlemen of the Conference, the United States welcomes you with unselfish hands. We harbor no fears; we have no sordid ends to serve; we suspect no enemy; we contemplate or apprehend no conquest. Content with what we have, we seek nothing which is another's. We only wish to do with you that finer, nobler thing which no nation can do alone. We wish to sit with you at the table of international un- derstanding and good-will. In good conscience we are eager to meet you frankly, and invite and offer co-operation. The world demands a sober contemplation of the existing order and the realization that there can be no cure without sac- rifice, not by one of us, but by all of us. I do not mean surrendered rights, or narrowed freedom, or denied aspirations, or ignored national necessities. Our Republic would no more ask for these than it would give. No pride need be humbled, no nationality submerged, but I would have a mergence of minds committing all of us to less prepa- ration for war and more enjoyment of fortunate peace. The higher hopes come of the spirit of our coming to- gether. It is but just to recognize varying needs and peculiar positions. Nothing can be accomplished in disregard of na- tional apprehensions. Rather, we should act together to re- move the causes of apprehensions. This is not to be done in intrigue. Greater assurance Is found in the exchanges of simple honesty and directness among men resolved to accom- plish as becomes leaders among nations, when civilization itself has come to its crucial test. It is not to be challenged that government fails when the excess of its cost robs the people of the way to happiness and 224 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the opportunity to achieve. If the finer sentiments were not urging, the cold, hard facts of excessive cost and the elo- quence of economics would urge to reduce our armaments. If the concept of a better order does not appeal, then let us ponder the burden and the blight of continued competition. It is not to be denied that the world has swung along throughout the ages without heeding this call from the kind- lier hearts of men. But the same world never before was so tragically brought to realization of the utter futility of passion's sway when reason and conscience and fellowship point a nobler way. I can speak officially only for our United States. Our hundred millions frankly want less of armament and none of war. Wholly free from guile, sure m our own minds that we harbor no unworthy designs, we accredit the world with the same good Intent. So I welcome you, not alone in good-will and high purpose, but with high faith. We are met for a service to mankind. In all simplicity, in all honesty and all honor, there may be written here the avowals of a world conscience refined by the consuming fires of war, and made more sensitive by the anxious aftermath. I hope for that understanding which will emphasize the guar- antees of peace, and for commitments to less burdens and a better order which will tranquilize the world. In such an ac- complishment there will be added glory to your flags and ours, and the rejoicing of mankind will make the transcend- ing music of all succeeding time. After President Harding's speech, upon, motion of Mr. Balfour, Mr. Hughes was requested to become permanent Chairman of the Conference. Immediately thereafter MR. HUGHES delivered his epoch-making speech for a naval holiday and radical limitation of naval armament, as follows: Gentlemen: It is with a deep sense of privilege and re- sponsibility that I accept the honor you have conferred. Permit me to express the most cordial appreciation of the assurances of friendly co-operation, which have been generously expressed by the representatives of all the invited Governments. The earnest desire and purpose, manifested in every step in the approach to this meeting, that we should meet the reasonable expectation of a watching- world by ef- fective action suited to the opportunity. Is the best augury for the success of the Conference. The President Invited the Governments of the British Empire, France, Italy and Japan to participate in a. Confer- ence on the subject of limitation of armament, in connection with which Pacific and Far Eastern questions also would be discussed. It would have been most agreeable to the Presi- dent to have invited all the Powers to take part in this Con- 8 225 SECOND YEAR BOOK OF THE LEA GUE OF NATIONS. ference, but it was thought to be a time when other con- siderations should yield to the practical requirements of the existing exigency, and in this view the invitation was extended to the group known as the principal Allied and Associated Powers, which, by reason of the conditions produced by the war, control in the main the armament of the world. The opportunity to limit armament lies within their grasp. It was recognized, however, that the interests of other Powers in the Far East made it appropriate that they should be invited to participate in the discussion of Pacific and Far Eastern problems, and, with the approval of the five Powers, an invitation to take part in the discussion of those questions has been extended to Belgium, China, The Netherlands and Portugal. The inclusion of the proposal for the discussion of Pa- cific and Far Eastern questions was not for the purpose of embarrassing or delaying an agreement for limitation of armament, but rather to support that undertaking by avail- ing ourselves of this meeting to endeavor to reach a, common understanding as to the principles and policies to be followed in the Far East and thus greatly to diminish and, if possible, wholly to remove, discernible sources of controversy. It is believed that by interchanges of views at this opportune time the Governments represented here may find a basis of ac- cord and thus give expression to their desire to assure endur- ing friendship. In the public discussions which have preceded the Con- ference, there have been apparently two competing views; one, that the consideration of armament should await the re- sult of the discussion of Far Eastern questions, and another that the latter discussion should be postponed until an agree- ment for limitation of armament has been reached. I am unable to find sufficient reason for adopting either of these extreme views. I think that it would be most unfortunate i^ we should disappoint the hopes which have attached to this meeting by a postponement of the consideration of the first subject. The world looks to this Conference to relieve humanity of the crushing burden created by competition in armament, and it is the view of the American Government that we should meet that expectation without any unnecessary delay. It is therefore proposed that the Conference should proceed at once to consider the question of the limitation of arma- ment. This, however, does not mean that we must postpone the examination of the Far Eastern questions. These questions of vast importance press for solution. It is hoped that im- mediate provision may be made to deal with them adequately, and it is suggested that it may be found to be entirely prac- 226 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ticable through the distribution of the work among designated committees to make progress to the ends sought to be achieved without either subject being treated as a hindrance to the proper consideration and disposition of the other. The proposal to limit armament by agreement of the Powers is not a new one, and we are admonished by the futility of earlier effort. It may be well to recall the noble aspirations which were voiced twenty-three years ago in the imperial rescript of His Majesty the Emperor of Russia] It was then pointed out with clarity and emphasis that tht intellectual and physical strength of the Nations, labor and capital are for the major part diverted from their natural application and unproductively consumed. Hundreds of mil- lions are devoted to acquiring terrible engines of destruction, which, though today regarded as the last word of science, are destined tomorrow to lose all value in consequence of some fresh discovery in the same field. National culture, economic progress and the production of wealth are either paralyzed or checked in their development. Moreover, in proportion as the armaments of each Power increase, so do they less and less fulfill the object which the Governments have set before themselves. The economic crises, due in great part to the system of arma- ments a I'outrance and the continual danger which lies in this massing of war material, are transforming the armed peace of our days in a crushing burden, which the peoples have more and more difficulty in bearing. It appears evi- dent, then, that if this state of things were prolonged It would inevitably lead to the calamity which it is desired to avert, and the horrors of which make every thinking man shudder in advance. To put an end to these incessant arma- ments and to seek the means of warding off the calamities which are threatening the whole world — such is the supreme duty which is today imposed on all States. It was with this sense of obligation that His Majesty the Emperor of Russia proposed the Conference which was "to occupy itself with this grave problem," and which met at The Hague in the year 1899. Important as were the deliberations and conclusions of that Conference, especially with respect to the pacific settle- ment of international disputes, its result in the specific mat- ter of limitation of armament went no further than the adop- tion of a final resolution setting forth the opinion that the restriction of military charges, which are at present a heavy burden on the world, is extremely desirable for the increase of the material and moral welfare of mankind, and the ut- terance of the wish that the Governments may examine the possibility of an agreement as to the limitation of armed forces by land and sea, and of -n-ar budgets. 227 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. It was seven years later that the Secretary of State ot the United States, Mr. Elihu Root, in answering a note of the Russian Ambassador suggesting in outline a. program of the second Peace Conference, said: "The Government of the United States, therefore, feels it to be its duty to reserve for itself the liberty to proposa to the Second Peace Conference, as one of the subjects for consideration, the reduction or limitation of armaments. In the hope that, if nothing further can be accomplished, some slight advance may be made toward the realization of the lofty conception which actuated the Emperor of Russia In calling the First Conference." It is significant that the Imperial German Government expressed Itself as "absolutely opposed to the question of dis- armament," and that the Emperor of Germany threatened to decline to send delegates if the subject of disarmament was to be discussed. In view, however, of the resolution which had been adopted at the first Hague Conference, the delegates of the United States were instructed that the subject of limita- tion of armament should be regarded as unfinished business, and that the Second Conference should ascertain and give full consideration to the result of such examination as the Governnaents may have given to the possibility of an agree- ment pursuant to the wish expressed by the First Conference. But by reason of the obstacles which the subject had encountered, the Second Peace Conference at The Hague, although it made notable progress in provision for the peace- ful settlement of controversies, was unable to deal with lim- itation of armament except by a, resolution in the following general term^s: "The Conference confirms the resolution adopted by the Conference of 1899 in regard to the limitation of military expenditure; and, inasmuch as military expenditure has con- siderably increased in almost every country since that time, the Conference declares that it is eminently desirable that the Governments should resume the serious examination of this question." This was the fruition of the efforts of eight years. Al- though the effect was clearly perceived, the race in prepara- tion of armaments, wholly unaffected by these futile sugges- tions, went on until it fittingly culminated in the greatest vrar of history, and we are now suffering from the unparal- leled loss of life, the destruction of hopes, the economic dis- locations, and the widespread impoverishment which measure the cost of the victory over the brutal pretensions of military force. But if we are warned by the inadequacy of earlier en- 228 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. deavors for limitation of armament, we cannot fall to recog- nize the extraordinary opportunity now presented. We not only have the lessons of the past to guide us, not only do we have the reaction from the disillusioning experi- ences of war, but we must meet the challenge of Imperative economic demands. What was convenient or highly desirable before is now a matter of vital necessity. If there is to be economic rehabilitation, if the longings for reasonable prog- ress are not to be denied, if we are to be spared the uprisings of peoples made desperate in the desire to shake off burdens no longer endurable, competition in armament must stop. The present opportunity not only derives its advantage from a general appreciation of this fact, but the power to deal with the exigency now rests with a small group of Nations represented here, who have every reason to desire peace and to promote amity. The astonishing ambition which lay athwart the promise of the Second Hague Conference no longer menaces the world, and the great opportunity of liberty-loving and peace- preserving democracies has come. Is it not plain that the time has passed for mere resolutions that the responsibl-i Powers should examine the question of limitation of arma- ment? We can no longer content ourselves with investiga- tions, with statistics, with reports, with the circumlocution of inquiry. The essential facts are sufficiently known. The time is come, and this Conference has been called not for general resolutions or mutual advice, but for action. We meet with full understanding that the aspirations of mankind are not to be defeated either by plausible sugges- tions of postponement or by impracticable counsels of per- fection. Power and responsibility are here, and the world awaits a practicable program which shall at on'ce be put into execution. I am confident that I shall have your approval In sug- gesting that in this matter, as well as in others before the Conference, it is desirable to follow the course of procedure which has the best promise of achievement rather than one which would facilitate division, and thus, constantly aiming to agree so far as possible, we shall, with each point of agree- ment, make it easier to proceed to others. The question in relation to armaments which may be re- garded as of primary importance at this time and with which we can deal most promptly and effectively is the limita- tion of naval armament. There are certain general consid- erations which may be deemed pertinent to this subject. The first is that the core of the difficulty is to be found in the competition in naval programs, and that, in order appropriately to limit naval armament, competition in its production must be abandoned. Competition will not be 229 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. remedied by resolves with respect to the method of its con- tinuance. One program inevitably leads to another, and if competition continues its regulation is impracticable. There is only one adequate way out, and that is to end it now. It is apparent that this cannot be accomplished without serious sacrifices. Enormous sums have been expended upon ships under construction, and building programs which are now under way cannot be given up without heavy loss. Yet if the present construction of capital ships goes forward, other ships will inevitably be built to rival them, and this will lead to still others. Thus the race will continue, so long as ability to continue lasts. The effort to escape sacrifices is futile. We must face them or yield our purpose. It is also clear that no one of the naval Powers should be expected to make the sacrifices alone. The only hope of limitation of naval armament is by agreement among the Nations concerned, and this agreement should be entirely fair arid reasonable in the extent of the sacrifices required of each of the Powers. In considering the basis of such agreement and the commensurate sacrifices to be required It is necessary to have regard to the existing naval strength of the great naval Powers, including the extent of construction already effected in the case of ships in process. This follows from the fact that one Nation is as free to compete as an- other, and each may find grounds for its action. What one may do another may demand the opportunity to rival, and we remain in the thrall of competitive effort. I may add that the American delegates are advised by their naval experts that the tonnage of capital ships may fairly be taken to measure the relative strength of navies, as the provision for auxiliary combatant craft should sustain a reasonable relation to the capital ship tonnage allowed. It would also seem to be a vital part of a plan for the limitation of naval armament that there should be a naval holiday. It Is proposed that for a period of not less than ten years there should be no further construction of capital ships. [As soon as Mr. Hughes uttered these words a cheer began at the press table, led by William Jennings Bryan, and the whole Assembly, except the diplomats, joined in.] I am happy to say that I am at liberty to go beyond these general propositions, and, on behalf of the American dele- gation acting under the instructions of the President of the United States, to submit to you a concrete proposition for an agreement for the limitation of naval armamient. It should be added that this proposal immediately con- cerns the British Empire, Japan and the United States. In view of the extraordinary conditions, due to the World War, affecting the existing strength of the navies of France and 230 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Italy, It is not thought to be necessary to discuss at this stage of the proceedings the tonnage allowance of these nations, but the United States proposes that this matter be reserved for the later consideration of the Conference. In making the present proposal the United States is most solicitous to deal with the question upon an entirely reason- able and practicable basis, to the end that the just interests of all shall be adequately guarded and the national security and defense shall be maintained. Four general principles have been applied: 1. That all capital shipbuilding programs, either actual or projected, should be abandoned. 2. That further reduction should be made through the scrapping of certain of the older ships. 3. That in general regard should be had to the existing naval strength of the powers concerned. 4. That the capital ship tonnage should be used as the measurement of strength for navies, and a proportionate al- lowance of auxiliary combatant craft prescribed. . The principal features of the proposed agreement are as follows: CAPITAL SHIPS. UNITED STATES. The United States is now completing its program of 1916 calling for ten new battleships and six battle cruisers. One battleship has been completed. The others are in various stages of construction; in some cases from 60 to 80 percent of the construction has been done. On these fifteen capital ships now being built over $330,000,000 have been spent. Still the United States is willing, in the interest of an im- mediate limitation of naval armaments, to scrap all these ships. The United States proposes, if this plan is accepted — 1. To scrap all capital ships now under construction. This includes six battle cruisers and seven battleships on the ways and in the course of building, and two battleships launched. The total number of new capital ships thus to be scrapped is fifteen. The total tonnage of the new capital ships when completed would be 618,000 tons. 2. To scrap all of the older battleships up to,' but not in- cluding, the Delaware and North Dakota. The number of these old battleships to be scrapped is fifteen. Their total tonnage is 227,740 tons. Thus the number of capital ships to be scrapped by the United States, if this plan is accepted, is thirty, with an ag- gregate tonnage (including that of ships in construction, if completed) of 845,740 tons. 231 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. GREAT BRITAIN. The plan contemplates that Great Britain and Japan shall talie action which is fairly commensurate with this action on the part of the United States. It is proposed that Great Britain: 1. Shall stop further construction of the four new Hoods, the new capital ships not laid down, but upon which money has been spent. The four ships, if completed, would have a tonnage displacement of 172,000 tons. 2. Shall, in addition, scrap her pre-dreadnoughts, sec- ond line battleships and first line battleships up to, but not including, the King George V. class. These, with certain pre-dreadnoughts which it is under- stood have already been accepted, would amount to nineteen capital ships and a tonnage reduction of 411,375 tons. The total tonnage of ships thus to be scrapped by Great Britain (including the tonnage of the four Hoods, if com- pleted) would be 583,375 tons. JAPAN. It is proposed that Japan: 1. Shall abandon her program of ships not yet laid down, viz., the K-11, Owari, No. 7 and No. 8, battleships, and Nos. 5, 6, 7 and 8, battle cruisers. It should be observed that this does not Involve the stop- ping of construction, as the construction of none of these ships has been begun. 2. Shall scrap three capital ships (the Mutsu, launched; the Tosa, the Kago, in course of building), and four battle cruisers (the Amagi and Akagi, in course of building, and the Atoga and Takao, not yet laid down, but for whicli cer- tain material has been assembled). The total number of new capital ships to be scrapped under this para,graph is seven. The total tonnage of these new capital ships when completed would be 289,130 tons. 3. Shall scrap all pre-dreadnoughts and battleships of the second line. This would include the scrapping of all ships up to, but not including, the Settsu; that is, the scrap- ping of ten old ships, with a, total tonnage of 159,828 tons. The total reduction of tonnage on vessels existing, laid down or for which material has been assembled (taking the tonnage of the new ships when completed) would be 448,928 tons. Thus, under this plan, there would be immediately de- stroyed, of the navies of the three powers, sixty-six capital fighting ships, built and building, with a total tonnage of 1,878,043. 232 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. THE THREE POWERS. It is proposed that it should be agreed by the United States, Great Britain and Japan that their navies, with re- spect to capital ships, within three months after the malcing of the agreement, shall consist of certain ships, designated in the proposal, and number for the United States 18, for Great Britain 22, for Japan 10. The tonnage of these ships would be as follows: Of the United States 500,650, of Great Britain 604,450, of Japan 299,700. In reaching this result the age factor in the case of the respective navies has received appropriate considera- tion. ^ REPLACEMENT. With respect to replacement the United States proposes: (1) That it be agreed that the first replacement ton- nage shall not be laid down until ten years from the date of the agreement. (2) That replacements be limited by an agreed max- imum of capital ship tonnage as follows: For the United States, 500,000 tons. For Great Britain, 500,000 tons. For Japan, 300,000 tons. (3) That, subject to the ten-year limitation above fixed and the maximum standard, capital ships may be replaced when th^y are twenty years old by new capital ship con- struction. (4) That no capital ship shall be built in replacement with a tonnage displacement of more than 35,000 tons. I have sketched the proposal only in outline, leaving the technical details to be supplied by the formal proposition, which is ready for submission to the delegates. The plan includes provision for the limitation of auxil- iary surface combatant craft. This term embraces three classes, that is: (1) Auxiliary surface combatant craft, such as cruisers (exclusive of battle cruisers), flotilla leaders, destroyers and various surface types; (2) submarines and (3) airplane car- riers. I shall not attempt to review the proposals for these various classes, as they bear a definite relation to the pro- visions for capital fighting ships. With the acceptance of this plan, the burden of meet- ing the demands of competition in naval armament will b" lifted. Enormous sums will be released to aid the progress of civilization. At the same time the proper demands of national defense will be adequately met, and the nations will have ample opportunity during the naval holiday of ten 233 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. years to consider their future course. Preparation for future naval war shall stop now. I shall not attempt at this time to take up the other topics which have been listed on the tentative agenda proposed in anticipation of the Conference. The full text of the limitation plan, prepared by the United States experts, and referred to by Mr. Hughes, is as follows: THE PROPOSAL OF THE UNITED STATES FOR A LIMI- TATION OF NAVAL ARMAMENTS. The United States proposes the following plan for a limi- tation of the naval armaments of the conferring nations. The United States believes that this plan safely guards the«inter- ests of all concerned. In working out this proposal the United States has been guided by four general principles: (a) The elimination of all capital ship building pro- grams, either actual or projected. (b) Further reduction through the scrapping of certain of the older ships. (c) That regard should be had to the existing naval strength of the conferring powers. (d) The use of capital ship tonnage as the measure- ment of strength for navies and proportionate allowance of auxiliary combatant craft prescribed. Proposal for a limitation of naval armaments. CAPITAL SHIPS. UNITED STATES. 1. The United States to scrap all new capital ships now under construction and on their way to completion. This in- cludes six battle cruisers and seven battleships on the ways and building and two battleships launched. (Note — Paragraph 1 involves a reduction of fifteen new capital ships under construction, with a total tonnage when completed of 618,000 tons. Total amount of money already spent on fifteen capital ships, $332,000,000.) 2. The United States to scrap all battleships up to, but not including, the Delaware and North Dakota. (Note — The number of old battleships scrapped under paragraph 2 is fifteen; their total tonnage is 227,740 tons. The grand total of capital ships to be scrapped is thirty, aggregat- ing 845,740 tons.) GREAT BRITAIN. 3. Great Britain to stop further construction on the four new Hoods. (Note — Paragraph 3 involves a reduction of four new capital ships not yet laid down, but upon which money has 234 SECOND YEAR BOOK OF T HE LEAGUE OF NATIONS. « ' been spent, with a. total tonnage when completed of 172,000 tons.) 4. In addition to the four Hoods, Great Britain to scrap her pre-dreadnoughts, second line battleships and first line battleships up to, but not including the King George "V. class. (Note — Paragraph 4 involves the disposition of nineteen capital ships, certain of which have already been scrapped, with a tonnage reduction of 411,375 tons. The grand total tonange of ships scrapped under this agreement will be 583,375 tons.) JAPAN. 5. Japan to abandon her program of ships not yet laid down, viz.: The Kll, Owari, No. 7, No. 8, battleships, and Nos. 5, 6, 7 and 8, bg.ttlecruisers. (Note — -Paragraph 5 does not involve the stopping of construction on any ship upon which construction has be- gun.) 6. Japan to scrap three battleships: The Mutsu, launched; the Tosa and Kaga, building, and four battle cruis- ers, the Amagi and Akagi, building, and the Atago and Takao, not yet laid down, but for which certain material has been assembled. (Note — Paragraph 6 involves a reduction of seven new capital ships under construction, with a total tonnage when completed of 288,100 tons.) 7. Japan to scrap all pre-dreadnoughts and capital ships of the second line. This includes the scrapping of all ships up to, but not Including, the Settsu. (Note — (Paragraph 7 involves the scrapping of ten older ships with a total tonnage of 159,828 tons. The grand total reduction of tonnage on vessels existing, laid down, or for which material has been assembled, is 443,928 tons.) FRANCE AND ITALY. 8. In view of certain extraordinary conditions due to the World War affecting the existing strengths of the navies of Prance and Italy, the United States does not consider neces- sary the discussion at this stage of the proceedings of the ton- nage allowance of these nations, but proposes it be reserved for the later consideration of the conference. OTHER NEW CONSTRUCTION. 9. No other new capital ships shall be constructed dur- ing the period of this agreement except replacement tonnage as provided hereinafter. 10. If the terms of this proposal are agreed to, then the United States, Great Britain and Japan agree that their navies, three months after the making of this agreement, shall consist of the following capital ships. 235 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Maryland, California, Tennessee, Idaho, Mississippi, New Mexico, LIST OF CAPITAL SHIPS. UNITED STATES. Arizona, Pennsylvania, Oklahoma, Nevada, Texas, New York, Arkansas, Wyoming, Utah, Florida, North Dakota, Delaware. Total, 18. Total tonnage, 500,650. GREAT BRITAIN. Royal Sovereign Barhan, King George V, Royal Oak, Malaya, Centurion, Resolution, Benbow, Ajax, Ramillies, Emperor of India, Hood, Revenge, Iron Duke, Renown, Queen Elizabeth, Marlborough, Repulse, Warspite, Erin, Tiger. Valiant, Total, 22. Total tonnage, JAPAN. 604,450. Nagato, Fu-So, Haruna, Hiuga, Settsu, Hi-Yei, Ise, Kirishima, Kongo. Yamashiro, Total, 10. Total tonnage, 299,700. DISPOSITION OF OLD AND NEW CONSTRUCTION. 11. Capital ships shall be disposed of in accordance with methods to be agreed upon. 12. REPLACEMENTS, (a) The tonnage basis for capital ship replace- m.ent under this proposal to be as follows: United States, 500,000 tons. Great Britain, 500,000 tons. Japan, 300,000 tons. (b) Capital ships twenty years from date of comple- tion may be replaced by new capital ship construction, but the keels of such new construction shall not be laid until the tonnage which it is to replace is seventeen years of age from date of completion. Provided, however, that the first replacement tonnage shall not be laid down until ten years from the date of the signing of this agreement. (c) The scrapping of capital ships replaced by new construction shall be undertaken not later than the date of completion of the new construction, and shall be com.pleted 236 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. within three months of the date of completion of new con- struction, or if the date of completion of new construction be delayed, then within four years of the laying of the keels of such new construction. (d) No capital ships shall be laid during the term or this agreement whose tonnage displacement exceeds 35,000 tons. (e) The same rules for determining tonnage of capi- tal ships shall apply to the ships of each of the powers party to this agreement. (f) Each of the powers party to this agreement agrees to inform promptly all the other powers party to this agree- ment concerning: (1) The names of the capital ships to be replaced by new construction. (2) The date of authorization of replacement tonnage. (3) The dates of laying the keels of replacement ton- nage. (4) The displacement tonnage of each new ship to be laid down. (5) The actual date of completion of each new ship. (6) The fact and date of the scrapping of ships re- placed. (G) No fabricated parts of capital ships including parts of hulls, engines and ordnance shall be constructed previous to the date of authorization of replacement tonnage. A list of such parts will be furnished all powers party to this agree- ment. (H) In case of the loss or accidental destruction of capital ships, they may be replaced by new capital ship con- struction in conformity with the foregoing rules. AUXILIARY COMBATANT CRAFT. 13. In treating this subject auxiliary combatant craft have been divided into three classes: (A) Auxiliary surface combatant craft. (B) Submarines. (C) Airplane carrriers and aircraft. 14. The term auxiliary surface combatant craft includes cruisers (exclusive of battle cruisers), flotilla leaders destroy- ers and all other surface types except those specifically ex- empted in the following paragraph. 15. Existing monitors, unarmored surface craft as speci- fied in Paragraph 16, under 3,000 tons, fuel ships, supply ships, tenders, repair ships, tugs, mine sweepers and vessels readily convertible from merchant vessels are exempt from the terms of this agreement. 16. No new auxiliary combatant craft may be built ex- 237 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. empt from this agreement regarding limitation of naval arma- ments that exceed 3,000 tons displacement and fifteen knots speed, and carry more than 4-3 inch guns. 17. It is proposed that the total tonnage of cruisers, flo- tilla leaders and destroyers allowed each power shall be as follows: For the United States, 450,000 tons. For Great Britain, 450,000 tons. For Japan, 270,000 tons. Provided, however, that no power party to this agree- ment whose total tonnage in auxiliary surface combatant craft on Nov. 11, 1921, exceeds the prescribed tonnage shall be re- quired to scrap such excess tonnage until replacements begin, at which time the total tonnage of auxiliary combatant craft for each nation shall be reduced to the prescribed allowance as herein stated. LIMITATION OF NEW CONSTRUCTION. 18. (A) All auxiliary surface combatant craft whose keels have been laid down by Nov. 11, 1921, may be carried to completion. (B) No new construction in auxiliary surface combatant craft except replacement tonnage as provided hereinafter shall be laid down during the period of this agreement, pro- vided, however, that such nations as have not reached the auxiliary surface combatant craft tonnage allowances here- inbefore stated may construct tonnage up to the limit of their allowance. SCRAPPING OF OLD CONSTRUCTION. 19. Auxiliary surface combatant craft shall be scrapped in accordance with methods to be agreed upon. (B) Submarines. 20. It is proposed that the total tonnage of submarines allowed each power shall be as follows: For the United States, 90,000 tons. For Great Britain, 90,000 tons. For Japan, 54,000 tons. Provided, however, that no power party to this agreement whoso total tonnage in submarines on Nov. 11, 1921, exceeds the prescribed tonnage shall be required to scrap such excess tonnage until replacements begin, at which tiBae the total tonnage of submarines for each nation shall be reduced to the prescribed allowance as herein stated. LIMITATION OF NEW CONSTRUCTION. 21. (A). All submarines whose keels have been laif' down by Nov. 11, 1921, may be carried to completion. 23S SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. (B) No new submarine tonnage except replacement ton nage as provided hereinafter shall be laid down during th period of this agreement, provided, however, that such nation as have not reached the submarine tonnage allowance herein before stated may construct tonnage up to the limit of thel allowance. SCRAiPPING OP OLD CONSTRUCTION. 22. Submarines shall be scrapped in accordance with methods to be agreed upon. (C) — AIRPLANE CARRIERS AND AIRCRAFT. 23. It is proposed that the total tonnage of airplane car- riers allowed each power shall be as follows: United States, 80,000 tons; Great Britain, 80,000 tons; Japan, 48,000 tons. Provided, however, that no power party to this agreement whose total tonnage in airplane carriers on Nov. 11, 1921, exceeds the prescribed tonnage shall be required to scrap such excess tonnage until replacements begin, at which time the total tonnage of airplane carriers for each nation shall be reduced to the prescribed allowance as herein stated. Limitation of new construction, airplane carriers. 24. (A) All airplane carriers whose keels have been laid down by Nov. 11, 1921, may be carried to completion. (B) No new airplane carrier tonnage except replace- ment tonnage as provided herein shall be laid down during the period of this agreement, provided, however, that such nations as have not reached the airplane carrier tonnage here- inbefore stated, may construct tonnage up to the limit of their allowance. SCRAPPING OF OLD CONSTRUCTION. 25. Airplane carriers shall be scrapped in accordance with methods to be agreed upon. AUXILIARY COMBAT CRAFT, REPLACEMENTS. 26. (A) Cruisers seventeen years of age from date of completion may be replaced by new construction. The keels for such new construction shall not be laid until the tonnage it is intended to replace is fifteen years of age from date of completion. (B) Destroyers and flotilla leaders twelve years of age from date of completion may be replaced by new construj!- tion. The keels of such new construction shall not be laid mi- til the tonnage it is intended to replace is eleven years of ago from date of completion. (C) Submarines twelve years of age from date of com- pletion may be replaced by new submarine construction, but the keels of such new construction shall not be laid until the 239 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tonnage which the new tonnage is to replace is eleven years of age from date of completion. (D) Airplane carriers twenty years of age from date of completion may be replaced by new airplane carrier con- struction, but the keels of such new construction shall" not be laid until the tonnage which it is to replace is seventeen years of age from, date of completion. (E) No surface vessels carrying guns of calibre greater than 8 inches shall be laid down as replacement tonnage for auxiliary combatant surface craft, (F) The same rules for determining tonnage of auxiliary combatant craft shall apply to the ships of each of the Powera party to this agreement. IG) The scrapping of ships replaced by new construc- tion shall be undertaken not later than the date of completion of the new construction and shall be completed within three months of the date of completion of the new construction, or, if the completion of new tonnage is delayed, then within four years of the laying of the keels of such new construction. (H) Each of the Powers party to this agreement agrees to inform all the other parties to this agreement concerning: (1) The names or numbers of the ships to be replaced by new construction. (2) The date of authorization of replacement tonnage. (3) The dates of laying the keels of replacement ton- nage. (4) The displacement tonnage of each new ship to be laid down. (5) The actual date of completion of each new ship. (6) The fact and date of the scrapping of ships re- placed. (I) No fabricated parts of auxiliary combatant craft, including parts of hulls, engines and ordnance, will be con- structed previous to the date of authorizati.on of replacement tonnage. A list of such parts will be furnished all Powers party to this agreement. (J) In case of the loss or accidental destruction of ships of this class they may be replaced by new construction in conformity with the foregoing rules. AIRCRAFT. 27. The limitation of naval aircraft is not proposed. (Note — Owing to the fact that naval aircraft may be reaaily adapted from special types of commercial aircraft, it is not considered practicable to prescribe limits for naval aircraft.) 240 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. GENERAL RESTRICTION ON TRANSFER OF COM- BATANT VESSELS OP ALL CLASSES. 28. The Powers party to this agreement bind themselves not to dispose of combatant vessels of any class in such a. manner that they later may become combatant vessels in an- other navy. They bind themselves further not to acquire combatant vessels from any foreign source. 29. No capital ship tonnage nor auxiliary combatant craft tonnage for foreign account shall be constructed within the jurisdiction of any one of the Powers party to this agree- ment during the term of this agreement. MERCHANT MARINE. 30. As to the importance of the merchant marine is In Inverse ratio to the size of naval armaments, regulations must be provided to govern its conversion features for war pur- poses. In connection with the foregoing plan of limitation the following comparison of the naval forces of the three great naval Powers at that moment is pertinent: The competitive fighting strength of the navies of the principal Powers in terms of existing combat of both tho first and second line, new ships and old, battleships, battle cruisers, light cruisers, destroyers, submarines of all classes and aircraft carriers, is as follows in total number of ships and total tonnage: Great Britain — 533 ships; 1,860,480 tons. United States — 464 ships; 1,289,463 tons. Japan — 99 ships; 528,689 tons. France — 138 ships; 462,356 tons. Italy — 86 ships; 275,622 tons. The known building programs in the same terms are: Great Britain — 13 ships, 29,380 tons, and four additional battle cruisers aggregating 160,000 tons planned, but pos- sibly not yet laid down. United States — 69 ships; 734,928 tons. Japan — 85 ships; 805,188 tons. France — 34 ships; 91,2 30 tons. Italy — 21 ships; 19,928 tons. In broadside strength of capital ships of the first line now afloat, which means the number of guns of 12-inch bore and up, the figures are: Great Britain — 288 guns. United States — 196 guns. Japan — 9 6 guns. , The French and Italian fleets are not regarded as com- ing within the same scope of power as the other three. 241 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. This existing gun-power is carried in the following groups of capital ships: Great Britain — 26 first-line battleships and 6 first line cruisers. United States — 18 first-line battleships. Japan — 6 first-line battleships and 4 first-line battle cruisers. The tonnage figures for these ships are: Great Britain — 811,050, United States — 500,650. Japan — 288,320. The building programs of the three principal naval Powers include the following capital ships; Great Britain — 4 battle cruisers; 160,000 tons. United States — 9 battleships and 6 battle cruisers. Japan — 7 battleships and 8 battle cruisers. Figures on submarines for the three Powers are; Great Britain — 64 first line, 59 second line, 14 first line fleet submarines, 1 cruiser submarine, 3 monitor submarines. United States — 57 first line, 44 second line, 3 fleet sub- marines. Japan — 15 first line, 3 second line. The submarine building programs are: Great Britain — 5 first line. United States — 37 first line, 3 fieet. Japan — In doubt, but believed to be either 11 or 12 first liners of about 1,000 tons each. Japan is reported to have planned for 120 submarines by 1927. The forces of existing destroyers are: Great Britain — 230 first line, 15 second. United States — 293 first line, 21' second. Japan — 40 first line, 12 second. The building programs as to destroyers are; Great Britain — Five. United States — Four. Japan — Thirty- two. At the suggestion of Mr. Hughes, Mr. John W. Garrett was designated as Secretary-General of the Conference, a Committee on Program and Procedure Respecting Armament Limitation was constituted, to consist of the heads of the dele- gations of the five great Powers, or of alternates named by them, and a Committee on Program and Procedure Respect- ing Pacific and Far Eastern Problems was formed in the same way by the heads of the nine delegations. Mr. Hughes's drastic' proposals were received by the galleries with enthusiasm, by the British and French dele- 242 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. gations with surprise and pleasure, and by the Japanese dele- gation at first with something like bewilderment. Mr. Edwin L. James, for the New York Times, reported an Interview with Premier Briand, whom he met On Pennsylvania avenue. "Well, what do you think of it?" I asked the sturdy French statesman, who looked as if he were enjoying fully the trip to Washington he had to tight so hard for in the Chamber of Deputies. "Tres bien," he replied, "tres bien. A 1' Ainericaine," he exclaimed. "Mr. Hughes is a very strong man," he said. "He has told the rest of us what America will do and asked what the rest will do about it. That's direct. That's what I call a 1' Americaine. I like it. As you know, France is not directly concerned in the plan proposed today. It is proposed to Great Britain and Japan. When France is called on to play a role, I am going to do like Mr. Hughes. I am going to talk a 1' Americaine." I asked Mr. Briand what he thought of the merits of the American plan for naval limitation. He explained deftly that Mr. Hughes had not sent him a French translation yet and he could not talk about the merits of the plan until he had asked his experts just what the American figures meant. "As you should know," he said, "it is not for me at this time to talk publicly on the proposals made today, but I want to repeat that I am interested in your Mr. Hughes's methods. I like the way he proposed the problem. "There are two methods in international conference. One is to appoint a lot of commissions and experts commit- ■ tees to hunt around and play with figures while diplomats nnd out what proposals may be m.ade. We have gotten used to that way." There is another way. "That is to say, 'Here's what we are prepared to do; what are you going to do?' That's Mr. Hughes's way. He has told what America will do, and now it's up to England and France to answer what they will do. I am 'in a hurry to see what will happen Tuesday." In the same newspaper Mr. Kotaro Mochizuki, a member • of the Japanese Diet, but not of the delegation to the Con- ference, was reported as contending at the Japanese head- quarters that it might be difficult to find in the Hughes pro- posal a basis for limitation of naval armaments unless some agreement was reached between Japan and the United States relative to the fortification of trans-Pacific islands as ad- vanced bases of naval' operation. "Tou," he said, addressing several of the American news- paper men, "have fortifications in the Philippines, Guam and Hawaii. Tou also have plans for advance base developments and fortifications on the Aleutian Islands in the Alaskan 243 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. group. I must be frank In pointing out that, as against that, we of Japan, have some fortifications in the south end of Formosa, in the Island of Oshima and in Bonin. From the Japanese point of view, we are obliged to have these fortifi- cations if you have fortifications in the Philippines, Guam and Hawaii, and in the Aleutians, because it is only about 550 miles from the Philippines to Oshima, and only about 800 miles from Guam to Bonin. This year you are devoting ap- proximately $417,000,000 to your armament program, as I recall the estimates, and of that a considerable part is being spent on fortifications in your advanced bases in the Pacific. My understanding is that you have about $10,500,000 set aside for the fortification of Guam, while we are spending only $900,000 on the fortification of the Bonin Island. These fortified advanced bases are the stepping stones of the Ameri- can navy to the Far Bast. Suppose our Governments agree to this limitation of armament on the basis of Mr. Hughes's proposals, it would seem to me that from the Japanese point of view it would be very difficult to reach a mutually satis- factory agreement, unless we halt expenditures of these Pa- cific advanced islands bases." At the opening of the Second Session of the Conference on Tuesday, November 15, it was first voted on recommenda- tion of the Program and Procedure Committees, that the permanent Committee on Limitation of Armament should consist of all the plenipotentiary delegates of the five great Powers, and in like manner that the permanent Committee on Pacific and Far Eastern problems should comprise all the plenipotentiary delegates of the nine Powers present. Then the representatives of the visiting great Powers arose, on^ after the other, and assented to the proposals in Secretary Hughes's speech of the previous Saturday. • Inasmuch as this meant that ' Great Britain abandoned her traditional policy of supremacy on sea, and instead of maintaining a war fleet equal to any other two, accepted a status of Aaval equality with the United States, a new chap- ter in the history of sea-power began with these speeches. MR. BALFOUR, as the representative of the "Mistress of the Seas," was first called upon by the Chairman and spoke as follows: Mr. Chairman, you have invited those who desire to con- tinue the discussion which began on Saturday last. I think it would be very unfortunate if we were to allow the events of Saturday to pass without some further observation on the part of those to whom you, Mr. Chairman, addressed your speech and if, for any reason which I shall venture to ex- plain in a moment, I am the first to take up the challenge, it is because of all the Powers here assembled the country 244 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. which I represent is, as everybody knows, the most intimately interested in naval questions. Statesmen of all countries are beginning to discover that the labors and difficulties of peace are almost as arduous and require almost as great qualities as those which are demanded for the conduct of a successful war. These struggles to restore the world to the condition of equilibrium, so violently interfered with by five years of war, is one that taxes and must tax the efforts of everybody. And I congratulate you, if I may, Mr. Chairman, on the fact that you have added the new anniversary which will hence- forth be celebrated in connection with this movement toward reconstruction in the same spirit in which we welcomed the anniversary celebrated only a few hours ago, on the day on which hostilities came to an end. If the 11th of November in the minds of the Allied and Associated Powers, in the minds perhaps not less of all the neutrals — if that is a date imprinted on grateful hearts, I think November 12 will also prove to be an anniversary welcomed and thought of in a grateful spirit by those who in the future shall look back upon the arduous struggle now being made by the civilized nations of the world, not merely to restore pre-war conditions, but to see that war conditions shall never again exist. I count myself anaong the fortunate of the- earth in that I was present, and to that extent had a share in the proceed- ings of last Saturday. They were memorable, indeed. The secret was admirably kept. I hope that all the secrets, so long as they ought to be secret, of our discussions will be as well kept. In my less sanguine mood I have doubts. But, however that may be, the secret in this case was most admirably kept, and I listened to a speech which I thought eloquent, appropriate, in every way a fitting prelude to the work of the Conference which was about to open, or which, indeed, had been opened by the President, without suppos- ing that anything very dramatic lay behind. And sud- denly I became aware, as I .suppose all present became aware, that they were assisting not merely at an elo- quent and admirable speech, but at a great historical event. It was led up with such art. The transition seemed so natu- ral that when the blow fell, when the speaker uttered the memorable words which have now gone round and found echo in every quarter of the civilized world, it came as a, shock of profound surprise; it excited the sort of emotions we have when some wholly new event springs into view, and we felt that a new chapter in the history of world reconstruction had been warily opened. Mr. Chairman, the absolute simplicity of the procedure, the easy transition and the great dramatic climax were the perfection of art, which shows that the highest art and the 245 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. most perfect simplicity are very often, indeed very commonly, combined. "Now, I said I would explain, if I was allowed, why I venture to rise first today to deal with the subject which is in all our hearts. As I have hinted, it is because the British Empire and Great Britain, these two together are more pro- foundly concerned with all that touches matters naval than it is possible for any other Nation to be, and this not, believe hie, for any reasons of ambition, not for any reasons drawn from history or tradition, but from the hard, brutal neces- sities of claims and obvious facts. There never has been in the history of the world a great empire constituted as the British Empire is. _ It is a fact no doubt familiar to everybody whom I am addressing at the present moment, but has everybody whom I am addressing imaginatively conceived precisely what the situation of the British Empire is in this connection? Most of my audience are citizens of the United States. The United States stands solid, impregnable, self-sufficient, all its lines of communication protected, doubly protected, completely protected from any conceivable hostile act. It is not merely that you are 110,000,000 of population; it is not that you are the wealthiest country in the world; it is that the whole configuration of your country, the geographical posi- tion of your country. Is such that you are wholly immune from the particular perils to which, from the nature of the case, the British Bnapire is subjected. Supposing, for example, that your Western States, for whose safety you are responsible, were suddenly removed 10,000 miles across the sea. Supposing that you found that the very heart of your Empire, the very heart of this great State, was a. small, a crowded island depending for oversea trade not merely, not chiefly, for its luxuries, but depending upon overseas communication for the raw material of those manufactures by which its superabundant population lives; depending upon the same oversea communication for the food upon which they subsist. Supposing it was a familiar thought in your minds that there never was at any moment of the year within the limits of your State more than seven weeks' food for the population, and that that food had to be replen- ished by oversea communication. Then, if you will draw that picture, and if you will see all that it implies and all that it carries with it, you will understand why it is that every citi- zen of the British Empire, whether he comes from the far dominions of the Pacific or whether he lives in the small island in the North Sea, never can forget that it is by sea communica-tion that he lives and that without sea communi- cation he and the empire to which he belongs would perish. Now, ladies and gentlemen, do not suppose that I am 246 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. uttering laments over the weakness of my Em.pire. Far from it. We are strong, I hope, in the vigorous life of its con- stituent parts. AVe are strong, I hope, in the ardent pa- triotism which binds us all together. But this strategic weak- ness is obvious to everybody who reflects; it is present in the minds of our enemies, if we have enemies. Do not let it be forgotten by our friends. Tliese reflections, with your kindness, I have indulged in in order to explain why it is that I am addressing you at the present time. We have had to consider, and we have con- sidered, the great scheme laid before you by our Chairman. We have considered it with admiration and approval. We agree with it in spirit and in principle. We look to it as being the basis of the greatest reform in the matter of arma- ment and preparation for war that has ever been conceived or carried out by the courage and patriotism of statesmen. I do not pretend, of course — it would be folly to pretend — that this or any other scheme, by whatever genius it may have been contrived, can deal with every subject; can cover the whole ground of International reconstruction. It would be folly to make the attempt and it would be folly to pretend that the attempt has yet been made in any single scheme as was clearly explained by the Secretary of State on Saturday. The scheme deals, and deals only, with three Nations which own the largest fleets at present in the world. It therefore, of necessity, omits all consideration for the time being of those European Nations who have diminished their fleets, and who at present have no desire, and I hope never will have any desire, to own fleets beyond the necessities that national honor and national defense require. Again, it does not touch a question which every man coming from Europe must feel to be a question of immense and almost paramount importance. I mean the heavy burden of land armaments. That is left on one side to be dealt with by other schemes and in other ways. What it does is surely one of the biggest things that has ever yet been done by constructive statesmanship. (Here the audience rose to its feet with tumultuous applause.) It does deal with the three great fleets of the world, and in the broad spirit in which it deals with those fleets in the proportion of disarmament which it lays down for those fleets, the Gov- ernment of the country which I represent is in the fullest and the heartiest sympathy with the policy which the United States has brought before us for our consideration. They have, as we think most rightly, taken the battle fleet as the aggressive unit which they have in the main to consider; and in the battle fleet you must include those auxiliary ships without which a, modern battle fleet has neither eyes nor ears, has little power of defense against certain forms of at- 247 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tack, and little power of observation; little power of dealing with any equal foe to which it may be opposed. Taking those two as really belonging to one subject, namely, the battle fleet, taking those two, the battleships themselves and the vessels auxiliary and necessary to a bat- tle fleet, we think that the proportion between these various countries is acceptable, we think the limitation of announts is reasonable; we think it should be accepted, we firmly be- lieve that it will be accepted. In my view, the message which has been sent around the world on Saturday is not a- message which Is going to be re- ceived by those most concerned with cool approbation. I believe it is going to be received by thenx with warm, hearty approval, and with every effort at full, loyal and complete co-operation. I think it would be ill-fitting on such an occasion as this if I were to attempt to go into any details. There are ques- tions — and I have no doubt that the Secretary of State, our Chairman, would be the first to tell us that there are details which can only be adequately dealt with in committee. At the first glance, for example, and I give it merely as an ex- ample, our experts are inclined to think that perhaps too large an amount of tonnage has been permitted for sub- marines. Submarines are a class of vessels most easily abuserl in their use and which, in fact, in the late war, were most grossly abused. We quite admit that probably the submarine is the defensive weapon, properly used, of the weak, and that it would be impossible, or, if possible, it might well be thought undesirable, to abolish them altogether. But the amount of submarine tonnage permitted by the new scheme is far in excess, I believe, of the tonnage possessed by any Nation at the present moment, and I only throw it out as a suggestion that it may be well worth considering whether that tonnage should not be further limited, and whether, in addition to limiting the amount of the tonnage, it might not be practicable, and, if practicable, desirable, to forbid alto- gether the construction of those submarines of great size which are not intended for defense, which are not the weapon of the weaker party, whose whole purpose is attack ami whose whole purpose is probably attack by methods which civilized Nations would regard with horror. However, there may be other questions of detail, ques- tions connected with replacement, questions connected with cruisers, which are not connected with or required for fieet action. But those are matters for consideration by the tech- nical experts, and however they be decided, they do not touch the main outline of the structure which the United States Government desires erected and which we earnestly wish to help them in erecting. 248 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. That structure stands, as it seems to me, clear and firm, and I cannot help thinking that in the broad outline, what- ever may happen in the course of these discussions during the next few weeks, that structure will remain as it was pre- sented by its original architects, for the admiration and for the use of mankind. I have little more to say except this: it is easy to esti- mate in dollars or in pounds, shillings and pence the saving to the taxpayer of each of the Nations concerned which the adoption of this scheme will give. It is easy to show that the relief is great. It is easy to show that indirectly it will, as I hope and believe, greatly stimulate industry, national and international, and do much to diminish the difflculties under which every civilized Government is at this time la- boring. All that can be weighed, measured, counted; all that is a matter of figures. But there is something in this scheme which is above and beyond numerical calculations. There is something which goes to the root, which is concerned with the highest international morality. This scheme after all — what does it do? It makes idealism a practical proposition. It takes hold of the dream which reformers, poet, publicists, even potentates, as we heard the other day, have from time to time put before man- kind as the goal to which human endeavor should aspire. A narrative of all the attempts made, of all the schemes advanced, for diminishing the sorrows of war, is a melan- choly one. Some fragments were laid before you by our Chairman on Saturday. They were not exhilarating. They showed how easy it is to make professions and how difficult it is to carry those professions into effect. What makes this scheme a landmark is that combined with the profession is the practice, that in addition to the expression, the eloquent expression of good intentions, in which the speeches of men of all Nations have been rich, that a way has been found in which, in the most striking fashion. In a manner which must touch the imagination of everybody, which must come home to the dullest brain and the hardest heart, the Government of the United States has shown its intention not merely to say that peace is a very good thing, that war is horrible, but there is a way by which wars can really be diminished, by which the burdens of peace, almost as intolerable as the burdens of war, can really be lightened for the populations of the world. And in doing that, in doing it in the manner in which they have done ic, in striking the imagination not merely of the audience they were addressing, not merely of the great people to whom they belonged, but of the whole civilized world, in doing that they have, believe me, made the first and opening day of this Congress one of the landmarks in human civilization. 249 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. I have said all that I propose to say, but if you will allow me I will read a, telegram put into my hands just as I reached this meeting-, this Congress, from the British Prime Minister: "Following for Mr. Balfour from Mr. Lloyd George: "Many thanks for your telegram. If you think it will serve useful purpose to let them know, message might be published as follows: " 'Government have followed proceedings at opening ses- sion of Conference with profound appreciation and whole- heartedly endorse your opinion that speeches made by Presi- dent Harding and Secretary of State were bold and statesman- like utterances, pregnant with infinite possibilities. Nothing could augur better for ultimate success of Conference. Please convey to both our most sincere congratulations.' " The heads of the delegations from the other great Powers followed Mr. Balfour in turn, each signifying assent to the general terms of the American proposal. Baron Kato also denied that Japan had thought of preparing for offensive warfare, and said that a nation must have "such armaments as are essential to Its security." Senator Schanzer noted the beneficent economic conse- quences that the modern world, "a single great economic sys- tem," would derive from the American plan, and said that the question of French and Italian naval armament must be considered along with the others. Premier Briand remarked that, so far as war fleets were concerned, France had already entered upon the right way, but that the effort to create a common understanding for the avoidance of the atrocities of war would inevitably lead to a discussion of land armaments. He expected to be able to show "that France, after the necessities of safety and life have been adequately secured, harbors no thought what- ever of disturbing the peace of the world." In brief concluding remarks, Secretary Hughes said that the Conference would welcome an expression of the thought of France concerning land armament. Fifteenth Session of the Council The Council of the League of Nations held its fifteenth regular session at Paris November 16-19, 1921. Wednesday, November 16. 1. ALBANIA — The Council was in session only long enough to agree to hold next day a public meeting at which Mr. Fisher would state the reasons why Great Britain had asked for this session of the Council. On the following day Albania was represented by M. Mehmed 250 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Konitza and M. Midhat Frasheri; Yugo-Slavia, by MM. Bos- kovitch, Jovanovitch and Popovitch. Mr. Fisher, recalling- the fact that Tugo-Slavia and Al- bania are both members of the League, recited the evidence, possessed by his Government, to prove that the Serbian Gov- ernment had used Its regular army in attempts to foment an insurrection against the Albanian Government among the Christian tribes (Mirdites) of Northern Albania and to de- tach Northern Albania from its allegiance to the Govern- ment of Tirana; that Serbia had found only a few disaffected persons and had sustained them within Serbian territory, had armed them and sent them against Albania, and had rein- forced them with Russian troops, refugees from Gen. Wran- gel's army; that Serbian soldiers had ravaged some 600 square miles of Albanian territory and destroyed at least 157 vil- lages. He concluded by expressing- pleasure that, since his arrival in Paris, he had heard that both Yugo-Slavia and Al- bania had accepted the award of the Council of Ambassadors. For Tugo-Slavia M. Boskovltch replied. The British Gov- ernment had begun by considering first of all the measures which should be taken against the Serb-Croat-Slovene Gov- ernment in the event of its refusing to carry out a decision which had not even been received at the moment when these measures were contemplated. He maintained that the Serb- ian troops had never been the first to pass the line of demar- cation drawn by the Inter-Allied commander, but they had been compelled to counter-attack in order to retake the posts which had been captured by Albanian aggression. These were the attacks which resulted in the destruction of the villages referred to by Mr. Fisher, and the devastation was the work of the Albanians themselves. Mr. Boskovltch further declared that the Christian Mirdite population had risen spon- taneously to defend their independence. The Belgrade Government had decided to respect the frontier line drawn by the Ambassadors' Conference, although it had protested against the procedure followed by the Con- ference in establishing this line without consulting those in- terested. The Albanian representative, M. Midhat Frasheri, said the Tugo-Slav troops had attacked places beyond the line of demarcation drawn by the Inter-Allied commander — places whose population had already taken part in the Albanian legislative elections. He also declared that the Mirdite Chief, Marc Djoni, had his headquarters in Serbian territory, and that the League of Nations had telegrams from the Mirdite leaders and Albanian Catholic leaders, affirming their loyalty to the Albanian Government. In that Government the Cabi- net comprises a Catholic bishop and representatives of the Orthodox Christians, of the Bektashis and Sunnls. There Is 251 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. no Mohammedan majority in Albania, and no State religion. The population is about equally divided among the adherents of four religions. The Tirana Government desired henceforward to have good neighborly relations with the Serb-Croat-Slovene King- dom, but the unjust Serbian attack had cost Albania 7,000,000 gold francs, without taking into account the destruction of property. The Albanian Government reserved the right to estimate and reclaim the amount of this damage, and sug- gested that the Commission of Inquiry might make the estimate. In order to prevent fresh incidents, a Permanent Fron- tiers Commission should be appointed, comprising an Alban- ian, a Serb and a, representative of the League of Nations. The President of the Council closed the discussion with a reference to the fact that both Governments have accepted the frontier fixed by the Council of Ambassadors. 2. IRAK AND THE BRITISH MANDATE IN MESOPO- TAMIA— Mr. Fisher presented to the Council a statement of the formation of the native State of Irak under King Feisal in mandated territory. The recognition of a new local sovereigm modified to some extent the position of the Mandatary. "Statements made publicly by king Feisal from the Throne at the moment of his accession show clearly that he is ready and willing to include in his treaty with His Majesty's Government all proper provisions to insure that the Govern- ment of Irak shall be carried on in strict conformity with the spirit of the Covenant of the League. "It is therefore the opinion of His Majesty's Government that, provided that the treaty secures, first, the control of His Majesty's Government over the foreign" relations of Irak; secondly, due fulfilment of the international obligations in- curred by His Majesty's Government by treaty, mandate or agreement; thirdly, such measure of financial control as may be necessary; and fourthly, provided that it contravenes in no respect either the spirit or the letter of the Covenant of the League of Nations, it would provide a. more satisfactory defi- nition of the relations between the mandatory Power and the mandated State than any other form of instrument. "It will be understood that the proposed treaty will serve merely to regulate the relations between His Majesty's Gov- ernment, as mandatory Power, and the Arab Government of Irak. It is not intended as a substitute for the mandate, which will remain the operative document defining the obli- gations undertaken by His Majesty's Government on behalf of the League of Nations." 252 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Thursday, Nov. 17. 3. PROF. GINI'S REPORT ON RAW MATERIALS — The Council voted that the whole of Prof. Gini's report should be published by the League and at Its expense. This decision to change a vote at the preceding session of the Council (September 21) was taken in order to allay political commotions over the matter in the Italian Chamber of Deputies. Friday, Nov. 18. 4. ALBANIA. The Serbian and Albanian delegates presented extended official answers to Mr. Fisher's statement. On the following day, November 19, the Council closed the matter by adopting resolutions, instructing its Com- mission of Inquiry in Albania as follows: "1. The Commission shall keep the Council informed of the retirement of both the Tugo-Slav and Albanian troops from the provisional zone of demarcation provided for in the decision of the Conference of Ambassadors of November 18, 1921; it shall keep in touch with the Delimitation Com- mission whenever necessary and shall place itself at the dis- posal of the local authorities to assist in carrying out the evacuation so as to avoid incidents. "2. The Commission shall satisfy itself that no outside assistance is given in support of a local movement which might disturb internal peace in Albania. The Commission shall examine ahd submit to the Council measures to end the present disturbances and to prevent their recurrence." Among the other resolutions adopted, these were the most significant: "Considering that the frontiers of Albania are conse- quently now fixed and must be respected in accordance with the guarantees assured to the members of the League of Nations by the Covenant: "The Council notes the declaration of the Prime Minis- ter of the Serb-Croat-Slovene State in which he affirms that the Serb-Croat-Slovene State is taking, In accordance with the above decision, all steps to assure the immediate evacu- ation of its troops from all territory belonging to the Alban- ian State. The Council notes also the assurance given by the representatives of the two States that they intend to live as neighbors, maintaining good relations with each other, which implies that neither shall take, either directly or indirectly, any action to provoke or encourage any movenient which might disturb the internal peace of its neighbor." M. Boskovitch accepted the resolutions subject to these protests: 1. The last sentence above should end with the phrase, "with each other." 253 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 2. The activities of the Commission of Inquiry should be definitely limited to Albania. 3. His Government objected to the procedure of the Council of Ambassadors in tracing a frontier of Yugo-Slavia without the consent of that Government. The Albanian representative questioned how order was to be maintained, but accepted the resolutions without reser- vation. The Minutes of this fifteenth session of the Council, pub- lished by the League of Nations, contains a large map of Albania, showing the boundaries of Albania as established in 1913, and the demarcation zone between that country and Tugo-Slavia. The Albanian Commission of Inquiry had assembled in Geneva on November 10. Two of them, Col. Schaeffer and Maj. Meinich, left on the 15th for Albania. M. TheslefE (Fin- land) was obliged by ill health to resign from the Commission, and his place was filled by the appointment of Prof. J. J. Sederholm of the same country. The Commission received the foregoing instructions of the Council on the 23d at Valona. Saturady, Nov. 19. 5. RUSSIAN REFUGEES. The Sec- retary-General presented a report on behalf of Dr. Nansen. "The High Commissioner naturally had been called upon to face the pitiable situation of the 15,000 Russians who now find themselves absolutely without resources in Constanti- nople, and among whom actual death by starvation has be- come a, common event. Without undertaking responsibility, he had appealed to the Governments interested to make every effort to assist these refugees, and he has similarly appealed to the voluntary organizations engaged in work on behalf of the refugees. He is confident that if he could secure a .small sum of money — e.g., £30,000 — he would be able to keep the refugees alive until such time as his plans for settling them elsewhere have been brought to maturity. "Dr. Nansen has always recognized that the only real solution, both for the problem of the refugees in Constanti- nople and for the problem of the refugees in general, is to settle them in productive employment in countries where they will not become a charge on the public funds. With this ob- ject in view, he has made every effort to induce countries where such a prospect is possible to accept refugees from Constantinople. The Government of Czecho-Slovakia has very generously agreed to accept 6,000 refugees and the Bul- garian Government is willing to receive and to maintain the children. Arrangements for the full execution of these plans are now well advanced, and a number of the refugees have already reached Czecho-Slovakia. 254 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "Dr. Nansen has, however, found it very difficult to organ- ise the necessary transports, to secure the necessary visas from countries wliicli the refugees have to cross in transit, and generally to obtain the facilities required for the execu- tion of the modest schemes he has prepared. "He asked for such aid from the Council as it had ren- dered in connection with the repatriation of war prisoners. The Council authorized a letter to all the Governments represented in the Conference on Russian Refugees, held by the League at Geneva during August and September, 1921. This letter should state what Dr. Nansen needed for the solu- tion of the problem and invite the aid of the Governments. 6. ARMENIA. The Council voted that a letter of appeal from representatives of Armenia should be sent to principal Allied Powers. 7. HVNGARY. The Council received a letter from the Hungarian Government, regretting that during the recent crisis in Hungary, caused by th(> Karlist coup d'etat, the League of Nations had done nothing "to safeguard the peace and safety of nations." The Council instructed the Secretary-General to reply that the League did not intervene, and could not under Articles XI and XVII of the Covenant, because no request for intervention had been received from any State, member or non-member of the League. The First Gold Franc (From the "Monthly Summary" of the League for December, 1921.) The gold franc, which is the basis of all the monetary transactions of the League of Nations, is solely an expression of values and does not exist as metal currency. But a, single coin to represent this monetary unit has now been struck and it contains the exact ingredients in value. It is a small piece of gold about one-third of the size of an English farth- ing, octagonal in shape and very thin. It rests in a small jewel case, and on one side appears the inscription "S. d. N." (la Soclete des Nations) "1921," and on the other side "1 franc-or" (1 gold franc). It is 0.3225805 of a gramme of gold, 90 percent fine, and is worth 0.1925 of a dollar, ex- pressed in American currency, i^ll State contributions to the League of Nations, and all payments by the League, includ- ing salaries of the Secretariat, are reckoned on the basis of gold franc value, but the gold franc itself never having ex- isted In tangible form, a great many people have been per- plexed by the term. One example will show how the calcu- 255 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. lations are made. A short time ago, the British Government paid £9,422 10s, 4d. in sterling on account of its annual con- tribution. At the time of its receipt the rate of exchange was four dollars to the pound sterling and as there are 5.1826 gold francs to the dollar, Britain was credited with 195,326.86 gold francs as part of her contribution, which for the whole year is 1,041,666 gold francs. It was Sir Herbert Ames, the Financial Director of the League, who conceived the idea of designing this coin, and he made it octagonal in shape to represent the Council's member- ship of eight. He has presented the unique coin to the Secre- tary-General, Sir Eric Drummond. Third International Labor Conference * The International Labor Organization held its third Con- ference at Geneva from October 25 to November 19, 1921. It discussed and approved seven international conventions and eight recommendations, as follows: CONVENTIONS. 1. Legalizing a. rule for one day's rest in seven for In- dustry in general. 2. Prohibiting the use of white lead in interior painting (with some specified exceptions), and regulating* its use in exterior painting (white lead must not be more than 2 per cent, of the ingredients used). 3. Legalizing agricultural workers' right to combine. 4. Prohibiting employment of minors (under 14) dur- ing compulsory school hours. 5. Extending to farm workers the compensation laws now applicable to industrial workers. 6. Prohibiting employment of persons under 18 years of age as trimmers and stokers on ships. 7. Requiring regular medical examinations of persons under 18 years of age who are employed in ships. RECOMMENDATIONS. 1. Women engaged in agriculture shall be entitled to have nine hours of rest daily, and consecutive if possible. 2. Child laborers under 14 years of age shall have ten hours of consecutive rest daily; between 14 and 18 years, nine hours. 3. Women workers on farms shall be assured of a rest period before and after childbirth, and protected in it. ♦Women and children under 16 must not be employed In the manu- facture of paint where white lead is used. Countries now using white lead have six years in which to comply with these regulations. 256 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 4. Guarantees for specified improvements in the stand- ards of living for agricultural workers. 5. Plans outlined (or dealing with agricultural unem- ployment. 6. Agricultural workers shall have the benefit of social insurance laws such as now protect industrial workers. 7. Facilities for technical education in farming should be created and supported as generously as those which serve the needs of other workers. 8. All commercial establishments should have one weekly rest day. The Labor Office was requested to "institute a special inquiry into the internationa.1 aspect of the unemployment crisis, and the means of combating it." It was announced on November 1, 1921, that the Con- vention concerning night labor of women, adopted by the Labor Conference at Washington, November 28, 1919, has been ratified by the Governments of Greece, Rumania, Great Britain, India, Czecho-Slovakia and South Africa. The Washington Conference, Continued Wednesday, Nov. 16. FAR EASTERN PROBLEMS. On this day in a private session of the Conference as a Commit- tee of the Whole, the most important topic of the Confer- ence was presented by Dr. Sze, on behalf of the Chinese dele- gation. His proposals were prepared with the aid of two American advisers, Robert Lansing and Paul S. Reinsch, and it is understood that the Chinese demands were presented at this particular time by the advice of the American delega- tion. After a brief Introduction Dr. Sze's Proposals, ten m number, read as follows: In conformity with the agenda of the Conference, the Chinese Government proposes for the consideration of and adoption by the Conference the following general principles to be applied in the determination of the questions relating to China: 1. (a) — The Powers engage to respect and observe the territorial integrity and political and administrative independ- ence of the Chinese Republic, (b). China upon her part is prepared to give an undertaking not to alienate or lease any portion of her territory or littoral to any Power. 2. China, being in full accord with the principle of the so-called Open Door, or equal opportunity for the commerce and industry of all Nations having treaty relations with China, is prepared to accept and apply it in all parts of the Chinese Republic without execption. 9 257 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 3. With a view to strengthening mutual confidence and maintaining peace in the Pacific and the Far East the Powers agree not to conclude between themselves any treaty or agree- ment directly affecting China or the general peace in these regions without previously notifying China and giving to her an opportunity to participate. 4. All special rights, privileges, immunities or commit- ments, whatever their character or contractual basis, claimed by any of the Powers in or relating to China, are to be de- clared, and all such or future claims not so made known are to be deemed null and void. The rights, privileges, immuni- ties and commitments, now known or to be declared, are to be examined with a, view to determining their scope and validity and, if valid, to harmonizing them with one another and with the principles declared by this Conference. 5. Immediately, or as soon as circumstances will permit, existing limitations upon China's political, jurisdictional and administrative freedom of action are to be removed. 6. Reasonable, definite terms of duration are to be at- tached to China's present commitments which are without time limits. 7. In the interpretation of instruments granting special rights or privileges, the well established principle of con- struction, that such grants shall be strictly construed in favor of the graptors, is to be observed. 8. China's rights as a neuttal are to be fully respected in future wars to which she is not a party. 9. Provision is to be made for the peaceful settlement of international disputes in the Pacific and the Far East. 10. Provision is to be made for future conferences to be held from time to time for the discussion of international questions relative to the Pacific and the Par East, as a basis for the determination of common policies of the Signatory Powers in relation thereto. This statement of principles seems vague and as if formulated in haste. Together with them the following ex- planatory statement, prepared by one of the Chinese advisers, was given to the press; 1. This proposal is intended to be a reaffirmation of the extent of the territory of China as it existed when formal recognition was made of the Chinese Republic in 1913 and an effort to cancel all private agreements wholly Japanese Ju regard to certain portions, of China. Agreement on this prin- ciple would prevent China being defined as within the Great Wall and would give her Manchuria and Mongolia as part of her geographical limits. Sub-section (b) is a rider to the first statement and is a pledge on the part of China that she 258 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. will not alienate territory or lease any littoral and, further, that she will expect every power to support her in this position. 2. China seeks under this head to have the same prin- ciples applied in all parts of China, with Manchuria and Mongolia considered as integral parts of China, and wishes to give precisely the same status to all Powers in her do- main and to abolish the idea of spheres of influence and interest. 3. This principle is intended as a direct assault upon the Anglo-Japanese alliance, the Lansing-Ishii agreement and the so-called secret treaties of 1917 made between the Powers without the knowledge of the United States upon the subject of Shantung. This is regarded as the keystone of all the proposals. 4. This principle is intended simply as a call or de- mand that every agreement or understanding of whatever nature touching upon anything Chinese made between Powers shall be declared at Washington, and that here shall be in- augurated open diplomacy regarding the Far East and that hereafter everything shall be known as to the relations and treaties enjoyed by different countries. As an illustration of this, it is suspected by the Chinese that there is a secret agreement between Japan and France regarding the Eastern Railroad In Northern Manchuria. 5. This principle Is intended to bring about the revision of all treaties dealing with extraterritorial jurisdiction, and finally to remove the conception that China is a mere treaty territory. 6. This principle seeks to establish another of the things greatly desired by China — tariff autonomy and the right to levy tariff duties on imports the same as any other country. At present China can only Impose a, tariff of 6 percent ad- valorem on incoming products under treaty agreements, which have been in existence eighty years and have not been disturbed, despite changed conditions and the need for greater revenue. The fact that China cannot increase her tariff duties, the Chinese delegates assert, has prevented her going ahead in many ways, even though it gives equal opportunity to all countries. 7. As to the principle laid down in this proposal, the contention Is set up that China should have the same powers in regard to her railroads, mines and concessions generally as obtain in all Western countries, and when circumstances arise the universal world practice shall be followed in favor of grantors. In effect this principle is intended to eventually give China the control and ownership of her railroads. 259 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 8. This is intended to serve notice on the world that China shall expect the Powers to preserve her neutrality in a war in which she is not a part. This principle is inspired by the action of Japan in not observing the war zone laid down by her when Japan landed forces in Shantung and prosecuted military operations against Kiao-Chau in 1915 when Japan declared war against Germany. Instead of op- erating in the war zone the Japanese sent military forces first to "Weihsien, which was outside the war zone, and to Tsinanfu, the Capital of Shantung, thus occupying the whole line of railway to the capital. Tsinanfu is 256 miles from Kiao- Chau. 9. Proposes an arbitration commission to deal with the li'ar East similar to an agreement made between the United States and Great Britain in September, 1914, for the creation of a peace commission. 10. This principle is self-explanatory. The work of the Conference was being done in the com- mittees and in private conferences among the leaders. On the 17th Admiral Kato, spokesman for Japan, let it be known that Japan would prefer a naval ratio among the three Powers of 10-10-7, instead of 5-5-3, as proposed by Secretary Hughes; and that for partly sentimental reasons Japan would want to keep the warship Mutsu, built by national subscrip- tion, although Secretary Hughes had included it among the ships to be scrapped. On the 18th the British delegation made it plain that, in its opinion, the proposed tripartite agreement must be ac- companied by limitations upon the navies of France and Italy. On the same day the British Admiralty announced the suspension of all work on four new superdreadnoughts, which had been authorized by Parliament and on which work had been begun two weeks before. This meant the cessation of employment for 4,000 men and 200 firms. The four ships v/ere to cost $160,000,000. On the 19th in committee on Far Eastern Problems came the official comments from the various delegations on the Chinese ten points. ADMIRAL BARON KATO, on behalf of Japan, made the following statement: 1. It seems to the Japanese delegation that existing dif- fi( ulties in China lie no less in her domestic situation than in her external relations. We are anxious to see peace and unity re-established at the earliest possible moment, but we want to avoid all action that may be construed as an inter- vention in the internal affairs of China. (This is a reference to the fact that there are two hostile 260 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Governments in China, and that many of the provinces are virtually independent under military rulers.) All that this Conference can achieve is, it seems to us, to adjust China's foreign relations, leaving her domestic situ- ation to be worlced out hy the Chinese themselves. 2. The Japanese delegation wishes to assure the Chinese delegation and the whole Conference that Japan has every desire to cultivate the happiest relations with China. We are solicitous of malcing whatever contributions we are capa- ble of toward China's realization of her just and legitimate aspirations. We are entirely uninfluenced by any policy of territorial aggrandizement in any part of China. We adhere without condition or reservation to the principle of "The Open Door and Equal Opportunity" in China. We look to China in particular for the supply of raw materials essential to our industrial life and for foodstuffs as well. In the pur- chase of such materials from China, as in all our trade re- lations with that country, we do not claim any special rights or privileges and we welcome fair and honest competition with all Nations. With regard to the question of abolition of extra-terri- toriality, which is perhaps one of the most important que.=i- tions proposed by the Chinese delegation, it is our intention to join with other delegations in the endeavor to come to an arrangement in a. manner fair and satisfactory to all parties. We have come to this Conference, not to advance our own selfish interests; we have come to cv3-operate with all Nations interested for the purpose of assuring peace in the Far East and friendship among Nations. 3. The Japanese delegation understands that the prin- cipal object of the Conference is to establish in common ac- cord policies and principles which are to guide the future actions of the Nations here represented. Although we are ready to explain or discuss any problem which in the wisdom of the Conference is taken up, we should regret undue pro- traction of the discussions by detailed examination of in- numerable minor matters. Nov. 21. POSITION OF FRANCE. LAND ARMAMENTS. At the third plenary session of the Conference on this day came the opportunity promised to M. Briand to explain the attitude of France towards the question of limitation upon armaments. In introducing the French Premier Mr. Hughes said: "There remains another subject which sa far has not engaged our attention, and that is the subject of land arma- ment or military forces. "So far as the army of the United States is concerned, no question is presented. It has always been the policy of the United States (it is its traditional policy) to have the regu- 261- SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. lar military establishments upon the smallest possible basis. At the time of the armistice there were in the field and in training in the American Army upward of 4,200,000 men. At once upon the signing of the armistice demobilization began and it was practically completed in the course of the follow- ing year, and today our regular establishment numbers less than 160,000 men. "While, however, we have this gratifying condition with respect to the military forces in the United States, we fully recognize the special difficulties that exist with respect to mili- tary forces abroad. We fully understand the apprehensions that exist, their bases and also the essential conditions of national security which must appeal to all the Powers that are here represented." Following is the text of the speech* of PREMIER BRIAND: Gentlemen, you will readily admit that I, as a, delegate of France, should feel moved when rising to speak from this full-sounding platform, whence every word that is said goes to the attentive and anxious ear of the world and of all civil- ized people. I wish, first of all, to thank my colleagues of the Con- ference who, on the opening of this public meeting, so kindly allowed me to speak as the representative of my country. I shall endeavor to make it appear to your eyes and to the eyes of the 't^orld with its true, genuine face, as it is, that will show you that she is ready, and I might say perhaps more ready than any other country, to direct her attention and her earnest will to whatever steps may be thought de- sirable in order to insure final peace for the world. Nothing for my colleagues and myself would be more pleasant than to be able to tell you this: We bring here sacrifices to the fullest extent possible. We have our own security insured. We lay down arms. We should be so happy to be able to make that gesture in order to participate in the final dis- armament of the world. Unfortunately, we cannot speak in this way. I say also, unfortunately, we have not the right to do so. I shall briefly explain later on for what reasons. I shall tell you, for France, that she wants to make peace. If you want to make peace, there must be two people, yourself and the neighbor opposite. To make peace — I am speaking, of course, of land armament — it is not sufficient to reduce effectives and de- crease war material. That is the physical side, a. physical aspect of things. •The text here given Is the speech as reported In the papers of Novemtier 22. It does not differ in substance from the edited version in the official record, but Is somewhat more informal In manner. 262 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. There is another consideration which we have no right to neglect in such a, problem, that touches vital questions which are of the most serious character for the country con- cerned. It is necessary that besides this physical disarma- men there should be in those same circles what I shall call a, general atmosphere of peace. In other words, a moral disarmament is as necessary as the material one. I have the right to say this, and I hope to be able to prove it to you. And I have the right to say to you that in Europe, as it is at present, there are serious elements of in- stability, there are such conditions prevailing that France is obliged to face them, and to contemplate the necessary mat- ters from the point of view of her own security. I am now staying In a country many of the men of which have already enjoyed the opportunity of seeing France and knowing exactly what she is. They came to us in the most critical time of the war. They came and shed their blood — mingled their blood with ours, and they shared our life, and they have seen France, and they now know what France is. And certainly these mien have contributed to enlighten their own countrymen, and they have done everything to dispel and drive away those noxious gases which have been spread about, and under which certain people have been trying to mask and to conceal the true face of France. Here in this country you are living among States which do not know the entangled barriers and frontiers of Europe. Here you live in an immense expanse of. space. You do not know any factions on your own land. You have nothing to fear. So that it is rather difficult for some of you — it must be difficult for some of you— to realize what are the condi- tions at present prevailing in Europe, after war and after victory. I quite admit that every citizen of the United States should come and tell me this: "The war is won. Peace is signed. Germany has reduced her army to a great extent. Most of her war material has been destroyed. What is it that prevents peace from now reigning in Europe? Why is it that France keeps such a considerable army, abundantly pro- vided with war material?" Of course, in saying this only certain pt ople have got something at the back of their minds. They suggest that France also has some hidden thought — some hidden design. It has been said that France wanted to install in Europe a sort of military supremacy, and that after all she wanted to be so simply to take the place Germany occupied before the war. Gentlemen, perhaps this is the most painful heart- rending and cruel thing that a Frenchman can hear. And for them to say it, after the direful war from which 263 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. we have just emerged — unprovoked war which we had to undergo — to be again in the cruel necessity to give to the world only the appearance that we have perfidious intentions and military design — this, gentleman, constitutes, I may say, the most disheartening thing for us. If we had not the full confidence of those that know my country, those that have seen it — they can testify that not one word of it is true. If there is a country that has deliberately turned her steps toward peace, that wants peace with all her heart, believes in it with her entire faith — if there is a coun- try that does this, gentlemen, it is Prance. Since the armistice we have had many disappointments. France has had to wait for certain realizations which she has not been able to get. She has seen Germany digress — haggle over the signature which had been given. Germany has re- fused to stand by her pledged word. She has refused to pay compensation due for the devastated regions. She has de- clined to make the gesture of chastisement that, after all, every man of sense would expect after the horrors that we have witnessed. Germany has refused to disarm. At that time France was strong and Germany could not resist. Public opinion in France was naturally impatient; while under this provocation France remained perfectly cool. There was not one gesture on her part to aggravate the situ- ation. I may say here emphatically, in the face of the world, we have no hatred in our hearts, and France will do every- thing she can. She will use every means to prevent between Germany and herself a. recurrence of these bloody conflicts. She wishes for nothing else but that the two peoples should be able to live side by side in the normal conditions of peace. But, after all, we have no right to forget. We have .no right to abandon ourselves. We have no right to weaken our positions; we have no- right now to impair our strength to such an extent as to raise hopes in enemy hearts,; and by our weakness to encourage new wars. Gentlemen, I spoke a few moments ago of the moral aspect of disarmament, and I" referred in my remarks to Germany. I do not want to be unjust; nothing is further from my mind. But we know there is in Germany, there" is one part of Germany, that is for peace. There are many people, especially among the working classes, who want to work, who have had enough of this war, who have had. enough of war altogether, and are most anxious to settle down in peace, and also to set to work. We shall do every- thing to help that Germany, and if she wants to restore her balance in the bosom of a pacific republic and democratic in- stitutions, then we can help her, and we shall all be able to contemplate the future with feelings of security. But, gentlemen, there is another Germany, a Germany 264. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. which has not changed her mind and to which the last war has taught no lesson. That Germany keeps thoughts in the back of her mind; she has the same designs which she enter- tained before the war; she has kept the same preoccupations and she cherishes the same ambitions as the Hohenzollerns did. And how can we close our eyes to this? How can we ignore this state of things? This, gentlemen, is happening at our very doors, we have only got to look. This is happening but a few miles from us, and we follow the thoughts of the Germans, or cer- tain Germans, and the evolution which is taking place. And more than that, we have witnessed certain attempts to return to the former state of things. Nobody could be mistaken about the real bearing of whai was called the Kapp Putsch. We know very well that if it had succeeded, Germany would have returned to her pre-war state, and we do not know what might have happened, or, rather, we know too well what would have been the conse- quences of such a state of things. Gentlemen, a volume has been published by no less a man than Field Marshal LudendorfE, who still enjoys great authority in many German circles, and who is followed by a, great part of the elite in Germany, professors, philosophers, writers, etc. What do we read in this book? Gentlemen, I should not like to make too many quotations. I should not like to prolong this speech, and perhaps draw too much of your attention, but this is part of my brief, and it you are, like me, convinced that the moral element is of the utmost importance, you will allow^ me to read just two or three passages. This is the first quotation: "It is necessary that we should learn to undersland that we live in a warlike time, that struggle will remain forever for the single individual, as for the State, a natural phe- nomenon; and that the struggle is founded on the divine order of the world." In the same book Marshal Ludendorff produces these terrible words of von Moltke on the 11th of December, 1919: "Eternal peace is a dream. It is not even a beautiful dream, and war is one of the parts of the order of the world, such as it has been created by God. It is by war that are developed the noblest virtues of man, courage, disinterested- ness, devotion to duty and the spirit of sacrifice, up to the abandonment of one's own life. Without war the world would sink in the morass of materialism." And further, this is Marshal LudendorfE himself speak- ing now: "Herein lies an idea as indispensable to the political education of the German people as the knowledge of this fact, 265 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. that in the future war will always be the last and the only de- cisive factor in the settlement of political questions. This thought, complemented by the virile love of war, cannot be withheld from the German people by the Entente however much they may wish to take it away from us. War is the cornerstone of all political policy. It is the cornerstone of every form of future even, and chiefly of the future of the German people, who have been reduced to slavery." "The warlike qualities of the Prussian and German army have been put to the proof on the bloody battlefields. The German people need no other qualities for their moral reno- vation. The spirit of the former army must be the germ from which this regeneration will spring. Such, gentlemen, are the words used by the highest Ger- man authorities who have preserved, and I can quite under- stand it, the full part, the great part at least, of the confi- dence of the German people, and that is what we are listening to now. After a- war that has caused the death of millions of men, aftei; the sore wounds that have been inflicted and that are still bleeding in the sides of the countries of Europe, that is the sort of thing that is being taught at the very door of France. How can you expect that France should close her eyes to such words? 1 now come to the physical aspects of disarmament. I can quite understand that somebody might say it is not suffi- cient to harbor evil designs; to make war one must have ap- propriate means, because when it is a question of war enor- mous effectives are necessary; you must have the officers and non-commissioned officers; you must have plentiful material — rifles, guns, machine guns, artillery, &c. — and Germany has no longer any of these. Germany, from the point of view of effectives, just emerging from the war, from a, war where her men have been fighting for four years — and I should be the last to under- estimate the valor of her soldiers — our soldiers have had to face and to fight the German soldiers, and they know to what point the German soldier is able to carry his heroism; but Germany just issuing from the war, still has 7,000,000 men over there in Germany who have made the war. Of course, you will say they are not actually serving under the flag, they are not living in barracks. Certainly. Have these men any ofllcers and non-commissioned ofl^cers ready to be marshaled to the fleld? Is it possible to mobilize such an army tomor- row? To this question I answer "Yes," and I am going to explain it. Since the war, since the moment peace was signed, Germany has constituted a force, a so-called police force, which was intended for the maintenance of public prder, That force is called the Reichswehr. It is to include 266 aiCOND YEAR BOOK OF THE LEAGUE OF NATIONS. 100,000 men, and, in fact, does Include 100,000 men. But what men? They are nearly all officers or non-commissioned officers. I mean, gentlemen, regulars, all having served in or having belonged to the old army. Therefore, the cadres are ready there, the officers and non-commissioned officers are ready to marshal the army of tomorrow. And what is that army? Is it in conformity with the requirements of the Peace Treaty? Is it only for purposes of public order? No. According to secret instructions issued by the military authorities, the Relchswehr is to prepare not only for police purposes but also for war, and Is to train for war, with the necessary rehearsals and maneuvers. There is something more. Germany has gathered other forces. There is another group called Einwohnerwehr. This group includes almost all the men who are willing to serve their country In time of need, and, instead of being used only to preserve Internal order, it might be used for other purposes. The danger was so real that the Allies were obliged to send an ultimatum to Germany to demand this force should be disarmed. At another moment, under an organization called the Orgesch, which is an association for war, the Einwohnerwehr acquired such strength and such a store of arms that the Prime Minister of Bavaria, animated by a spirit of revolt, informed the world that he had at his disposal and he could raise in a,- short time an army of 300,000, plentifully provided with rifles, machine guns and artillery. Well, that force has been disorganized. The German Government has done Its duty, and nobody more than myself is ready to recognize it. It is only a duty on my part, a mere duty; a mere sense of fair play. I stated it in my own Parliament. I ana ready to recognize that the German Chancellor, Chancellor Wlrth, is a man of good-will, animated by fair purposes, loyal and frank, and that he has applied every endeavor, acting with no small merit on his part, in order to really realize a state of peace, and honor the signature of Germany. But this Government In Germany is weak, at any moment confronted with traps and snares. I may say that on our side we are ready to do everything in order to enable the German Government to restore Its people to normal conditions of peace. It really disbanded the Einwohnerwehr; but another formidable force was formed, the Sicherheltspolizei, or safety police, of 150,000 men. The force Is composed exclusively of regulars, officers, and non-commissioned officers, or at least non-commissioned officers ready to undergo a new period of military service. We demanded the dissolution of this force, but what happened? 267 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Sicherheitspolizei disappeared, but another appeared in its place — the Schutzpollzei; but it was just the same and in- cluded those 150,000 men. So that, instead of its being a local police force, it became a, general police force at the disposal of the Central Government, that could be used anywhere on German territory. This, with the Reichswehr, makes a total of 250,000 men, who, under the direction of regular officers and with daily instruction, are trained to be ready instantly in case of war. The men themselves are kept constantly under observation. These 7,000,000 men have not returned to civil life, to civil occupations entirely. They are grouped together in this marvelously ingenious way which the German people always have, when they want to achieve their purposes. They are called Freikorps, or former combatants' associations, and what not. Any day, any anniversary — and Germans are rather fond of anniversaries — is favorable in order to convene these men and marshal them, to see that you have got them under your hand ready to do the work that is to be done. Frenchmen know all this well, for it is happening at our door. And I will only give you an example to show you how rapidly these organizations might be put on a war footing. Just one example. When the Upper Silesian question reached a somewhat acute stage recently, within a few weeks, I might almost say within a few days, there were, out of these Frei Corps or other bodies, about 40,000 men ready with guns, machine guns, rifles, armored trains, and with most perfect military instruments, so that this force should have its fiill combatant value. These are facts, gentlemen. I am not noticing them and bringing themi here just to make my case better. They are facts that have been verified and that everybody can ascer- tain for himself. Therefore, as a question of fact and from the point of view of effectives, Germany can rise in a, few weeks, and perhaps almost in a few days and can begin to form her 6,000,000 or 7,000,000 men with their officers again and the non-commissioned officers are ready to do the work. Now I must ask the great people of the United States, so fond of justice, so noble in their purposes, to answer me when I tell them this: Suppose by your side, oh, American people, a Nation which has been for years and centuries in bloody conflict with you; and suppose that this Nation, you feel, is still ready, morally and materially, to enter into a new struggle. What would you do? Would you turn away your eyes? Would you close your eyes to a danger that was threatening you? Tou that are said to be .such a positive, such a precise people, would you close your eyes? Would you not desire to do everything in your power in order to .safeguard your life, anfi what is more, 268 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. your honor? Woulcl you do anything to weaken yourselves? No. There Is not one citizen in the whole United States who would not answer me: "No, never in the world!" France is looking- upon what is happening. France does not exaggerate. She is wily watching and waiting. I now come to the question of war material. We have been told that there was no more war material. It is true the commissions of control in Germany have done admirable work. A great many guns — artillery, I mean — have been de- stroyed. Some of the destruction has been supervised by the Allied officers. It is real. Other destruction has taken place, as we have been told. We might have a doubt. We are not quite certain. But we must give the opponents the benefit of the doubt, and we be- lieve the destruction on that side is practically completed. But the problem of war material is one that can easily be solved. You have seen, in the war, with what promptitude — and that was lucky, because if the help had not come so quickly we might have given way, finally — you have seen how quickly immense armies have come over to us, provided with the most modern material, and have fought on our side upon the battlefields. Well, what is Germany but a vast country of industry — industrially organized? Germany always had two aims. The first was trade, commerce. And that is only natural. The second was war. All her industries, all her manufactures, have been working to the full during the war, and they have developed since. Everything is ready in Germany, the plans, the designs the molds. Everything is there ready to insure a steady manufacturing of cannon, machine guns and rifles. Suppose that during a period of diplomatic tension, purposely pro- tracted for a number of weeks, certain of the nianufacturers begin to make war materials; they would be able to supply the armies for the beginning of a campaign. Thereafter pro- duction would increase. It is not only in Germany that indus- try must be reckoned with. Tou can make preparations out- side. In fact, preparations have actually taken place. In fact, great captains of industry or great financial magnates have bought important plants in Scandinavia and in other parts of Europe. It is easy enough to fabricate these guns without our seeing it, outside of our supervision. You know very well that it is impossible to estimate factory production accurately. You know very well that it is impossible to bring here the proof that Germany is not actually making or purchasing war materials. It is different from the navy. It is rather difficult to lay the keel of a ship in the stocks, to prepare the dockyards 26» SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. without the world knowing it. But suppose that was possi- ble, do you think you could launch a, capital ship without somebody being on the spot and knowing what was happen- ing? But the guns, the rifles, the machine guns — any in- struments used on the field of battle — they can be manufac- tured and cannot be controlled with any measure of certainty. Ah, gentlemen, tliis is not the first time in history that France has had to face a situation of this kind. We have known Prussia disarmed. And disarmed by whom? By Na- poleon. Well, that Prussia, which seemed practically dis- armed, which was harmless to all intents and purposes, we found her again on the battlefield and we were nearly bled white. How can we forget that? Of course, we know what is often said of the French people. It is often said that we are a frivolous Nation and that naturally, when the danger is passed, we turn our minds to other things — just as befits a frivolous people. Truth to tell, gentlemen, we are not the sort of men to keep our eyes steadily fixed on whatever is sad and depressing, such as matters of war. We have not been doing that since the war, but we have been too deeply wounded, I might almost say murdered, to forget the direful lesson which has just been taught us. Gentlemen, there are too many homes in mourning in the country, there are too many men in the streets that are dis- abled and maimed. Even if we wanted to forget we could not. Therefore, we have not the right and we do not intend to leave France defenseless. France must, to all intents and purposes, protect herself. Such is the situation as far as we are concerned. You will grant me, gentlemen, that it is serious enough. But that is not all. What about the rest of Europe? Apparently Eu- rope is at peace, although here and there on the ground cer- tain volumes of smoke just arising seem to indicate that the fire is not extinguished everywhere. 1 might say that this fire Is smoldering in certain parts of Europe and if France had not had an army war would already have broken out in Europe again. I will just draw your attention to one subject tp which I may refer later on, and that is the subject of Russia. Rus- sia is a country of 120,000,000 men, which is actually boiling over with anarchy. They have an enormous standing army, which Is in theory 1,500,000 men but which has a practical strength of 600,000 men. What will Russia do? Who can say what will happen on that side? About a, year and a half ago there was a wild rush of RussJa on Europe. Russia tried to rush Poland and through Poland to reach Germany, where some people were beckon- ing to her. Gentlemen, we had at that time terribly anxious 270 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. hours in Prance. If the barrier had not held good, if that anarchic army had been able to join the people who were calling them on the other side, what would have happened? Where would France be and where would the rest of Europe be? Happily there was the French Army, which was the guardian of order for the sake of the world. The situation in Russia is far from being settled. It is ;i. sort of permanent anxiety to everybody. What will become of that enormous army? What could, or might, Germany do in order to equip Russia and exploit her? We know not There are so many problems, economic, financial, &c., with which we have to deal that really, gentlemen, we do not know to which to turn, but the greatest problem of all, the greatest question, is of our safety, of our very life. First of all, we must be able to live. That is truly the great query for France. When I address you, gentlemen, you who are her friends, many of whom have been her allies, toward whom she has contracted a debt of eternal gratitude; you who have aided in safeguarding her life, her dignity, her liberty, her honor — when I address you and tell you this, you are indeed bound to recognize that the situation is serious. When we say we contemplate a reduction of naval arma ments we have freedom of decision and assurance in our hearts and minds. We are speaking between friends. There is no threat of war; if there is any menace to peace it is so far distant that you can hardly conceive it, and yet you have not assumed the right of ignoring this danger altogether. Tou intend to keep your navies to the extent necessary to defend your liberties and insure your life. If you do that, gentlemen, on the sea, what shall we do when the danger is there at our doors and hanging over our heads? I may say that I have always been in favor of peace; I have assumed powers for the sake of peace in very diflicult conditions. Where my country was feeling natural impatience at the state of things, I formally attached myself to the cause of peace. I fastened my heart on that noble task, and I may say that if ever peace is to be disturbed in the world, I shall not be the one to disturb it. But, gentle- men, precisely because I have urged everybody on the road of peace, because I have done everything in my power in order to obtain peace, I feel all the more the great weight of the responsibility which I have assumed, and if tomorrow, because I had been too optimistic, I saw my country again attacked, trampled under foot, bleeding because I had weak- ened her, gentlemen, I should be a most despicable traitor. It is that situation which we have got to take into ac- count, gentlemen, and the weight of the responsibilities with which we are burdened must affect our action. Only the other day the course of events turned in such a 271 SECOND YEAR BQOK OF THE LEAGUE OF NATIONS. way that the tension became acute, as you know, in Upper Sile.sia. I have already referred to this subject. Germany, which did not think that the French people were ready to undertake a military operation, suddenly informed us that she was going to send the Reichswehr to the disputed terri- tory in Upper Silesia in order to preserve order. These were momentous times for us, and, although I have been through many critical times in my life, I may say that no hour was perhaps of more importance than that, and that I clearly and definitely made up my mind, and I told Germa,ny that such a thing was not possible, and that if Germany undertook a thing of the sort she would have to bear the consequences, and the language was understood. But, gentlemen, if I had spoken without having the French Army back of me, what- would my words have be- come? And if the -event had actually taken place, what would have become of Europe itself? Europe is still in a, troublous state. What would have become of young States, newly come to life, which have not yet attained their equi- librium? Who could say what such conflict might have be- come? That is the problem and that was the problem, and the struggle did not -take place because it was felt that there was still a sufficient force in Europe and in France to pre- serve order. Quite recently another attempt has been made, a, certain attempt at the restoring of the old order of things in the center of Europe, that might have set Are to the powder maga- zine again. Nohing happened, because the Allies were in perfect understanding and the incident was peaceably settled. Gentlemen, I give you these reflections for you to ponder over. You will see that there is nothing in that that would draw us aside from the path that leads to flnal peace. I apologize for having been with you so long and for having so trespassed upon your attention. Perhaps at another time the President will be less inclined to allow me to speak. The thought of reducing armaments, which is the noble purpose of this conference, is not one to which we are indiffer- ent. We have shown it already. Immediately after the armis- tice demobilization began, and demobilization began as rapidly and as completely as possible. According to the military laws of France there are to be three classes of men under the colors for a three years' term of military service. That law is still extant; that law is still valid. It has not been abro- gated yet, but the Government has taken the responsibility to reduce to two years the time spent under the flag, and in- stead of three classes — three generations of young men — we have only two undergoing military service. It is therefore an immediate reduction by one-third that SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. has already taken place in the effectives — and I am speaking of the normal effectives of the home forces, leaving aside troops needed for colonial occupation or obligation imposed by treaty in the Rhineland or elsewhere. This movement has by no means ended, and in the future we have plans in order to restrict further the extent of our armies. In a few days it is certain that the proposals of the Government will be passed in the Chamber, in order to reduce further the military service by half. That is to say, there will be only one class and a half actually serving. The domestic French army would be therefore reduced by half, but If anybody asks us to go further, to consent to other reductions, I should have to answer clearly and defi- nitely that it would be impossible for us to do it without exposing ourselves to a most serious danger. You might possibly come and tell us "This danger that you are exposed to, we see it, we realize it and we are going to share .it with you. We are going to offer you all means — put all means at your disposal in order to secure your safety." Immediately, if we heard those words, of course, we would strike upon another plan. We should be only too pleased to demonstrate the sincerity of our purpose. But we understand the difficulties and the necessities of the states- men of other countries. We understand the position of other peoples who have also to face difficult and troublous situ- ations. We are not selfish enough to ask other peoples to give a part of their sovereign national independence in order to turn it to our benefit and come to our help. We do not ex- pect it; but (here I am appealing to your sense of justice), if France is to remain alone, facing the situation such as I have described — and without any exaggeration — you must not deny her what she wants in order to insure her security. You must let her do what she has to do, if the need arises and if the time comes. I should be the last one here to try to restrict the noble endeavors which are being made here in order to limit arma- ment in the conference which has been convened, with such noble purposes in view, and I should like to be able to say that I foresee no limit, no restriction to your labors and to the results which you may achieve. Any question here can be debated and can be resolved upon, but I must draw your at- tention to one thing: moral disarmament .of France would be very dangerous. Such a disarmament would be a. most unfavorable factor for hastening the hour when peace shall be definitely estab- lished in Europe and throughout the world. We have to know, however, that France is not morally 273 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Isolated, that she still has with her the men of good-will, and the hearts of all people who have fought with her on the same hattlefield. The true condition of a, moral disarmament in Germany — I mean to say I am referring to these noxious elements of which I have already spoken — the true condition at this time of disarmament in Germany lies in the fact that it should be known over there that Prance is not alone, and that the poisonous propaganda destined to disfigure the face of France will beat itself against impassable walls, and that those who were with us yesterday are with us morally today. If it is known in Germany that France is not morally alone, the new elements of German democracy, the sensible men who are trying to strengthen the Republic, will gain the upper hand; and the words of anger, the words of revenge, will 'be simply preached in the wilderness. It will be impos- sible for Germany to reconstruct an army, and she will be able to install democratic institutions, and then we can all hope for final conditions of peace. Everything that France can do in this direction she will do. In fact, she has already done much. She did not hesi- tate to open conversations with the German Government in order to settle this painful question of reparation for the devastated regions. Everything has been done and will be done in order to restore normal conditions, and the hour will come when everything will be settled, but the hour has not come yet. If by direction given to the labors of the conference it were possible somewhere over there in Europe — to say that the outcome of this conference is an implied censure of the armament of France — if it were possible to point out Prance is the only country in the world that is still imperialistic, is the only country that opposes final disarmament, then, gentlemen. Indeed this conference would have dealt a terrible blow to the cause of peace; but I am quite sure nothing is further from your minds and from your intentions. If, after listening to this argument, after weighing the reasons which you have Just heard, you consider that they are valid, then, gentlemen, you will agree with me and say that Prance cannot possibly do anything but what she has actually done. The leaders of the various delegations followed M. Briand with assurances that, under conditions like those of 1914, France would again receive aid and sympathy. Mr. Balfour agreed that "moral disarmament" among the people of the naval powers had made some naval disarmament possible. He would not "venture to offer an opinion" upon M. Briand's belief that there could be no similar disarmament on land without a moral disarmament in Russia and Germany. The 274 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. British Empire had defended the liberties of the world and of France in particular at the cost of a million men killed oi» the battlefield and over two millions more maimed and wounded. "We grieve over the sacrifice; we do not repent it. Under similar circumstances we would make that sac- rifice again." Senator Schanzer said that Italy's army was to be re- duced to 175,000 men and 35,000 colonials (colored troops). Baron Kato said that laud armaments of each State "should be determined by its peculiar geographical situation and other circumstances," and that Japan intended to retain only land armaments that are needed for purely defensive purposes. Baron de Cartier referred to Belgium's military treaty with Prance in 1920 as "purely for defensive purposes." Mr. Hughes, in a brief but spirited closing address, remarked: "It is evident from what M. Briand has said that what is essential at this time, in order that we may achieve the great ideal, is the will to peace. And there can be no hope of a will to peace until institutions of liberty and justice are secure among all peace-loving people. "May I say, in response to a word which challenged us all as it was uttered by M. Briand, that there Is no moral isolation for the defenders of liberty and Justice?" In connection with M. Briand's eloquent speech, it should be noted that already in committee conferences on Novem- ber 18 it was known that France would oppose a limitation upon submarines, and would ask for a capital ship tonnage equal to Japan's 300,000 tons, not because France wanted to build so many capital ships, but because France wished to have, as was said, "for defensive purposes" the lighter ton- nage that would go with so many capital ships. The British inference that French submarines were a threat to England was met by a question why Great Britain should need 500,000 tons of capital ships. The New York Times of November 23 carried this story: When it was said to Premier Briand today that the French demand for ample submarine equipment was regarded by the British in the manner indicated, he replied: "When the British retain 500,000 tons of capital ships, I do not say that it is against France, although England is a friend of America, an ally of Japan, and Germany and Rus- sia have no fleets. "Perhaps the English want their capital ships to fish for sardines. Well, we want submarines to study the flora at the bottom of the sea for the benefit of our botanical societies. "No, England is taking a precaution against X. France wishes to take a precaution against X. Capital ships cost; they are for the rich. Submarines don't cost much; they are for the poor. 276 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "England wishes to abolish submarines. We do not agree to that. If England wishes to abolish capital ships, we will accept in a, moment." Nov. 21. CHINA — On the same day in Committee on Far Eastern Problems, the Conference adopted an agreement on the general principles to be observed in the consideration of Chinese affairs. This agreement, first drafted by Mr. Root, was dis- cussed, amended, and finally approved in this form: It Is the firm intention of the Powers attending this Con- ference hereinafter mentioned, to wit, the United States of America, Belgium, the British Empire, France, Italy, Japan, the Netherlands and Portugal: (1) To respect the sovereignty, the independence and the territorial and administrative integrity of China. (2) To provide the fullest and most unembarrassed op- portunity to China to develop and maintain for herself effec- tive and stable government. (3) To use their influence for the purpose of effectually establishing and maintaining the principle of equal opportu- nity for the commerce and industry of all nations throughout the territory of China. (4) To refrain from taking advantage of the present conditions in order to seek special rights or privileges which would abridge the rights of the subjects or citizens of friendly States and from countenancing action inimical to the security of such States. This agreement was, in effect, the beginning of the for- mal end of the Anglo-Japanese alliance, as well as of the Lansing-Ishii Agreement. On the next day, November 22, the Committee, having in view the limitations on China's control of its revenues, im- posed by treaties and conventions with foreign powers, and believing that China cannot hope to have an effective and stable Government if deprived of adequate revenues from customs and other sources, named a sub-committee, consisting of a representative of each of the nine Powers to investigate the whole question of Chinese revenues. The chief restrictions upon China's revenues were sum- marized by her representatives as follows: 1. An agreement by treaties with all countries, dating back eighty years, compelling China to levy a tariff duty of not more than 5 per cent, ad valorem. This impost duty yields about $40,000,000 gold annually. China intends to suggest to the Conference that she be allowed to double this duty for a number of years and to gradually lower the Im- post after a certain period if conditions justify. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 2. Agreement, that custom receipts be banked in foreign banks, which does not permit Chinese banks to have any re- sources from this source except surpluses which are not de- posited with the native banks regularly and in amounts neces- sary to maintain China's credit. 3. Administration of the Salt Gabelle finances which are also deposited with foreign banks. Under the treaty agree- ment of 1913, the old consortium agreement, all revenue de- rived from the salt mines is placed in foreign banks which have the approval of the foreign inspector general and sur- pluses can only be released to the Chinese Government monthly by vote of the diplomatic body, which allows for the banking of the surpluses from the salt mines only after their personal claims have been satisfied. Chinese authorities say that the foreign banks hold the surpluses for long times and do not aid the Chinese institutions as quickly as they should. The revenues from this source are estimated at $45,000,000 gold annually. 4. Revenues from the railroads also are deposited in foreign banks to assure the payment of the coupons on the bonds, and the surplus is turned over to the Chinese Govern- ment irregularly and to the detriment of the credit of China. Of the new sub-Committee Senator Underwood was chairman. His associates were Baron de Cartier, Sir Robert Borden, Mr. Wellington Koo, M. Sarraut, Senator Albertini, Mr. Hanihara, Jonkheer Beelaerts van Blokland, and Cap- tain Vasconcellos. The first business of this, group was to consider Mr. Koo's proposals, first offered in the full Com- mittee, that the restoration of China's right to fix and differ- entiate tariff rates be effected in three separate steps, as follows: First. Beginning Jan. 1, 1922, the Chinese import tariff be raised from its present nominal level of 5 per cent, to an actual level of 12% per cent, ad valorem. Second. That China next be permitted, for a definite period, to fix and differentiate her own tariffs with full free- dom but within the limits of a. certain maximum of ad va- lorem rates. Third. That ultimatelj', but as soon as possible and after a certain period to be agreed upon, the right to fix and differentiate her tariff rates be restored to China, absolutely free and independent of foreign control and limitation. On this same day, November 22, the German Government issued an official denial of M. Briand's charges against Ger- many. This statement declares M. Briand's assertion that the Reichswehr is composed exclusively of officers and non- commissioned officers of the old army is incorrect. On the contrary, the bulk of the Reichswehr is made up of youths between the ages of 19 to 21, recruited since the war. 277 : SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The "Protection Police" (ScJiutzpoliz^i) was created at the bidding- of the Entente. The Reichswehr is wholly un- affiliated with the Schutzpollzei, which took the place of the security police when the Entente ordered the latter's disso- lution. The Schutzpollzei is primarily an agency to main- tain law and order, and is not subject to the authority of the Ministry of Defense. It takes orders solely from, the civilian ministries of the Federated States. Its numerical strength and its composition with reference to the ratio of officers and men are designated and supervised by the Entente Control Commission. The number of rifles and small arms it is per- mitted to have is carefully specified. It does not possess heavy-calibred arms suitable to convert into a unit of fight- ing troops. The Einwohnerwehr, or civilian guards, referred to by M. Briand, have been dissolved, and their arms have been surrendered and destroyed. Germany no longer possesses numerous arsenals equipped to turn out war materials. These plants are now limited to two or three required to keep the German Army supplied and their output is carefully supervised by the Entente Con- trol Commission. German-Polish Commission on Upper Silesia November 23. Early in November the German and Polish Governments each appointed three negotiators to frame a. Convention safeguarding minorities in Upper Silesia and administering economic guarantees. By authority oC the League Council M. Calender, formerly President of the Swiss Confederation, was named, November 14, as President of the Commission. He summioned the first meeting at Geneva, November 23. The Commission voted to organize sub -commissions, made up as far as possible of Upper Silesians, to draft proposals that will eventually be developed into a Convention. Each sub-commission will have a president, advisers and experts representing each race. The sub-commissions will work in different places In Silesia as follows: At Kattowitz: 1 . Railways. 3. Monetary Regime. 6. Coal and Mineral Products. 7. Associations of Employers and Employed. 8. Social Insurance. At Beuthen: 5. Customs Regime. 9. Frontier Permits. SEC OND YEAR BOOK OF THE LEAGUE OF NATIONS. 10. General Questions', such as Rights of Nationality and Domicile. 11. Protection of Minorities. At Oppeln: 4. Postal and Telegraphic Services. At Hindenburg. 2. Water and Electricity. Russian and British Treaties With Afghanistan On November 23 was announced the signing, at Kabul on the previous day, of a treaty between Great Britain and Afghanistan, which recognized the independence of the latter State, and omitted mention of the subsidy formerly paid by the Indian Government to the Ameer. The latter promised that no Russian Consulates should be allowed on the Afghan frontier, which flatly contradicted the terms of a. Russo- Afghan Treaty signed February 28, 1921. Washington Conference, Continued November 23. The Committee on Limitation of Arma- ments met, and named a. sub-committee to consider how ques- tions relating to the use of noxious gases and aircraft, and to the laws of war should be taken up. The sub-committee promptly voted to create three boards of experts, one for the study of each of those subjects. Nov. 25-30. CHINESE RESTRICTIONS— The Committee on Far Eastern Problems, following the example set on the Chinese tariff question, set up special inquiries upon the sub- jects of extraterritorial courts in China, and of alien post- offlces in China. The sub-committee on the post-offices, headed by Senator Lodge, reported on the 28th in favor of withdrawing all for- eign post-offices from China by January 1, 1923, under cer- tain conditions. The resolution, in which the date was left blank because assent had not been received from Tokio, was adopted by the Committee and is worded as follows: "A. Recognizing the justice of the desire expressed by the Chinese Government 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 abandonment, subject to the following conditions: "a. That an efficient Chinese postal service is main- tained. 279 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "b. That an assurance is given by the Chinese Govern- ment 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, 1926. "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 ex- .amine in those agencies all postal matter (excepting ordinary letters, whether registered or not, which upon examination appear plainly to contain only written matter) passing through them, witli a view to ascertaining whether they con- tain articles which are dutiable of contraband or which other- wise contravene the customs regulations or law.s of China." Statistics of existing alien post-offices in China show these numbers: Great Britain 12, France 13, Japan 124, United States 1. Final action of this resolution was taken by the Commit- tee on December 12 when, with the assent of Japan, the date of "January 1, 1923," was inserted. The Japanese delegation asked that a suitable number of Japanese experts be employed in the Chinese postal service, saying that at present 70 British subjects are employed in it, 20 Frenchmen and only 2 Japanese. The sub-committee on extraterritoriality, also headed by Senator Lodge, reported on November 29 a resolution adopted by the full Committee for an investigation by a commission of jurists. The first establishment of foreign courts in China followed the treaty of Nanking in 1842. The United States obtained extralei-ritorial rights there in 1844. Resolution for the establishment of a commission to in- vestigate and report upon extraterritoriality and the admin- istration of justice 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 toward the attainment by the Chinese Government of its expressed desire to reform its judicial sys- tem and to bring it into accord with that of Western Na.- 280 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Wons, and have declared that they are also "prepared to relinquish extraterritorial rights when satisfied that the state of the Chinese laws, the arrangements for their administra- tion and other considerations warrant" them in so doing; Being sympathetically disposed toward furthering in this regard the aspiration to which the Chinese delegation gave expression on November 16, 1921, to the effect that "imme- diately, or as soon as circumstances will permit, existing limi- tations upon China's political, jurisdictional and adminis- trative 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 ascertainment and appreciation of complicated states of fact in regard to the laws and the judicial system and the methods of judicial administration of China, which the 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 member) to inquire into the present practice of extraterritorial jurisdiction in China, and into the laws and the judicial system and the methods of judicial adminis- tration of China, with a view to reporting to the Governments of the several Powers above named in 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 Government to effect such legislation ^nd 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 con- stituted within three months after the adjournment of the Conference, with detailed arrangements to be hereafter agreed upon by the Governments of tlie Powers above named, and shall be instructed to submit its report and resolutions within one year after the first meeting of the committee; That each of the Powers above named shall be deemed free to accept or to reject all or any portion of the recom- mendations of the committee herein contemplated, but that in no case shall any of the said Powers make its acceptance of all or any part 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 extra- territorial rights in China, may accede to the resolution af- 281 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tecting extraterritoriality and the administration of justice in China by depositing within three months after the adjourn- ment of the Conference a written notice of accession with the Governm.ent 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 establishment of a commission to investigate and report upon extraterritoriality and the administration of justice in China, expresses its satisfaction with the sympathetic disposi- tion of the Powers hereinbefore named in regard to the as- pirations of the Chinese Government to secure the abolition of extraterritoriality from China, and declares its Intention to appoint a representative who shall have the right to sit as a member of the said committee, it being understood that China shall be deemed free to accept or to reject any or all of the recommendations of the Commission. Furthermore, China l.s prepared to co-operate in the work of this Commission and to afford to it every possible facility for the successful accom- plishment of its tasks. REMOVAL OF FOREIGN TROOPS; SHANTUNG. On the 28th and 29th Dr. Sze moved in the full Commit- tee that all foreign troops and foreign telegraph, wireless and police-wire systems be removed from Chinese soil. He de- clared that foreign troops, with the exception of legation guards, are in China without China's sanction. There were 4,500 Japanese soldiers in China, 2,700 of them being in Shantung. United States troops there number 1,464 men and 60 officers. British troops there number 1,006 men and 38 officers. French troops there number 1,214 men. In addition there were about 10,000 Japanese troops along the line of the Chinese Eastern Railway, 1,500 Japanese police and many secret agents in Manchuria. Twenty wire- less stations stood on Chinese soil without China's consent, three of them being American, at Peking, Tientsin, and Tong- shan. On November 30 Secretary Hughes was able to an- nounce that through the united good offices of Mr. Balfour and himself the Chinese and Japanese delegations had agreed to meet for the discussion of questions relating to Shantung and the leased territory of Kiao Chao. This subject could not be taken up by the Conference directly because all the Powers present except China and the United States were committed by their signatures to the Shantung chapter of the Treaty of Ver- sailles, and Great Britain, France, Italy and Japan by other agreements covering the same subject. 282 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. At intervals for a year and a half Japan had tried to secure China's consent to negotiate with it about the Shan- tung question. The Chinese Government had always refused to negotiate because Japan wished to prescribe conditions and the Chinese asserted their right to have Shantung with- out conditions. When the Washington Conference became a certainty Japan redoubled efforts to settle the matter at Toklo before the Conference should meet. The Chinese were even more determined to defer negotiations until they could be con- ducted at Washington. Notes exchanged in September, Oc- tober and November only served to Illustrate the complete deadlock between the two parties. The question was further complicated by the opposition of the strong Chinese Bankers Association to the Japanese policies and to the exclusive handling of Chinese Government loans by a, foreign con- sortium. There was also a slow-moving tug of war between American wireless interests on the one hand and similar British and Japanese interests on the other hand over the plans of the former group for the construction of a high- powered plant at Shanghai and other stations. Such was the situation which was, as the Chinese wished, first resolved at Washington on December 1, through the preliminary efforts of the representatives of the United States and Great Britain. At each conference of the Chinese and Japanese delegations representatives of the Governments of Great Britain and the United States were by agreement to be present as observers. At the Committee meeting, Nov. 29, Mr. Hanlhara for the Japanese offered the following official statement concerning their garrisons In China: The Japanese delegation wishes to explain, as succinctly as possible, why and how the Japanese garrisons in various parts of China have come to be stationed there. At the out- set, however, I desire to disclaim most emphatically that Japan has ever entertained any aggressive purposes or any desire to encroach illegitimately upon Chinese sovereignty in sending or maintaining these garrisons in China. (1) Japanese railway guards are actually maintained along the South Manchurlan Railway and the Shantung Rail- way. With regard to the Shantung Railway guards, Japan be- lieves that she has on more than one occasion made her posi- tion sufficiently clear. She has declared and now reaffirms her intention of withdrawing such guards as soon as China shall have notified her that a Chinese police force has been duly organized and is ready to take over the charge of the railway protection. The maintenance of troops along the South Manchurlan 2S3 SECOND YEAR BOOK. OF THE LEAGUE OF NATIONS. Railway stands on a different footing. This is conceded and recog-nlzed by China under the Treaty of Peking of 1905. (Additional agreement, Art. II.) It is a measure of absolute necessity under the existing state of affairs in Manchuria — a region which has been made notorious by the activity of mounted bandits. Even in the presence of Japanese troops those bandits have made repeated attempts to raid the rail- way zone. In a large number of cases they have cut tele- graph lines and committed other acts of ravage. Their lawless activity on an extended scale has, how- ever, been effectively checked by Japanese railway guards, and general security has been m.aintained for civilian resi- dents in and around the railway zone. The efflciency of such guards will be made all the more significant by a comparison of the conditions prevailing in the railway zone with those prevailing in the districts rem.ote from the railway. The withdrawal of railway guards from the zone of the South Manchurian Railway will no doubt leave those districts at the mercy of bandits, and the same conditions of unrest will there prevail as in remote corners of Manchuria. In such a situ- ation it is not possible for Japan to forego the right, or rather the duty, of maintaining railway guards in Manchuria, whose presence is duly recognized by treaty. (2) Toward the end of 1911 the first revolution broke out in China and there was complete disorder in the Hupeh district, which formed the base of the revolutionary opera- tions. As the lives and property of foreigners were exposed to danger, Japan, together with Great Britain, Russia, Ger- many and other principal Powers, dispatched troops to Han- kow for the protection of her people. This is how a small number of troops have come to be stationed at Hankow. The region has since been the scene of frequent disturbances. There was recently a clash between the North and South at Changsha, pillage by troops at Ichang and a mutiny of sol- diers at Hankow. Such conditions of unrest have naturally retarded the withdrawal of Japanese troops from Hankow. It has never been intended that these troops should re- main permanently at »Hankow and the Japanese Government have been looking forward to an early opportunity of effecting complete withdrawal of the Hankow garrison. They must be assured, however, that China will immediately take effec- tive measures for the maintenance of peace and order and for the protection of foreigners, and that she will fully assume the responsibility for the damage that may be or may have been done to foreigners. (3) The stationing of the garrisons of foreign countries in North China is recognized by the Chinese Government under the protocol relating to the Boxer revolution of 1900. 284 SECOND YEAR BOOK OF TIJS. LEAGUE OF NATIONS. Provided there Is no objection from the other CQuntries con- cerned, Japan will be ready, acting in unison with them, to withdraw her garrison as soon as the actual conditions war- rant it. (4) The Japanese troops scattered along the lines of the Chinese Eastern Railway have been stationed in connection with an interallied agreement concluded at "Vladivostok in 1919. Their duties are to establish communication between the Japanese contingents in Siberia and South Manchuria. It goes without saying, therefore, that these troops will be withdrawn as soon as the evacuation of Siberia by the Japa- nese troops Is effected. MEMORANDUM: At the present time Japan maintains In China proper ap- proximately 4,500 troops, located as follows: At Tientsin, two battalions, aprpoximately 1,200 men. At Hankow, one batfallon, approximately 600 men. In Shantung: At Tsinan, two companies, approximately 300 men. Along the Tslnan-Tsingtao Railway and at Tslngtao, four ia,ttallons, approximately 2,400 men. Total, 4,500 men. STATEMENT REGARDING THE MAINTENANCE OP JAPANESE iPOLICB IN MANCHURIA AND^THE TREATY PORTS OF CHINA: In considering the question of Japanese consular police In China, two points must be taken Into account: 1. Such police do not Interfere with Chinese or other foreign nationals. Their functions are strictly confined to the protection and control of Japanese subjects. 2. The most important duties with which the Japanese police are charged are: First, to prevent the commission of crimes by Japanese, and second, to find and prosecute Japa- nese criminals when crimes are committed. In view of the geographical proximity of the two coun- tries, It is natural that certain disorderly elements in Japan should move to China and, taking advantage of the present conditions in that country, should there undertake unlawful activities. When these lawless persons are caught In the act of crime by the Chinese police it is not difficult for that police force to deal with the case. The culprits are handed over as early as possible to the Japanese authorities for prosecution and trial. But when the criminals flee from the scene of their acts It is in many cases hard to discover who committed the crimes and what were the causes and circumstances that led up to their commission. This Is more difficult for the Chi- 285 SECOND YEAR BOOK QF THE LEAGUE OF NATIONS. nese authorities, as they have no power to make domiciliary visits to the homes of foreigners, who enjoy extraterritorial rights, or to obtain judicial testimony in due form from such foreigners. Without the full co-operation of the Japanese police, therefore, the punishment of crime is, in a. great many cases, an impossibility, and those who are responsible for law- breaking escape trial and punishment. This tendency is especially evident in Manchuria, in which region hundreds of thousands of Japanese are resident. In places where the Japanese police are stationed there are fewer criminal cases among Japanese than in places without Japanese police. Lawless elements constantly move to dis- tricts beyond the reach of Japanese police supervision. Apart from the theoretical side of the question, it will thus be observed that the stationing of Japanese police in the Interior of China has proved to be of'much practical useful- ness in the prevention of crimes sCmong Japanese residents, without interfering with the daily life of the Chinese or of other foreign nationals. The Japanese policing provides a protection for the Chinese communities which at present their own organization fails to provide. The Japanese delegation is in possession of knowledge and information as to the actual conditions prevailing in China and especially in Manchuria. However, it Is unneces- sary to go into details at the present stage. "Mr. Sze, on behalf of the Chinese delegation, stated that he would reserve the right to answer in detail the Japa- nese statements after he had had an opportunity of studying them. "The committee discussed the matter of wireless stations in China and decided to refer it to the sub-committee on draft to report their recommendations as to the expression of the sense of the full Committee with respect to these stations, with authority to include in their recommendation such sug- gestion for the constitution of special committees of experts in relation to any phase of the subject as may be deemed advisable. Leased China Territories December 3. The Committee on Far Eastern Problems listened to Mr. Koo's discussion of the manner in which the murder of two German missionaries in Shantung led to a series of aggressions upon Chinese territory. First, Germany constrained the Chinese Government to grant a lease for ninety-nine years of the Bay of Kiao-Chao in the Shantung Province on March 6, 1898. This was closely followed by a demand on the part of Russia for the lease of the Liaotung Peninsula, in which are found the ports of Port Arthur and 286 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Dalny, along with the demand for the right of building a railway, to be guarded by Russian soldiers, traversing the Manchurian Province from Port Arthur and Dalny to join the Trans-Siberian Railway to Vladivostok. This was later the cause of the Russo-Japanese War, which resulted in 1905 in the transfer of those territories to Japan with the consent of China. The lease of Port Arthur and Dalny to Russia was originally drawn to expire in 1925, but in 1915 Japan forced the Chinese Governnaent to extend the term to ninety-nine years. The Treaty of Versailles gave to Japan all German rights and properties at Kiao-Chao and in the Shantung rail- way and mines without reservation or qualification. Follow- ing the lease of Kiao-Chao Bay to Germany and that of Port Arthur and Dalny to Russia, France obtained from China on April 22, 1898, the lease of Kwangohouwan on the coast of Kwangtung Province for ninety-nine years, and Great Britain the lease also for ninety-nine years of an extension of Kow- loon and the adjoining territory and waters close to Hong- kong on June 9, 1898, and the lease "for so long a period as Port Arthur should remain in the occupation of Russia," of Jthe port of Wei-Hai-Wei on the coast of Shantung on July 1, 1898. Both Great Britain and France based their, claims for the leases on the ground of the necessity of preserving the balance of power in the Far East. The Chinese delegation asked for the annulment of all these leases. The Japanese spokesman promised a withdrawal from Shantung, but not from Port Arthur and Southern Manchuria. Mr. Balfour Intimated that Great Britain might withdraw from Wei-Hai-Wei, but not from Kowloon. The French representative said that France would join in "the collective restitution of leased territories," which meant Kwangohouwan. On December 7 the Committee adopted two notable reso- lutions: 1. Pledging the Powers to respect China's rights as a neutral In "future wars to which China is not a party." 2. Giving to the Chinese Ministry of Communication all unauthorized foreign radio stations, -providing that fair com- pensation be given to the owners. Radio Stations in China December 7. The resolutions about radio service were as follows: The repre.sentatives of the Powers hereinafter named participating in the discussion of Pacific and Far Eastern questions in the Conference for Limitation of Armament, to wit: The United States of America, Belgium, the British Em- 287 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. pire, China, France, Italy, Japan, the Netherlands and Por- tugal, Have resolved: 1. That all radio stations in China, whether maintained under the provisions of the International Protocol of Sep- tember 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 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 commercial, personal or un- official messages, including press matter, until the Chinese Government has given notice of the termination of the in- terruption. 2. All radio stations operated within the territory of China by a foreign Government or the citizens or subjects thereof under treaties or concessions of the Government of China, shall limit the messages sent and received by the terms of the treaties or concessions under which the respec- tive stations are maintained. 3. In case there be any radio station maintained in the territory of China by a foreign Government or citizens or sub- jects thereof without the authority of the Chinese Govern- ment, such station and all the plant apparatus and material thereof shall be transferred to and taken over by the Govern- ment of China to be operated under the direction of the Chi- nese Ministry of Communications upon fair and full compen- sations 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 territories, In the South Manchuria Railway zone or in the French concession at Shanghai, they shall be regarded as matters for discussion between- the Chinese Government and the Governmen.t concerned. 5. The owners or managers of all radio stations main- tained in the territory 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 ar- rangement to avoid interference in the use of wave lengths by wireless stations in China, subject to such general arrange- ments as may be made by an international conference con- vened for the revision of the rules established by the Inter- national Radio Telegraph Convention signed at London, July 5i 1912. 288 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Persia, and the Fight for Oil Concessions. The revolution in Persia in Febru&,ry, 1921, seems to have facilitated an economic effort on the part of the Standard Oil Company to obtain concessions in Northern Persian oil fields, hitherto in monopolistic possession of the Anglo-Persian Oil Co. Keen competition between these companies, with which the Shell-Royal Dutch group should be enumerated, went on for months in Persia, Azerbaijan, and Mesopotamia. The Governments of Great Britain and the United States were not disinterested spectators, as is shown by Secretary Colby's let- ter to Lord Curzon, Nov. 20, 1920 (See Appendix). Standard Oil and Royal Dutch were also bidding against each other in Czecho-Slovakia. It was announced in London on November 27, 1921, and again on Dec. 2, that friendly negotiations were proceeding between British and American interests in Persia; that there would be no interference with the Anglo-Persian Co.'s opera- tions in southern and eastern Persia; that oil concessions ni northern Persia had been granted to the Standard Oil Co. for fifty years; and that the whole question of remaining Persian oil concessions must be settled by diplomatic representatives of the Powers concerned. It was reported that under the Standard Oil concessions in Persia, the Persian Government would receive 12 per cent, of the gross profits. In these ob- scurely reported events may be a nest of new wars. Treaty Between Great Britain and Catholic Ireland. December 6, at London, Lloyd George and others for the British Ministry and the representatives of the Irish Sinn Fein affixed their names to a. treaty of peace between Great Britain and Ireland which was speedily approved in the House of Commons, and was approved in the Dail Eireann on January 7, 1922, after bitter argument by a. vote of 64 to 57. As this treaty adds a member to that league of nations which is called the British Empire, and will probably eventually add also a new member to the Geneva League of Nations, its text is here reproduced. ARTICLE I. Ireland shall have the same constitutional status in the community of nations known as the British Empire, as the Dominion of Canada, the Commonwealth of Australia, the Dominion of New Zealand and the Union of South Africa, with a Parliament having powers to make laws for peace and or- der and good government in Ireland, and an executive re- sponsible to that Parliament, and shall be styled and known as the Irish Free State. 10 289 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ARTICLE II. Subject to provisions hereinafter set out, the position of the Irish Free State in relation to the Imperial Parliament, the government and otherwise shall be that of the Dominion of Canada, and the law, practice and constitutional usage governing the relationship of the Crown or representative of the Crown and the Imperial Parliament to the Dominion of Canada shall govern their relationship to the Irish Free State. ARTICLE III. A representative of the Crown in Ireland shall be ap- pointed in like manner as the Governor-General of Canada and in accordance with the practice observed in making such appointments. ARTICLE IV. The oath to be taken by the members of the Parliament of the Irish Free State shall be in the following form: "I do solemnly swear true faith and allegiance to the constitution of the Irish Free State as by law established, and that I will be faithful to His Majesty King George V and his heirs and successors by law, in virtue of the common citizenship of Ireland with Great Britain and her adherence to and membership of the group of nations forming the Brit- ish Commonwealth of Nations." ARTICLE V. The Irish Free State shall assume liability for service of the public debt of the United Kingdom as existing at the date thereof and toward the payment of war pensions as existing on that date, in such proportion as may be fair and equitable, having regard for any just claims on the part of Ireland by way of set-off or counter-claim, the amount of such sums being determined, in default of agreement, by the arbitration of one or more independent persons being citizens of the British Empire. ARTICLE VI. Until an arrangement has been made between the British and Irish governments whereby the Irish Free State under- takes her own coastal defense, defense by sea of Great Britain and Ireland shall be undertaken by His Majesty's im.peria/ forces, but this shall not prevent the construction or main tenance by the Government of the Irish Free State of such vessels as are necessary for the protection of the revenue ot the fisheries. The foregoing provisions of this article shall be reviewed at a. conference of representatives of the British and Irish Governments to be held at the expiration of five years from the date hereof, with a view to the undertaking by Ireland of a share in her own coastal defense. 290 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ARTICLE VII. The Government of the Irish Free State shall afford to His Majesty's imperial force — (a) In time of peace such harbor and other facilities as are indicated in the annex hereto, or such other facilities a? may from time to time be agreed between the British Gov- ernment and the Government of the Irish Free State; and, (b) In time of war or of strained relations with a for- eign power, such harbor and other facilities as the British Government may require for the purposes of such defense, as aforesaid. ARTICLE VIII. With a view to securing observance of the principle of international limitation of armament, if the Government of the Irish Free Stale establishes and maintains a military defense force, the establishment thereof shall not exceed in size such proportion of the military establishments main- tained in Great Britain as that which the population of Ire- land bears to the population of Great Britain. ARTICLE IX. The ports of Great Britain and the Irish Free State shall be freely open to the ships of the other country on the pay- ment of the customary port and other dues. ARTICLE X. The Government of the Irish Free State agrees to pay fair compensation on the terms not less favorable than those accorded by the act of 1920 to judges, officials, members of the police forces and other public servants who are dis- charged by it or who retire in consequence of the change of government effected in pursuance of the hereof paragraph: Provided that this agreement shall not apply to members of the auxiliary police force or persons recruited in Great Britain for the Royal Irish Constabulary during the two years next preceding the date hereof. The British Government will assume responsibility for such compensation or pensions as may be payable to any of these excepted persons. ARTICLE XI. Until the expiration of one month from the passing of the act of Parliament for the ratification of this instrument the powers of the Parliament and Government of the Irish Free State shall not be exercisable as respects Northern Ire- land, and the provisions of the Government of Ireland Act of 1920 shall, so far as they relate to Northern Ireland, remain of full force and effect, and no election shall be held for the return of members to serve in the Parliament of the Irish 291 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Free State for the constituencies of Nortlaern Ireland unless a resolution is passed by both Houses of Parliament of Northern Ireland in favor of holding such elections before the end of said month. ARTICLE XII. If before the expiration of said month an address is presented to His Majesty by both Houses of Parliament of Northern Ireland to that effect, the powers of the Parliament and Government of the Irish Free State shall no longer ex- tend to Northern Ireland, and the provisions of the Govern- ment of Ireland Act of 1920 (Including those relating to the Council of Ireland) shall, so far as they relate to Northern Ireland, continue to be of full force and effect, and this in- strument shall have effect, subject to the necessary modifi- cations. Provided that If such an address is so presented a com- mission consisting of three persons, one to be appointed by the Government of the Irish Free State, one to be appointed by the Government of Northern Ireland and one, who shall be chairman, to be appointed by the British Government, shall determine in accordance with the wishes of the inhabitants, so far as may be compatible with economic and geographic conditions, the boundaries between Northern Ireland and the rest of Ireland, and for the purposes of the Government of Ireland Act of 1920 and of this instrument the boundary of Northern Ireland shall be such as may be determined by such commission. ARTICLE XIII. For the purpose of the last foregoing article the powers of the Parliament of Southern Ireland, uiider the Government of Ireland Act of 1920, to elect members of the Council of Ireland shall after the Parliament of the Irish Free State is constituted be exercised by that Parliament. ARTICLE XIV. After the expiration of said month, if no such address as mentioned in Article XIII hereof is presented, the Parlia- ment of the Government of Northern Ireland shall continue to exercise as respects Northern Ireland the powers conferred upon them by the Government of Ireland Act of J-920, but the Parliament of the Government of the Irish Free State shall in Northern Ireland have in relation to matters in re- spect of which the Parliament of Northern Ireland has not the power to make laws under that act (including matters which under said act are within the jurisdiction of the Coun- cil of Ireland) the same powers as in the rest of Ireland, sub- ject to such other provisions as may be agreed to in the man- ner hereinafter appearing. 292 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ARTICLE XV. At any time after the date hereof the Government of Northern Ireland and the Provisional Government of South- ern Ireland, hereinafter constituted, may meet for the pur- pose of discussing provisions, subject to which the last of the foregoing article is to operate in the event of no such address as is herein mentioned being presented, and those provisions may include: (a) Safeguards with regard to patronage in Northern Ireland. (b) Safeguards with regard to the collection of revenue in Northern Ireland. (c) Safeguards with regard to import and export duties affecting the trade and industry of Northern Ireland. (d) Safeguards for the minorities in Northern Ireland. (e) Settlement of financial relations between Northern Ireland and the Irish Free State. (f) Establishment and powers of a. local militia in Northern Ireland and the relation of the defense forces of the Irish Free State and of Northern Ireland, respectively. And if at any such meeting provisions are agreed to the same shall have effect as if they were included among the provisions subject to which the powers of Parliament and of the Government of the Irish Free State are to be exer- cisable in Northern Ireland under Article XIV hereof. ARTICLE XVI. Neither the Parliament of the Irish Free State nor the Parliament of Northern Ireland shall make any law so as either directly or indirectly to endow any religion or prohibit or restrict the free exercise thereof or give any preference or impose any disability on the account of religious belief or religious status, or affect prejudiciall^j the right of any child to attend school receiving public money, without at- tending the religious instruction of the school, or make any discrimination as respects state aid between schools under the management of the different religious denominations, or divert from any religious denomination or any educational institution any of its property except for public utility pur- poses and on the payment of compensation. ARTICLE XVII. By way of provisional arrangement for- the administra- tion of Southern Ireland during the interval which must elapse between the date hereof and the constitution of a parliament and a government of the Irish Free State in ac- cordance therewith, steps shall be taken forthwith for sum- moning a meeting of the members of Parliament elected for the constituencies in Southern Ireland since the pa.ssing of 293 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the Government of Ireland Act in 1920 and for constituting a provisional government. And the British Government shall take steps necessary to transfer to such provisional govern- ment the powers and machinery requisite for the discharge of its duties, provided that every member of such provisional government shall have signified in writing his or her ac- ceptance of this instrunaent. But this arrangement shall not continue in force beyond the expiration of twelve months from the date hereof. ARTICLE XVIII. This instrument shall be submitted forthwith by His Majesty's Government for the approval of Parliament and by the Irish signatories to a meeting summoned for the purpose of members elected to sit in the House of Commons of South- ern Ireland, and, if approved, it shall be ratified by the neces- sary legislation. Signed on behalf of the British delegation: Lloyd George Austen Chamberlain Birkenhead Winston Churchill Worthington Evans Hamar Greenwood Gordon Hewart On behalf of the Irish delegation: Art of Griobhtha (Arthur Griffith) Michael O. O. Sileain (Michael Collins) Riobard Barton (Robert C. Barton) E. S. Dugan (Eamon J. Duggan) Seorsa Ghabgain ui Dhubhthaigh (George Gavan Duffy). Dated the 6th of December, 1921. ANNEX TO THE TREATY. An annex is attached to the Treaty. Clause 1 specifies that Admiralty property and rights at the dockyard port of Berehaven are to be retained as at present date, and the harbor defenses and facilities for coastal defense by air at Queenstown, Belfast Lough and Loughswilly to remain un- der British care. Oil fuel storage at Haulbowline, Rathmul- len, is to be offered for sale to commercial companies under guarantee that purchasers shall maintain a, certain minimum stock for Admiralty purposes. Clause 2 provides that a convention shall be made be- 294 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tween the two governments to give effect to the following conditions: That submarine cables shall not be landed or wireless stations for communication with places outside of Ireland established except by agreement with the British Government; that existing cable rights and wireless conces- sions shall not be withdrawn except by agreement with the British Government, and that the British Government shall be entitled to land additional submarine cables or establish additional wireless stations for communication with places outside of Ireland; that lighthouses, buoys, beacons, etc., shall be maintained by the Irish Government and not be re- moved or added to except by agreement with the British Government; that war signal stations shall be closed down and left in charge of care and maintenance parties, the Gov- ernment of the Irish Free State b^ing offered the option of taking them over and working them for commercial pur- poses, subject to Admiralty inspection, and guaranteeing the upkeep of existing telegraphic communication therewith. Clause 3 provides that a convention shall be made be- tween the two governments for the regulation of civil com- munication by air. Washington Conference, Continued. December 8. CHINA AND OPEN DIPL03I ACY~In the Committee on Far Eastern Problems, Mr. Koo, discussing Para- graph 3 of the Chinese proposals of November 16 and the four Root resolutions of November 21, aslced for assent to the principle that the Powers would make no agreements about China without consulting the Chinese Government. Mr. Balfour and Mr. Hanihara thought that Mr. Koo's proposal was too sweeping and that the Root resolutions covered the subject satisfactorily. "Sir Auckland Geddes suggested that to the terms of the four resolutions adopted on November 21 should be added a fifth as follows: 'To enter no treaty, agreement, arrangement or understanding either with one another or individually or collectively, with any other Power or Powers, which would infringe or impair the principles which they have herel'' declared.' "Mr. Balfour said he thought it was worth while for him to state, in order that it might appear on the record.'' of the Committee, that on October 31, 1921, the Parliamen- tary Under Secretary of the Foreign OfHce had made the fol- lowing declaration in the House of Commons, 'the policy of spheres of influence in China has been superseded by one of international co-operation, and the further development o'' this policy will no doubt form one of the subjects of dis- cussion at Washington.' 295 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "In relation to the formula drafted by Sir Auckland Geddes, Mr. Hanihara stated in substance that he was in full accord with the spirit of the formula proposed. How- ever, he would state his observations on a few points. "Firstly, that the formula would not only be unnecessary in view of the fact that the principle embodied in that had already been stated most clearly in the first item of the Root resolution, but it might weaken the force of that reso- lution. "Secondly, that in the present form all Powers who were party to the resolution were to be bound in their actions by the formula, but at the same time China would be left free to enter into any treaties or other arrangements she desired. He wished to look back to the history and to say that on several occasions China had entered into agreements with various countries which had proved to place limitations upon her own administrative integrity which caused many diffi- culties in her foreign relations. "Thirdly, that if the present formula was adopted, criti- cisms might be incurred that the sovereign rights of the Powers party to the resolution were subject to limitation, and "Fourthly, that publicity has been assured by Article XVIII of the Covenant of the League of Nations, which would serve the purpose of the present formula sufficiently and effectively. "Mr. Hanihara, therefore, proposed that the wording of the resolution should be so phrased that China also be bound in her actions in the'same manner as the other Powers con- cerned, and, further, that the resolution, if it is to be adopted, should not be incorporated with the Root resolution. "After discussion, the resolution suggested by Sir Auclc- land Geddes, with slight modifications, was adopted, as fol- lows: "That the Powers attending this Conference, herein- after mentioned, to wit, the United States of America, Bel- gium, the British Empire, China, France, Italy, Japan, the Netherlands and Portugal declare that it is their intention not to enter into any treaty, agreement, arrangement or un- derstanding, either with one another or individually or col- lectively, with any Power or Powers which would infringe or impair the principles which have been declared by the reso- lution adopted November 21 by this Committee." At the fourth plenary session of the Conference on De- cember 10 the four Root resolutions (November 21) and the foregoing auxiliary resolution (Becember 8) were formally approved; so also were the Committee resolutions of Novem- ber 29 concerning extraterritorial rights in China, and of December 7 concerning China's rights as a neutral. 296 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The Four-Power Treaty. The Conference then assented, December 10, to the text of a four-power treaty for the maintenance of peace in the Pacific, in the following form: The Xlnlted States of America, the British Empire, Prance and Japan, with a view to the preservation of the general peace and the maintenance of their rights in relation to their insular possessions and insular dominions in the regions of the Pacific Ocean, have determined to conclude a treaty to this effect and have appointed as their plenipotentiaries: Who having communicated their full powers, found in good and due form, have agreed as follows: ARTICLE 1. The high contracting parties agree as between theni- selves to respect their rights in relation to their insular pos- sessions and insular dominions in the regions of the Pacific Ocean. If there should develop between any of the high contract- ing parties a controversy arising out of any Pacific question and involving their said rights which is not satisfactorily set- tled by diplomacy and is likely to affect the harmonious ac- cord now happily subsisting between them they shall invite the high contracting parties to a joint conference to which the whole subject will be referred for consideration and ad- justment. ARTICLE 2. If the said rights are threatened by the aggressive action of any other power the high contracting parties shall com- municate with one another fully and frankly in order to ar- rive at an understanding as to the most efficient measures to be taken, jointly and separately, to meet the exigencies of the particular situation. ARTICLE 3. This agreement shall remain in force for ten years from the time it shall take effect, 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. ARTICLE 4. This agreement shall be ratified as soon as possible in accordance with the constitutional methods of the high con- tracting parties and shall take effect on the deposit of ratifi- cations, which shall take place at Washington, and thereupon the agreement between Great Britain and Japan which was concluded at London on July 13, 1911, shall terminate, 297 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. This treaty, as officially signed on the 13th, comprised the following annexes: 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, in French and in English, shall be 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. Following is the text of the reservation note, prepared by the American delegates and accepted by the other powers: In signing the treaty this day between the United States of America, the British Empire, France and Japan, it is de- clared to be th& understanding 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 para- graph of Article 1 refers shall not be taken to embrace ques- tions which according to principles of international law lie exclusively within the domestic jurisdiction of the respective powers. The agreements referred to In the first paragraph of the foregoing reservation are the compacts concerning the use of the island of Yap. On December 14 it was pointed out in the press that Article 1 was a guarantee of protection for the Japanese home land. Later, it appeared that this guarantee of "insular possessions and dominions" was so worded to meet the wishes of Great Britain with reference to the needs of Australia and New Zealand, and not because of any desire on the part of Japan. December 12. The agreement about withdrawal of for- eign post offices from China was adopted by the Par Eastern Committee. (See November 28.) Yap and Mandated Islands December 12-13. Secretary Hughes gave out the text of an American-Japanese agreement about Yap. The negotiations 298 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. had begun in June, 1921, and were nearly completed before the Conference assembled. This agreement Is therefore not a part of the work of the Conference, although closely connected with some of its conclusions, e.g., the Four-Power Treaty. In the agreement Article 5, b, means the reopening of more than a hundred Christian missionary schools in the islands under Japanese mandate, and the continuation of seventy years of American Protestant and thirty-flve years of Roman Catholic missionary work there. Under the laws of Japan, these mission schools had been closed. PRELIMINARY AGREEMENT CONCERNING YAP. AND OTHER ISLANDS IN THE NORTH PACIFIC UNDER A JAPANESE MANDATE FROM THE LEAGUE OF NATIONS. 1. It is agreed that the United States shall have free access to the Island of Tap. on the footing of entire equality with Japan or any other nation, in all that relates to the landing and operation of the existing Tap-Guam cable or of any cable which may hereafter be laid by the United.States or its nationals. 2. It is also agreed that the United States and its na- tionals are to be accorded the same rights and privileges with respect to radio telegraphic service as with regard to cables. It is provided that so long as the Japanese government shall maintain on the Island of Tap an adequate radio telegraphic station, co-operating effectively with the cables and with other radio stations or ships and shore, without discriminatory exac- tions or preferences, the exercise of the right to establish radio telegraphic stations at Tap by the United States or its na- tionals shall be' suspended. 3. It is further agreed that the United States shall enjoy in the Island of Tap the following rights, privileges and" ex- emptions in relation to electrical communications: (a) Right of residence without restriction, and rights of acquisition and enjoyment and undisturbed possession upon a footing of entire equality with Japan or any other nation or their respective nationals of all property and interests, both personal and real, including lands, buildings, residences, offices, works and appurtenances. (b) No permit or license to be required for the enjoy- ment of any of these rights and privileges. (c) Each country to be free to operate both ends of its cables, either directly or through its nationals, including cor- porations or associations. (d) No cable censorship or supei'vision of operation or messages. 299 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. (e) Free entry and exit for persons and property. (f) No taxes, port, harbor or landing charges or exac- tions, either with respect to operation of cables or to property, persons or vessels. (§■) No discriminatory police regulations. 4. Japan agrees that it will use its power of expropria- tion to secure to the United States needed property and facili- ties for the purpose of electrical communication in the island, if such property or facilities cannot 'otherwise be obtained. It is understood that the location and area of land to be so expropriated shall be arranged each time between the two governments, according to the. requirements of each case. American property and facilities for the purpose of electrical communication in the island are to be exempt from the process of expropriation. 5. The United States consents to the administration by Japan of the mandated islands in the Pacific Ocean north of the equator subject to the above provisions with respect to the Island of Yap and also subject to the following conditions: (a) The United States is to have the benefit of the en- gagements of Japan set forth in the mandate, particularly those as follows: "Article 3 — The mandatory sihall see that the slave trade is prohibited and that no forced labor is permitted, except for essential public work and services, and then only for adequate remuneration. "The mandatory shall also see that the traffic in arms and ammunition is controlled in accordance with principles analogous to those laid down in the convention relating lo the control of the arms traffic, signed on September 10, 1919, or in any convention amending same. "The supply of intoxicating spirits and beverages to the natives shall be prohibited." "Article 4 — The military training of the natives, otherwise than for purposes of intarnal police and the local defense of the territory, shall be prohibited. Furthermore, no military or naval bases shall be established or fortifications erected in the territory." (b) With respect to missionaries, it is agreed that Japan shall insure complete freedom of conscience and the free ex- ercise of all forms of worship which are consonant with public order and morality, and that missionaries of all such religions shall be free to enter the territory and travel and reside therein, to acquire and possess property, to erect religious buildings and to open schools throughout the territory. Japan shall, however, have the right to exercise ■ such control as may be necessary for the maintenance of public order and 300 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. good government and to take all measures required for such control. (c) Japan agrees that vested American property rights will be maintained and respected. (d) It is agreed that the treaties between the United States and Japan now in force shall apply to the mandated islands. (e) It is agreed that any modifications in the mandate are to be subject to the consent of the United States, and, further, that Japan will address to the United States a du- plicate report on the administration of the mandate. A formal convention embodying these provisions will be drawn up for signature and will be subject to ratification by the Senate. Pan-American Affairs. December 12. Chile made a move in the Tacna-Arica dispute with Peru by proposing to the latter that the pleb- iscite in Tacna-Arica, provided for in the Treaty of Ancon of 1883, should be now held. This proposal renewed a sim- ilar offer of 1912, which was rejected by Peru on the ground that a plebiscite held under Chilean control was valueless. Diplomatic relations between the two countries were broken in 1910, and the Peruvian Government declared itself ad- verse to a plebiscite under a, treaty forty years old, hold- ing that arbitration offers the only available solution and that the arbitration should review all provisions of the treaty of Ancon. Chile also announced its Intention of in- viting the fifth Pan-American Conference to meet in Santiago in September, 1922. This Conference should have been hell in 1914-15, but the Great War prevented it. December 20 Chile suggested that the points at issue between the two countries might be referred to arbitration, and also favored direct negotiations. Peru proposed in reply that each coun- try name plenipotentiaries to meet at Washington, and on the 26th Chile accepted the proposal and still favored arbi- tration if negotiations fall. On the 21st Secretary Hoover presided at a meeUng of the Inter-American High Commis- sion, a, representative international body, devoting itself ex- clusively to commercial and financial affairs. December 2 8 Peru proposed that President Harding be invited to act as final arbitrator of all differences between the two countries. Buergenland December 14. The plebiscite in the Oedenburg region and some smaller districts was held on this day. Austria protested against holding it under existing conditions, and 301 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the Council of Ambassadors was willing to postpone the plebiscite in Oedenburg until December 18. The Austrian- Hungarian mixed commission which was to supervise the election was therefore broken up, but the plebiscite was held under the Inter-Allied Commission and showed a large ma- jority for Hungary. The final outcome was that on January 1, 1922, the Inter-Allied Commission surrendered the Oeden- burg District to Hungarian authorities. The Little Entente Enlarged December 14. It was announced that Dr. Benesh, Pre- mier of Czecho-Slovakia, has concluded an agreement with the Government of Poland, which in effect aligns the latter State with the Little Entente. The agreement includes a pledge to settle all disputes between the two States by obliga- ory arbitration. Washington Conference, Continued December 14. China came to the Conference hoping to gain three main objects: 1. Abrogation of the Anglo-Japanese Alliance and the Lansing-Ishii Agreement. This was accomplished by the Four-Power Treaty. 2. Withdrawal of Japan from Shantung. This hope wa.s .strengthened when on December 15 the Japanese Govern- ment declared its willingness to sell to China its rights and claims in the Shantung Railway. 3. Cancellation of the treaties and agreements extorted from China by Japan in 1915, and based on the twenty-one demands. In the Committee on Far Eastern Problems on Decem- ber 14 the Chinese delegation propounded and explained this third demand. Dr. Wang presented a list of fifteen treaties, many of them secret, dating between 1896 and 1917, and all involving agreements by various Powers affecting China, but without the consent of China. He also listed five agreements granting preferential or monopolistic rights in China to par- ticular Powers, viz., in Hainan, the Yang-tse valley, the Tong- king border, Fukien, and along the Chinese coast. In December, 1914, and on January 18, 1915, Japan made twenty-one secret demands upon the Chinese Government. These demands, arranged in five groups, were pressed until on May 7, an ultimatum, limited to May 9 at 6 p.m., was handed to China, with these concluding words: "It is hereby declared that if no satisfactory reply is received before or at the specified time the Imperial (Japanese) Government will take the steps it may deem necessary." 302 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The existence of such demands was denied, even when the Chinese gave them out for publication. Afterwards (^roup V of the demands was "postponed for future negotia- tion," and the remaining demands were published in several revised editions by the Japanese. Both Japanese and Chinese versions are to be found in the compilation of China's Treaties made by Mr. John Van A. MacMurray of the U. S. Department of State. See also the magazine "Asia" for September, 1919, and articles by Hon Paul S. Reinsch in "Asia" for Novem- ber, 1921, and January and February, 1922. The treaties and notes as signed on May 25, 1915, were as follows: I. THE TREATY ABOUT SHANTUNG— His Excellency the President of the Republic of China and His Majesty the Emperor of Japan have resolved to conclude a treaty with a view to the maintenance of general peace in the Far Bast and the future strengthening of the relations of friendship and good neighborliness now existing between the two Nations. "Article 1. The Chinese Government engages to recog- nize all matters that may be agreed upon between the Japa- nese Government and the German Government respecting the disposition of all the rights, interests and concessions which, in virtue of treaties or otherwise. Germany possesses vis-a-vis (i.e., as opposed to) China in relation to the Province of Shantung.* "Article 2. The Chinese engage that in case they un- dertake the construction of a railway connecting Chefoo oi Lungkow with the Kiaochow-Tsinan Railway, they shall, in the event of Germany's surrendering her right of providing capital for the Chefoo-Weihsien Railway line, enter into ne- gotiations with Japanese capitalists for the purpose of financing the said undertaking. "Article 3. The Chinese Government engage to open of their own accord as early as possible suitable cities and towns in the Province of Shantung for the residence and trade of foreigners. "Article 4. The present treaty shall take effect on the day of its signature." Following the signing of the above treaty the Chinese Foreign Minister made the following written declaration ti> the Japanese Minister at Peking: "The Chinese Government will never lease or alienate, under any designation whatever, to any foreign Power any ♦The version of this article given out by the Chinese reads thus; , "The Chinese Government engages to give full assent to all matters upon which the Japanese Government may hereaftet agree with the German Government relating to," etc. The language of the other articles is similarly direct in the Chinese version. 303 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. territory within or along the coast of the Province of Shan-< tung or any Island lying near the said coast." The Chinese Foreign Minister made also the following formal declaration: "I have the honor to state that the cities and towns to be opened in accordance with the stipulation of Article 3, of the treaty, respecting Shantung Province, signed today, will be selected, and the regulations therefor will be drawn up by the Chinese Government, and will be decided upon after con- sultation with the Japanese Minister." The Japanese Minister made to the Chinese Minister the following declaration: "When after the termination of the present war the leased territory of Kiaochow Bay is completely left to the free disposal of Japan, the Japanese Government will restore the said leased territory to China under the following condi- tions: "1. The whole of Kiaochow Bay to be opened as a com- mercial port. "2. A concession under the exclusive jurisdiction of Japan to be established at a place designated by the Japanese Government. 3. If the foreign Powers desire it, an international con- cession may be established. "4. As regards the disposal to be made of the buildings and properties of Germany and the conditions anj procedure relating thereto, the Japanese Government and the Chinese Government shall arrange the matter by mutual agreement before the restoration." II. THE SECOND TREATY RESPECTING SOUTH MANCHURIA AND EASTERN INNER MONGOLIA, and ex- tending the leasehold of Port Arthur, contains nine articles, as follows: "Article 1. The high contracting parties mutually agree to extend the terms of the lease of Port Arthur and Dairen, and the term relating to the South Manchurian Railway and to the Antung-Mukden Railway, to a period of ninety-nine years, respectively. "Article 2. The subjects of Japan shall be permitted in South Manchuria to lease land necessary either for erecting buildings for various commercial and industrial uses or for agricultural purposes. "Article 3. The subjects of Japan shall have liberty to enter, travel and reside in South Manchuria and to carry on business of various kinds — commercial, industrial and other- wise. 304 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "Article 4. The Government of China shall permit joint undertaking's in Eastern Inner Mongolia of the subjects of Japan and citizens of China in agricultural and industries auxiliary thereto. "Article 5. With respect to the three preceding articles the subjects of Japan shall produce before the local authori- ties the passports duly issued for the purpose of registration, and shall also submit themselves to the police laws and regu- lations and taxes of China." "In civil and criminal suits, the Japanese consular officer, where a Japanese subject is the defendant, and the Chines« official, where a Chinese citizen is the defendant, shall, re- spectively, try and decide the case, both Japanese consular officers and the Chinese official being permitted each to send his agent to attend the trial of the other to watch the pro- ceedings; provided that, in civil suits arising out of land disputes between Japanese subjects and Chinese citizens, the rases shall be tried and decided by the joint tribunal, com- posed of the properly authorized officials of the two countrie.s, in accordance with the laws and local uses of China. "In the future, when the judicial system in the said regions shall have been completely reformed, all civil and criminal suits involving Japanese subjects shall be wholly tried and decided by the law courts of China. "Article 6. The Government of China engage to open of their own accord as early as possible suitable cities and towns in Eastern Inner Mongolia for the residence and trade of foreigners. "Article 7. The Government of China agree to a speedy fundamental revision of various agreements and contracts re- lating to the Kirin-Changchun Railway, on the basis of the terras embodied in railway loan agreements which China has heretofore entered into with various foreign capitalists. If in future the Chinese Government grant to foreign capi- talists, in matters that relate to railway loans, more advan- tageous terms than those in the various existing railway loan agreements, the above mentioned Kirin-Changchun Railway loan agreement shall, if so desired by Japan, be further re- vised. "Article 8. Except as otherwise provided in this treaty, all existing treaties between Japan and China with respect to Manchuria shall remain in force. "Article 9. The present treaty shall take effect on the day of its signature. An appended note fixed the date of the expiration of the lease of Port Arthur and Dalny as in 1997; of the restora- tion of the South Manchurian Railway to China as in 2002 (cancelling an original agreement that China might redeem 305 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the railway 36 years after It was opened to traffic); and of the Antung-Mukden Railway as in 2007. "The present treaty shall be ratified by His Excellency the President of the Republic of China and His Majesty the Emperor of Japan, and the ratifications thereof shall be ex- changed at Tokio as soon as possible." The Chinese Foreign Minister made the followin,? declarations: "I have the honor to state that the cities and towns to be opened in accordance with the stipulation of Article 6, of the treaty respecting South Manchuria and Eastern Inner Mon- golia, signed this day, will be selected and the regulations therefor will be drawn up by the Chinese Government and will be decided upon after consultation with the Japanese Minister. "I have the honor to state that Japanese subjects shall, as soon as possible, investigate and select mines in the mining areas in South Manchuria specified hereunder, except those being prospected for or worked, and the Chinese Government will then permit them to prospect or work the same; but be- fore the mining regulations are definitely settled, the prac- tice at present in force shall be followed." Fengtien: Locality. Mineral. Niu Hsin T'ai Coal Tien Shih Fu Kou Coal Sha Sung Kang Coal T'ieh Ch'ang Coal Nuan Ti T'ang Coal An Shan Chan region Iron Kirin (Southern portion): Sha Sung Kang Coal & Iron Kang Tao Coal Chia P'i Kou Coal & Iro.i "The Chinese Government will, when it is proposed in future to build railways in South Manchuria and Eastern Inner Mongolia, employ Chinese capital for the purpose, and if foreign capital should be required they will negotiate first with Japanese capitalists for a loan; and further, when the Chinese Government proposes to raise a loan abroad on the security of the taxes on the above mentioned regions (ex- cluding, however, the salt gabelle and customs duties which are already made securities for the loans of the Chinese Central Government), they will first consult Japanese capi- talists." "If, in future, the Chinese Government desire to emplo.v foreign advisers and instructors on political, financial, mili- 306 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tary and police affairs in South Mancliuria, preference sliall be given to Japanese. I have the honor to state that the term "lease by ne- gotiations," contained in Article 2 of the treaty respecting: South Manchuria and Eastern Inner Mongolia, signed this day, shall be understood to imply a long term lease of noi more than thirty years, and also the possibility of its uncon- ditional renewal. III. THE HANYEHPING IRON AND COAL COMPANY (China's one great iron manufacturing plant, with mines). "In view of the very close relations subsisting between Japanese capitalists and the Han-Yeh-Ping Company the Chinese Government engages to approve the agreement that may be concluded in future between the company and Japa- nsee capitalists for its joint undertaking, and not to confis- cate it, to nationalize it without the consent of he Japanese capitalists, or to permit it to contract any foreign loan other than Japanese." The original 21 demands sought to malte this company a joint concern of the two nations, China not to dispose of its share without the previous consent of Japan, and the Chinese Government was to insure to the company a monopoly of the mines in its neighborhood. rV. COAST OF CHINA — This became the separate "Coast of China" Agreement. In order to preserve effectively the territorial integrity of China the Japanese Government and the Chinese Govern- ment agree to the following special article: The Chinese Government engages not to cede or lease to a third Power any harbor or bay or island along the Coast of China. V. THE ARTICLES OMITTED FROM THE FINAL TREATIES AND NOT INCLUDED IN THE LIST TRANS- MITTED BY JAPAN TO THE POWERS — They were, however, among the 21 demands presented to China on January 18. 1915. Article 1. The Cliinese Central Government shall em- ploy influential Japanese advisers in political, financial and military affairs. Article 2. Japanese hospitals, churches and schools in the interior of China shall be granted the right of owning land. Article 3. Inasmuch as the Japanese Government and the Chinese Government have had many cases of dispute be- tween Japanese and Chinese police to settle cases which caused no little misunderstanding, it is for this reason neces- sary that the police department of important places (in China) shall be Jointly administered by Japanese and Chinese, 307 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. or that the police departments of these places shall employ numerous Japanese, so that they may at the" same time help to plan for the Improvement of the Chinese Police Service. Article 4. China shall purchase from Japan a fixed 5. Resolutions on reduction of Chinese military forces (Jan. 20). 6. Resolutions on publicity for international agreements affecting China (Jan. 21). 7. Resolutions on radio stations in China (Dec. 7 and Jan. 27). SHANTUNG — Chairman Hughes then communicated to the conference the terms of the agreement between the Chinese and Japanese delegations about Shantung, ■w^hich had been vir- tually completed four days before. (This agreement prac- tically supersedes Articles 156-158 of the Treaty of Versailles.) TEXT OF SHANTUNG AGREEMENT. I. THE FORMER GERMAN LEASED TERRITORY OF KIAO-CHAU. "1. Japan shall restore to China the fornaer German leased territory of Kiao-Chau. "2. The Governments of Japan and China shall eacJ) appoint a commission with powers to make and carry out de- tailed arrangements relating to the transfer of the administra- tion and of public property in the said territory and to settle other matters equally requiring adjustment. For such pur- poses the Japanese and Chinese commissions shall meet im- mediately upon the coming into force of the present agree- ment. "3. The said transfer and adjustment shall be completed as soon as possible, and in any case not later than six months from the date of the coming into force of this agreement. "4. The Japanese Government agrees to hand over to the Chinese Government, upon the transfer to China of the administration of the former German leased territory of Kiao- Chau, such archives, registers, plans, title-deeds and other documents, in the possession of Japan or certified copies there- of, as may be necessary for the said transfer, as well as those that may be useful for the administration by China, after such transfer, of that territory, and of the 50-kilometer zone around Kiao-Chau Bay. "II. PUBLIC PROPERTIES. "1. The Government of Japan undertakes to transfer to the Government of China all public properties, including land, 360 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. buildings, works or establishments in the leased territory of Kiao-Chau,. whether formerly possessed by the German au- thorities 9r purchased or constructed by the Japanese authori- ties during the Japanese administration of the said territory, save those indicated in this article (paragraph 3) of thin treaty. "2. In the transfer of such public properties no compen- sation will be claimed from the Government of China except (1) for those purchased or constructed by the Japanese au- thorities and also (2) for the improvement on or additions to those formerly possessed by the German authorities. With regard to cases under these two categories, the Government of China shall refund a fair and equitable proportion of the expenses actually Incurred by the Government of Japan for such properties specified in (1) or such improvements or addi- tions specified in (2), having regard to the principle of depre- ciation. "3. It is agreed that such public properties in the leased territory of Kiao-Chau as are required for the Japanese Con- sulate to be established In Tsing-tao shall be retained by the Government of Japan, and that those required more espe- cially for the benefit of the Japanese community, including public schools, shrines and cemeteries, shall be left in the hands of the said community. "Details of such matters shall be arranged by the Joint commission provided for in an article of this treaty. "III. JAPANESE TROOPS. "The Japanese troops, including gendarmes now stationed along the Tsing-tao-Tsinanfu Railway and Its branches, shall be .withdrawn as soon as the Chinese police or military force phall have been sent to take over the protection of the rail- way. "The disposition of the Chinese police or military force and the withdrawal of the Japanese troops under the fore- going provisions may be effected in sections. The date of the completion of such process for each section shall be arranged in advance between the competent authorities of Japan and 'Jlhina. The entire withdrawal of such Japanese troops shall be effected if possible within three months, and, in any case, not later than six months from the date of the signature of the present agreement. "The Japanese garrison at Tsing-tao shall be completely withdrawn, simultaneously, if possible, with the transfer of the administration of the leased territory of Kiao-Chau to China, and in any case not later than thirty days from the date of such transfer. 361 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "IV. THE MARITIME CUSTOMS. "1. It is agreed that upon the coming into force of thf present treaty, the Customs House of Tsing-tao shall be made an integral part of the Chinese maritime customs. "2. It is understood that the provisional agreement of Aug. 6, 1915, between Japan and China relative to the mari- time customs office at Tsing-tao will cease to be effective upon the coming into force of the present treaty. "V. THE TSING-TAO-TSINANFU RAILWAY. 1. Japan shall transfer to China the Tsing-tao-Tsinanfu Railway and its branches, together with all the properties ap- purtenant thereto, including wharves, warehouses and other similar properties. "China, on her part, undertakes to reimburse to Japan the actual value of the railway properties mentioned in the preceding paragraph. The actual valu© to be so reimbursed shall consist of the sum of 53,406,141 gold marks (which is the assessed value of such portion, of the said properties as was left behind by the Germans)", "I understand that Is the assessed value as fixed by the Reparations Commission." Baron Shldehara — "Yes." The Chairman (continuing reading) — "Or its equivalent, plus the amount which Japan, during her aaministration of the railway has actually expended for permanent improve- ments on or additions to the said properties, less a suitable allowance for depreciation. It is understood that no charge will be made with respect to the wharves, warehouses and other similar properties mentioned in paragraph 1 of this article, except for such permanent improvements on or addi- tions to them as may have been made by Japan during her administration of the railway, less a suitable allowance for depreciation. "The Government of Japan and the Government of China shall each appoint three Commissioners to form a joint rail- way commission, with powers to appraise the actual value of the railway properties on the basis defined in the preceding paragraph, and to arrange the transfer of the said properties. "Such transfer shall be completed as soon as possible, and, in any case, not later than nine months from the date of the coming into force of the present agreement. "To effect the reimbursement under paragraph 2 of this article, China shall, simultaneously with the completion of the transfer of the railway properties, ^deliver to Japan Chi- nese Government Treasury notes, secured on the properties and revenues of the railway, and running for a period of fif- teen years, but redeemable at the option of China at the end 362 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. of five years from the date of the delivery of the Treasury notes, or at any time thereafter upon six months' previous notice. "Pending the redemption of the said Treasury notes, the Chinese Government will select and appoint, for so long a period as the said notes remain unredeemed, a Japanese sub- ject to the post of traffic manager and another Japanese sub- ject to be chief accountant jointly with the Chinese chief accountant with co-ordinate functions. These officials shall all be under the direction, control and supervision of the Chinese managing director, and removable for cause. "Financial details of a technical character relating to the said Treasury notes, not provided for in this article, shall be determined in mutual accord between the Japanese and China authorities as soon as possible and, in any case, not later than six months from the date of the coming into force of the present agreement. "VI. THE EXTENSION OF THE TSING-TAO-TSINANFU RAILWAY. "It is agreed that the concessions relating to the two ex- tensions of the Tsing-tao-Tsinanfu Railway, namely, the Tsin- anfu-Shunteh and the Kaomi-Hsuchowfu lines, will be thrown open for the common activity of an international financial group, on terms to ^e arranged between, the Chinese Govern- ment and the said group. "VII. MINES. "The mines of Tsechuan, Fangste and Chinlingchen, for which the mining rights were formerly granted by China to Germany, shall be handed to a company to be formed by a special charter of the Chinese Government, in which the Japa- nese capital may not exceed the amount of the Chinese capital. The mode and terms of such arrangement shall be determined by the Chinese and Japanese commissions which are to be appointed for that purpose and which shall meet immediately upon the coming into force of the present agree- ment. « 'VIII. OPENING OF THE FORMER GERMAN LEASED TERRITORY. "The Japanese Government declares that it has no In- tention of seeking the establishment of an exclusive Japanese settlement or of an international settlement in Tsingtao. "The Chinese Government, on its part, declares that the entire area of the former German leased territory of Kiao- Chau will be opened to foreign trade, and that foreigners will be permitted freely to reside and to carry on commerce, in- dustry and other lawful pursuits within such area. 36Z SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "The vested rights lawfully and equitably acquired by foreign nationals In said area, whether under the German regime or during the Japanese military occupation, will be respected. "All questions relating to the status or validity of such vested rights acquired by Japanese nationals shall be arranged by the Sino-Japanese Joint Comm.isslon. "IX. SALT INDUSTRY. "Whereas, the salt industry is a Government monopoly in China, it is agreed that the interests of Japanese companiea of Japanese nationals actually engaged in the said Industry along the coast of Kiao-Chau Bay are to be purchased by the Chinese Government on payment of fair compensation, and that exportation to Japan of a quantity of salt produced by the said Industry along the said coast is to be permitted on reasonable terms. Arrangements for the above purposes. In- cluding the transfer of said interests to the Chinese Govern- ment, shall be completed by the Chinese and Japanese com- missions as soon as possible, and in any case not later than six months from date of the coming into. force of the present agreem.ent. "X. SUBMARINE CABLES. "Japan declares that all the rights, title and privileges concerning former German submarine cables between Tsing- tao and Chefoo and between Tslngtao and SIhanghal, are vested in China, with the exception of (.hose portions of the said two cables which have been utilized by the Japanese Government for the laying of a, cable between Tslngtao and Sasebo — It being understood that the question relating to the landing and operation at Tslngtao and the said Tslngtao-Sasebo cable shall be arranged by the Chinese and Japanese commissions as subject to the terms of the existing contracts to which China is a party. "XI. WIRELESS STATIONS. "The Japanese wireless stations at Tsing-tao and Tslnanfu ■hall be transferred to China upon the withdrawal of the Japanese troops at those two places, respectively, with fair compensation for the value of these stations. "The details of such transfer and compensation shall be arranged by the Chinese and Japanese commissions. ANNEXES. "I. PREFERENTIAL RIGHTS. "Japan declares that she renounces all preferential rights with regard to foreign assistance In persons, capital and material, stipulated in the Sino-German Treaty of March 6, 1898. 364 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "II. PUBLIC ENTERPRISES. "Enterprises relating to electric light, telephone, stock yards, &c., shall be handed over to the Chinese Government, with the understanding that the stock yard, electric light and laundry enterprises are, in turn, to be handed over to the municipal government of Tsing-tao, which will form Chinese corporations in conformity with the Chinese company law to manage them under municipal supervision and regulations. "III. TELEPHONES. "1. The Japanese Government agrees to turn over to the Chinese Government the telephone enterprise in the for- mer German leased territory of Kiao-Chau. "2. As regards such telephone enterprise, the Chinese Government will give due consideration to requests from the foreign community at Tsin-tao for such extensions and im- provements as may be reasonably required by the general in- terests of the public. "IV. PUBLIC WORKS. "The Chinese Government declares that in the manage- ment and maintenance of the public works in Tsing-tao, such as roads, waterworks, parks, drainage, sanitary equipment, &c., handed over to the Chinese Government by the Japanese Government, the foreign community in Tsing-tao shall have fair representation. "V. MARITIME CUSTOMS. "The Chinese Government declares that it will move the Inspector General of the Chinese maritime customs to permit the Japanese traders at Tsing-tao to communicate with the said customs in the Japanese language, and, in the selection of a suitable staff for the Tsing-tao customs, to give consider- ation within the limits of its established service regulations tu the diverse needs of the trade of Tsing-tao. "VI. THE TSING-TAO -TSINANPU RAILWAY. "Should the joint railway commission fail to reach an agreement on any of the matter entrusted to its charge, the points at issue shall be taken up by the two Governments for discussion and adjustment by means of diplomacy. In the determination of such points the two Governments shall, if necessary, obtain recommendations of an expert or experts of a third power or powers who shall be designated in mutual agreement with each other. "VIL EXTENSION OF THE TSING-TAO-T3INANFU . RAILWAY. "The Japanese Government has no intention of claiming 365 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. that the option for the construction of the Chefoo-Weihsien Railway should be thrown open for the common activity oi the International Financial Consortium if that railway Is to be constructed with Chinese capital. "VIII. OPENING OP THE FORMER LEASED TERRI- TORY. "The Chinese Government declares that, pending the en- actment and general application of laws regulating the sys- tem of local self-government in -China, the Chinese local authorities will ascertain the views of the foreign residents in the former German leased territory of Kiao-Chau in such municipal matters as may directly affect their welfare and interests." The Chairman added: "Permit me to express what I am sure all the delegates would desire to have expressed, the most cordial congratula- tions to the representatives of the Japanese and Chinese Gov- ernments upon the successful conclusion of these conversa- tions, and upon the fact that they have been able to reach a satisfactory basis of agreement with regard to this most serious subject of controversy." (Applause.) Mr. Hughes a. little later read the following Supplemen- tary Understandings: "1. It is understood that on taking over the railway, the Chinese authorities shall have full power and discretion to continue to remove the present employees of Japanese na- tionality in the service of the railway and that reasonable notice may be given before the date of the transfer of the railway. Detailed arrangements regarding the replacements to take effect immediately on the transfer of the railway to China are to be made by the Chinese and Japanese authori- ties. "2. It is understood (1) that the entire subordinate staff of the Japanese trafflc manager and of the Japanese chief accountant is to be appointed by the Chinese managing Direc- tor; and (2) that after two years and a half from the date of the transfer of the railway, the Chinese Government may appoint an assistant trafflc manager of Chinese nationality, for the period of two years and a half, and that such assist- ant Chinese trafflc manager may also be appointed at any time after six months' notice for the redemption of the Treas- ury notes is given. "3. The Japanese delegation declares that Japan has no intention to claim that China is under any obligation to ap- point Japanese nationals as members of the said subordinate staff. "4. It is understood that the redemption of the said 366 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Treasury notes will not be effected with funds raised from any source other than Chinese." Mr. Balfour announced that, as the circumstances under which Great Britain was moved to lease the port of Wei- Hai-Wei (also in Shantung) have been eliminated, "Great Britain proposes to hand back Wei-Hai-Wei" to China. NAVAL LIMITATION — The Chairman then presented the text of the Five-Power Limitation of Naval Armament Treaty, based upon the original proposals of his Government. The Conference approved the treaty, of which the full text fol- lows. Article 19 was the most difficult to formulate. In its original form Article 19 provided for the main- tenance of the status quo of fortifications and naval bases in the "region of the Pacific" with the exception of Australia, New Zealand, the Hawaiian Islands and the islands forming Japan proper. The British proposed a revised Article 19 by which a parallelogram was drawn with the equator as its south side, the thirtieth degree of latitude its north side, the 110th de- gree of longitude its west side and the 180th degree of longi- tude its east side; inside this quadrilateral there was to be preserved the status quo. "When this plan was sent to Tokio difficulties arose. The Japanese first demanded the right to fortify the Benin Islands, which were included in the British geometrical figure but which the Japanese regarded as a part of Japan proper. Finally an agreement was secured upon the text as given here. Draft Treaty. 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 pur- poses, to conclude a treaty to limit their respective naval arm- anvent, and to that end have appointed as their plenipoten- tiaries: 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 be- yond the Seas, Emperor of India: The Right Hon. Arthur James Balfour, O. M., M. P., Lord 367 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. President of his Privy Council; The Right Hon. Baron Lee of Fareham, G. B. E., K. C. B., First Lord of his Admiralty; The Right Hon. 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 Hon. Sir Robert Laird Borden, G. C. M. G., K. C; for the Commonwealth of Australia: Senator the Right Hon. George Foster Pearce, Minister for Home and Territories; for the Dominion of New Zealand: The Hon. Sir John "William Salmond, K. C, Judge of the Supreme Court of New Zealand; for the Union of South Africa: The Right Hon. Arthur James Balfour, O. M., M. P.; for India: The Right Hon. Valingman Sankaranarayana Srinivasa Sastri, member of the Indian Council of State; The President of the French Republic: M. Albert Sarraut, Deputy, Minister of the Colonies; M. Jules J. Jusserand, Ambassador Extraordinary and Plenipotentiary to the United States of America, Grand Cross of the National Order of the Legion of Honor; His Majesty the King of Italy: The Hon. Carlo Schanzer, Senator of the Kingdom; The Hon. Vittorio Rolandi Ricci, Senator of the King- dom, his Ambassador Extraordinary and Plenipoten- tiary at Washington; The Hon. 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 Plenipotentiary at Washington, Joshii, a member of the first class of the Imperial Order of the Rising Sun, Mr. Masanao Hanihara, Vice Minister for Foreign Af- fairs, Joshii, a member of the second class of the Im- perial 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: 868 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 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 capi- tal 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 1, 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 Chapter II, Part 2. The British Empire may, in accordance with the replace- ment table in Chapter II, Part 2, 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. ARTICLE IIL 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 replacu- ment tonnage which may be constructed or acquired as speci- fied 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 displace- ment, for the United States 525,000 tons (533,400 metric tons); for the British Empire 525,000 tons (533,400 metric tons); for Prance 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 (33,560 metric 369 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ions) standard displacement shall be acquired by, or con- structed by, for, or -within the jurisdiction o(, any of the Con- tracting' Powers.' ARTICLE VI. No capital ship of any of the Contracting Powers shall carry a g-un with a caliber in excess of 16 Inches (406 milli- metres). ARTICLE VII. The total tonnage for aircraft carriers of each of the Contracting Powers shall not exceed In standard displace- ment, 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 60,000 tons (60,960 metric tons), for Japan 81,000 tons (82,296 metric 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 Nov. 12, 1921, shall be considered experimental, 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 con- structed 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 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 con- struction, which would otherwise be scrapped under the pro- visions of Article II. The armament of any aircraft carriers exceeding 27,000 tons (27,432 metric tons) standard displace- ment 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 (162 millimetres), except anti-aircraft guns and guns not exceed- ing 5 Inches (126.7 millimetres), shall not exceed eight. ARTICLE X. No aircraft carrier of any of the Contracting Powers shall carry a. gun with a caliber in excess of 8 inches (208 millimetres). Withpyt prejudice to the provisions of Article 870 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. IX, if the armament carried includes guns exceeding 6 Inches (152 millimetres) in caliber, the total number of guns car- ried, except anti-aircraft guns and guns not exceeding 5 inches (126.7 millimetres) shall not exceed ten. If alter- natively the armament contains no guns exceeding 6 Inches (152 millimetres) in caliber, the number of guns is not lim- ited. In either case the number of anti-aircraft guns and of guns not exceeding 5 inches (126.7 millimetres) is not limited. ARTICLE XL No vesgel of war exceeding 10,000 tons (10,160 metric tons) standard displacement, other than a capital ship or air- craft 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 takfen in time of peace under Government control for fighting pur- poses, which are employed on fleet duties or as troop tran- sports or in some other way for the purpose of assisting In the prosecution of hostilities 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 here- after laid down, other than a. capital ship, shall carry a gun with a caliber 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 ships into vessels of war, other than the necessary stiffening of decks for the mounting of guns not exceeding 6-inch (152 millimetres) caliber. ARTICLE XV. No vessel of war constructed within the jurisdiction of any of the Contracting 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 m.ay 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-con- 371 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tracting power is undertaken within the jurisdiction of any of the Contracting Powers, such power shall promptly In- form 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 (5). 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 juris- diction for any other Power, or which may have been con- structed within its jurisdiction for another Power and not delivered. ARTICLE XVIII. Each of the Contracting Powers undertakes not to dis- pose 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 fortifications and naval bases, shall be maintained in their respective territories and possessions speci- fied hereunder: (1) The insular possessions which the United States now holds or may hereafter acquire in the Pacific Ocean, ex- cept (a) those adjacent to the coast of the United States, Alaska and the Panama Canal Zone, not including the Aleu- tian 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 degrees east longi- tude, except (a) those adjacent to the coast of Canada, (b) the Commonwealth of Australia and its territories, and (c) New Zealand; (3) The following insular territories and possessions of Japan in the Pacific Ocean, to wit; the Kurile Islands, the Benin 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 defenses of the 372 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. territories and possessions above specified. This restriction, however, does not preclude such repair and replacement of wornout weapons and equipment as is customary in naval and military establishments in time of peace. ARTICLE XX. The rules for determining tonnage displacement pre- scribed 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 I. 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 Maryland 32,600 California 32,300 Tennessee 32,300 Idaho 32,000 New Mexico 32,000 Mississippi 32,000 Arizona 31,400 Pennsylvania 31,400 Oklahoma 27,500 Nevada 27,500 New York 27,000 Texas 27,000 Arkansas 26,000 Wyoming 26,000 Florida 21,825 Utah 21,825 North Dakota 20,000 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 the United States will be 525,850 tons. Ships which may be retained by the British Empire: Name Tonnage Royal Sovereign 25,750 Royal Oak 25,750 373 SECOND YEAR B(X)K OF THE LEAGUE OF NATIONS. Name Toi iiage 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 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 Total tonnage 580,450 On the completion of the two new ships to be constructed and the scrapping 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 be retained by France: Tonnage Name (metric tons) Bretagne 23,500 Lorraine ' ■ 23,500 Provence 23,500 Paris 23,500 Prance 23,500 Jean Bart 23,500 Courbet 23,500 Condorcet 18,890 Diderot 18,890 Voltaire 18,890 Total tonnage 221,170 France m.ay lay down new tonnage in the years 1927, 1929 and 1931, as provided in Part 3, Section 2. Ships which may be retained by Italy: Tonnage N^'"' (metric tons) Andrea Doria 22 700 Caio Duilio 22 700 374 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Tonnage Name (metric tons) Conte di Cavour 22,500 Giulio Cesare 22,500 Leonardo da Vinci 22,500 Dante Alighieri 19,500 Koma 12,600 Napoll 12,600 Vittorlo 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 2. Ships which may be retained by Japan: Name Tonnage Mutsu 38,800 Nagato. . : 33,800 Hiuga 31,260 Ise 31,260 Tamashiro 30,600 Fu-So 30,600 Kirishima 27,500 Haruna 27,500 Hiyei 27,500 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 con- dition that it cannot 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 ar- mor, 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 subparagraph (6), in so far as may be necessary to enable the ship to be used as a mobile target, and except subparagraph (7), must be previously complied with. Not more than one capital ship may be retained for this purpose 37S SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. at one time by any of the Contracting 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 exclusively; 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 connlng-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 consists in rendering a ship incapable of further warlike service, shall be immediately undertaken. (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 armor, or alterna- tively all main propelling machinery; and (S) All landing and fiying-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 para- graph 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 the vessels to be scrapped under the second and third paragraphs of Article II, or under Article III, the work of rendering the vessel incapable of further warlike service in accordance 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 376 SECOND YEAR BOOK OF THE LE AGUE OF NATIONS. 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, how- ever, the completion of the new vessel he 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 para- graph II of this Part within eighteen months from the date when the work of rendering it incapable of further warlike service was commenced. 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. SDECTION 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 Nov. 12, 1921. (b) Each of the Contracting Powers shall communicate promptly to each of the other Contracting Powers the follow- ing information: (1) The names of the capital ships and aircraft carriers to be replaced by new construction; (2) The date of governmental authorization of replace- ment 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 dimen- sions, namely, length at waterline, extreme beam at or below waterline, mean draft at standard displacement; 377 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. (5) The date of completion of each new ship and Its standard displacement in tons and metric tons, and the prin- cipal 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 aircraft 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 pro- visions of the present treaty, the regular replacement^ pro- gram 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 displace- ment thus effected does not exceed 3,000 tons (3,048 metric tons) displacement for each ship. No alterations in side ar- mor, 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 limiits allowed for bulge may increase their armor protection and the calibre of the guns now carried on their existing capital ships so as to exceed sixteen inches (406 milli- meters) and (2) the British Empire shall be permitted to complete, in the case of the Renown, the alterations to armor that have already been commenced but temporarily sus- pended. SECTION II. REPLACEMENT AND SCRAPPING OP CAPITAL SHIPS- UNITED STATES. Ships Retained. Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland Maine (20), Missouri (20), 17 1 Virginia (17), Nebraska (17), Georgia (17), New Jersey (17), Rhode Is- land • (17), Connecticut (17), Louisiana (17), Vermont (16), Kansas (16), Minnesota (16), New Hampshire (15), South Carolina (13), Michigan (13), Wash- 378 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Ships Retained. Summary. Sliips Ships " Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland i n g: t o n (0), South Dakota (0), Indiana (0), Montana (0), North Car- olina (0), Iowa (0), Mas- sachusetts (0), Lexing- ton (0), Constitution (0), Constellation (0), Sara- toga (0), Ranger (0), United States (0).* 1922 A, Bt Delaware (12), North Da- kota (12) 15 1923 1924 1925 1926 1927 1928 1929 15 1930 1931 C, D 1932 E, F 1933.... G 1934 H, I C, D Florida (23), Utah (23), Wyoming (22) 12 5 1935 J E, P Arkansas (23), Texas (21) New York (21) 9 7 1936 K, L G Nevada (20), Oklahoma (20) 7 8 1937.... M H, I Arizona (21), Pennsylva- nia (21) 5 10 1938.... N, O J Mississippi (21) 4 11 1939.... P,Q K, L....New Mexico (21), Idaho (20) 2 13 1940 M Tennessee (20) 1 14 1941 N, O California (20), Mary'and (20) 15 1942 P, Q 2 ships West Virginia class 15 15 3 15 3 15 3 15 3 15 3 15 3 15 3 15 3 15 3 15 3 15 3 15 3 •The United States may retain the Oregon and Illinois for non- connlDatant purposes, aftf^r complying with the provisions of Part 2, HI. (b). tTwo West "Virginia class. Note — ^A, B, C, D, &c., represent individual capital ships of 35,000 tons standard displacement, laid down and completed in the years specified. 379 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. REPLACEMENT AND SCRAPPING OF CAPITAL SHIPS- BRITISH EMPIRE. Ships Retained. Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland Commonwealth (16), Ag- amemnon (13), Dread- nought (15), Bellero- phon (12), St. Vincent (11), Inflexible (13), Su- perb (12), Neptune (10), Hercules (10), Indomi- table (13), Temeralre (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 1 1922 A. B.t 21 1 1923 21 1 1924 21 1 1925 A. B King George V. (13), Ajax (12), Centurion (12), Thunderer, (13)... 17 3 1926 17 3 1927. .- 17 3 1928 17 3 1929 17 3 1930 17 ? 1931 C. D 17 3 1932 E. F 17 3 1933 G 17 3 1934 H. I C. D. ...Iron Duke (20), Marlbor- ough (20), Emperor of India (20), Benbow (20) 13 5 1935 J E. F. ... Tiger (21), Queen Eliza- beth (20), War spite (20), Barham (20) 9 7 *The British Empire may retain the Colossu.s and Collingwood for non-comhatant purposes, after complyingr with the provisions of Part 2, III., (b). tTwo 35,000-ton ships, standard displacement. Note — A, B, C, D, &0., represent individual capital ships of 36,000 tons standard displacement, laid down and completed in the years specified. 380 1938.. . .N. O 1939.. . .P. Q 1940. . 1941.. 1942.. SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Ships Retained. Summary. Ships . Ships Ships Scrapped Pre- Post- Tear Laid Down Completed (Age in Parentheses) Jutland 1936 K. L G Malaya (20), Royal Sov- ereign (20) 7 8 1937 M H. I. ... Revenge (21), Resolution (21) 5 10 .J Royal Oak (22) 4 11 . K. L. ...Valiant (23), Repulse (23) 2 13 .M Renown (24) 1 14 .N. O. ...RamiUies (24), Hood (21) 15 ..P. Q. ... A (17), E (17) 15 REPLACEMENT AND SCRAPPING OP CAPITAL SHIPS- PRANCE. Ships Retained. Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland 1922 7 1923 7 1924 7 1925 7 1926 7 1927.. 35,000 tons 7 1928 7 1929.. 35,000 tons 7 1930 35,000 tons. .Jean Bart (17), Courbet (17) 5 1931. .35,000 tons 5 1932. .35,000 tons. .35,000 tons. .Prance (18) 4 1933. .35,000 tons 4 1934 35,000 tons.. Paris (20), Bretagne (20). 2 1935 35,000 tons. .Provence (20) 1 1936 35,000 tons. .Lorraine (20) 1937 1938 1939 1940 1941 1942 •Within the tonnage limitations; number not fixed. Note — ^France expressly reserves the right of employing the capi- tal ship tonnage allotment as she may consider advisable, subject solely to the limitations that the dispacement 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. 381 SECOND YE'SR BOOK OF THE LEAGUE OF NATIONS. REPLACETilENT AND SCRAPPING OF CAPITAL SHIPS- ITALY. Ships Retained, Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland 1922 6 1923 6 1924 6 1925 6 1926 6 1927.. 35, 000 tons 6 1928 6 1929. .35,000 tons 6 1930 6 1931.. 35, ODD tons. .35, 000 tons. .Dante Alighieri (19) 5 (*) 1932.. 45, 000 tons 5 (•) 1933. .25,000 tons. .35,000 tons. .Leonardo da Vinci (19) . . 4 (•) 1934 4 (*) 1935 35,000 tons. .Guilio Cesare (21) 3 (*) 1936 45,000 tons. .Conte di C a v o u r (21), Duiho (21) 1 (•) 1937 25,000 tons. .Andrea Doria (21) (*) ♦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 individual ships should not surpass 35,000 tons, and the total capital ship tonnage should keep within the limits imposed by the present treaty. REPLACEMENT AND SCRAPPING OP CAPITAL SHIPS- JAPAN. Ships Retained. Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland Hi/en (20), Mikasa (20), 8 2 Kashima (16), Katori (16), Satsuma (12), Akl (11), Settsu (10), Ikoma (14), Ibukl (12), Kurama (11), Amagi (0), Akagi (0), Kaga (0), Tosa (0), Takao (0), Atago (0). Projected program 8 ships not laid down.* 1922. •Japan may retain the Shiklshima and Asahi for non-combatant purposes, after complying with the provisions of Part 2, III, (b). SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Ships Retained. Summary. Ships Ships Ships Scrapped Pre- Post- Year Laid Down Completed (Age in Parentheses) Jutland 1923 8 2 1924 8 2 1925 !• 8 2 1926 8 2 1927 8 2 1928 8 2 1929 8 2 1930 8 2 1931 A 8 2 1932 B 8. 2 1933 C 8 2 1934. ...D A Kongo (21) 7 3 1935. ...E B Hiyei (21), Haruna (20) . 5 4 1936 F C Kirishima (21) 4 5 1937 G D Fuso (22) 3 6 1938 H E Tamashiro (21) 2 7 1939 1 F Ise (22) 1 8 1940 G Hiuga (22) 9 1941 H Nagato (21) 9 1942 I Mutsu (21) 9 Note — ^A, B. C, D, &c., represent individual capital ships of 35,000 tons standard displacement, laid down and completed in the years specified. NOTE APPLICABLE TO ALL THE TABLES IN SECn'ION II. The order above prescribed in which ships are to be scrapped is in accordance with their ag-e. 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 Contfacting Powers may be varied at its option; provided, however, that such Power shall scrap in each year the num- ber of ships above stated. PART 4. DEFINITIONS. For the purposes of the present treaty the following ex- pressions are to be understood in the sense defined in this part: CAPITAL SHIP. A capital ship, in the case of ships hereafter built, is de- fined as a vessel of war, not an aircraft carrier, whose dis- placement exceeds 10,000 tons (10,160 metric tons) standard displacement, or which carries a gun wilh a calibre exceeding 8 Inches (203 milhmeters). 383 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 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 armament 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 siiip complete, fully manned, engined and equipped ready for sea, including all armament and ammunition, equip- ment, outfit, provisions and fresh water for crew, miscella- neous 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 ex- pression "metric tons," shall be understood to mean the ton of 2,240 pounds (1,016 kilos). Vessels now completed shall retain their present ratings of displacement tonnage in accordance with their national system of measurement. However, a power expressing dis- placement in metric tons shall be considered for the applica- tion of the present treaty as owning only the equivalent dis- placement In tons of 2,240 pounds. A vessel completed hereafter shall be rated at its dis- placement tonnage when in the standard condition defined herein. CHAPTER III. MISCELLANEOUS PROVISIONS. ARTICLE XXI. If, during the term of the present treaty, the require- ments of the national security of any Contracting Power in respect of naval defense are, in the opinion of that Power, materially affected by any change of circumstances, the Con- tracting Powers will, at the request of such Power, meet In conference with a view to the reconsideration of the provi- sions 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 Contract- ing Powers, shall arrange for a conference of all the Con- tracting Powers, which shall convene as soon as possible after the expiration of eight years from the coming into force of the piesent treaty to consider what changes, if any. In the treaty may be necessary to naeet such developments. 384 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ARTICLE XXII. Whenever any Contracting Power shall become engaged in a war which, In its oi>inion, affects the naval defense of Its national security, such Power may, after notice to the other Contracting Powers, suspend for the period of hostili- ties 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 suspen,sion. The remaining Contracting Powers shall, in such case, consult together with u, view to agreement as to what tempo- rary modifications, if any, should be made in the treaty as between themselves. Should such consultation not produce agreement, duly made in accordance with the constitutional methods of the respective Powers, any one of said Contract- ing 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 Dec. 31, 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 expi- ration of two years from the date on which notice of termi- nation shall be given by one of the Contracting Powers, whereupon the treaty shall terminate as regards all the Con- tracting Powers. Such notice shall be communicated in writ- ing to the Government of the United States, which shall im- mediately transmit a certified copy of the notification 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 represen- tatives at Washington of the other Contracting Powers, 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 termi- nation by any Power has taken effect, all the Contracting Powers shall meet in conference. 13 385 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 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 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 ar- chives of the Government of the United States, and duly cer- tified 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 first day of Feb- ruary, one thousand nine hundred and twenty-two. SUBMARINES AND OAS. The Chairman then asked Mr. Root to present a. Five-Power treaty, embodying the agree- ments concerning submarines and prohibiting certain forms of chemical wnrfa.re. The Conference approved the treaty in this form, comprising resolutions adopted in Committee on January 6 and 7: The United States of America, the British Empire, France, Italy and Japan, hereinafter referred to as the Signa- tory Powers, desiring to make more effective the rules adopted by civilized Nations for the protection of the lives of neutrals and non-combatants 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 pleni- potentiaries (same names as before), who have agreed as follows: Section I. The signatory Powers declare that among the rules adopted by civilized nations for the protection of the lives of neutrals and non-combatants at sea in time of war the following are to be deemed an established part of in- ternational law: 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 refuses 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 circum- stances exempt from the universal rules above stated, and if a submarine cannot capture a, merchant vessel in con- 386 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. formity 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. Section II. The signatory Powers Invite all other ci\ ilized Powers to express their assent to the foregoing state- ment of established law so that there may be a clear public understanding throughout the world of the standards of con- duct by which the public opinion of the world is to pas; judgment upon future belligerents. Section 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 per- son in the service of any Power who shall violate any ol these rules, whether or not such person is under orders of a governmental superior, shall be deemed to have violated the laws 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 nnilitary authorities of any Power within the jurisdic- tion of which he may be found. Section IV. The signatory Powers recognize the prac- tical impossibility of using submarines as commerce destroy- ers without violating, as they were violated in the 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 subma- rines as commerce destroyers shall be universally accepted , as a part of the law of Nations, they now accept that pro- hibition as henceforth binding as between themselves, and they invite all other Nations to adhere thereto. Section V. The use in war of asphyxiating, poisonous or other gases, and all analogous liquids, materials or de- vices having justly been condemned by the public 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. The signatory Powers to the end that this prohibition shall be universally accepted as a part of international lav/ binding alike the conscience 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. Section 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 of America T^lll transmit to all the signatory Powers a certified copy of the proces-verbal of the deposit of ratifications. 387 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. The present treaty, in French and in English, shall re- main deposited in the archives of the Government of the United States of America and duly certified copies thereof will be transmitted by the Government to each of the sig- natory Powers. Section VII. The Government of the United States ol America 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 communicating an instrument of adherence to the Government of the United States of America, 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 day of January, one thousand nine hundred and twenty-two. February 2. CHINESE EASTERN RAILWAY. Committee on Far Eastern Problems. The subject of the Chinese East- ern Railway, referred on January 23 to a sub-committee, was now embodied in resolutions, reported by Mr. Root for the sub-committee. The experts had originally recommended that this railway, which China is conducting through the Russian-Asiatic Bank in Peking, should be supervised by an Inter-Allied Technical Commission. To this Dr. Hawkllng Ten, for China, had objected. Mr. Koo explained and de- fended the actions of his Government with respect to that railway, recalling the career of Gen. Horvath, Director-Gen- eral of the railway, who in 1920 invested himself with gov- ernmental powers in the railway area. The Committee ap- proved the resolutions with a reservation, as follows (China agreeing to the resolution but not, of course, to the reser- vation) : "Resolved, that the preservation of the Chinese Eastern Railway for those in interest requires that better protection be given to the railway and the persons engaged in its op- eration 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. "At the same time all Powers other than China, that is to say, the United States, Belgium, Great Britain, France, Italy, Japan, the Netherlands and Portugal, had united in the following reservation: "The Powers other than China in agreeing to the resolu- 388 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tlon regarding the Chinese Eastern Railway reserve the right to insist hereafter upon the responsibilities of China for per- formance or non-performance of the obligations toward the foreign stockholders, bondholders and creditors of the Chinese Eastern Railway Company, which the holders deem to result from the contracts under which the railroad was built and the obligations which they deem to be in the nature of a trust resulting from the exercise of power by the Chinese Government over the possession and administration of the railroad." THE TWENTY-ONE DEMANDS. Baron Shldehara, for Japan, made this formal statement about the Chlno-Japanese treaties of 1915, and the 21 demands: "At a previous session of this committee the Chinese delegation presented a. statement urging that the Sino-Jap- anese treaties and notes of 1915 be reconsidered and can- celed. The Japanese delegation, while appreciating the dif- ficult position of the Chinese delegation, does not feel at liberty to concur in the procedure now resorted to by China with a view to cancellation of international agreements which she entered into as a free sovereign Nation. "It is presumed that the Chinese delegation has no in- tention of calling in question the legal validity of the com- pacts of 1915, which were formally signed and sealed by the duly appointed representatives of the two Governments and for which the exchange of ratifications was effected in con- formity with established international usages. The in- sistence by China on the cancellation of those instruments would in itself indicate that she shares the view that the compacts actually remain in force and will continue to be effective unless and until they are canceled. "It is evident that no Nation can have given ready con- sent to cessions of its territorial or other rights of Importance. If it should once be recognized that rights solemnly granted by treaty may be revoked at any time on the ground that they were conceded against the spontaneous will of the grantor, an exceedingly dangerous precedent wH' be estab- lished, with far-reaching consequences upon tht stability of the existing international relations in Asia, in Europe and everywhere. . "The statement of the Chinese delegation under review declares that China accepted the Japanese demands In 1915 hoping that a day would come when she should have the op- portunity of bringing them up for reconsideration and can- cellation. It is, however, difficult to understand the meaning of this assertion. It cannot be the intention of the Chinese delegation to intimate that China may conclude a treaty with any thought in mind of breaking it at the first opportunity. 389 SECOND YEAR BOOK OF THE LE,aLGUE OF NATIONS. "The Chinese delegation maintains that the treaties and notes in question are derogatory to the principles adopted by the conference with regard to China's sovereignty and inde- pendence. It has, however, been held by the conference on more than one occasion that concessions made by China ex contractu, in the exercise of her own sovereign rights, can- not be regarded as inconsistent with her sovereignty and in- dependence. "It should also be pointed out that the term 'twenty-one demands,' often used to denote the treaties and notes of 1915, is inaccurate and grossly misleading. It may give rise to an erroneous impression that the whole original proposals of Japan had been pressed by Japan and accepted in toto by China. As a matter of fact, not only 'Group V,' but also several other matters contained in Japan's first proposals were eliminated entirely or modified considerably in defer- ence to the wishes of the Chinese Government, when the final formula was presented to China for acceptance. Of- nclal records published by the two Governments relating to these negotiations will further show that the most important terms of the treaties and notes, as signed, had already been virtually agreed to by the Chinese negotiators before the de- livery of the ultimatum, which then seemed to the Japanese Government the only way of bringing the protracted nego- tiations to a speedy close. "The Japanese delegation cannot bring itself to the con- clusion that any useful purpose will be served by research and re-examination at this conference of old grievances which one of the Nations represented here may have against an- other. It will be more in line with the high aim of the con- ference to look forward to the future with hope and with confidence. "Having in view, however, the changes which have taken place in the situation since the conclusion of the Sino- Jap- anese treaties and notes of 1915, the Japanese delegation is happy to avail itself of the present occasion to make the following declaration: "1. Japan is ready to throw open to the joint activity of the international financial consortium recently organized, the right of option granted exclusively in favor of Japanese capital, with regard, first, to loans for construction of rail- ways in South Manchuria and Eastern Inner Mongolia, and, second, to loans to be secured on taxes in that region, it being understood that nothing in the present declaration shall be held to imply any modification or annulment of the un- derstanding recorded in the oflScially annovinced notes and memoranda which were exchanged among the Governments of the countries represented in the consortium, and also among the national financial groups composing the con- 390 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. sortium, in relation to the scope of the Joint activity of that organization. "2. Japan lias no intention of insisting- on her prefer- ential right under the Sino-Japanese arrangements in ques- tion concerning the engagement by China of Japanese ad- visers or instructors on political, financial, military or police matters in South Manchuria. "3. Japan is further ready to withdraw the reservation which she made, in proceeding to the signature of the Sino- Japanese treaties and notes of 1915, to the effect that Group V of the original proposals of the Japanese Government would be postponed for future negotiations. "It would be needless to add that all matters relating to Shantung contained in those treaties and notes have now been definitely adjusted and disposed of. "In coming to this decision, which I have had the honor to announce, Japan has been guided by a spirit of fairness and moderation, having always in view China's sovereign rights and the principle of equal opportunity." The Chinese delegates answered this statement informally and expressed their wish to give a, more explicit answer at the next session of the Committee. M. Sarraut, for France, recalling Mr. Balfour's declara- tion about the surrender of Wei-Hai-Wei at the plenary ses- sion of the Conference on February 1, now repeated M. Vivi- ani's offer of December 4 to restore Kwangchow-wan to China on condition that all the other Powers having leased territories should restore them to China pari passu. The French Government still had the same intention and, even if the condition stated had not been fulfilled, France was will- ing to arrange directly with the Chinese Government the conditions under which, and the time when, the restitution shall become effective. Mr. Sze said that he hoped to hear on the next day that France would modify these conditions and would return th-} leased territory. He did not hear it. Feb. 3. CHINESE ANSWER TO JAPANSame Committee. Dr. Wang for China answered Baron Shidehara's statement. He outlined at length the sudden duress under which the treaties of 1915 had been forced upon China, and the protests made against such compulsion. He continued: "Because of the essential injustice of these provisions, the Chinese delegation, acting in behalf of the Chinese Gov- ernment and of the Chinese people, has felt itself In duty bound to present to this conference, representing the Powers with substantial interests in the Far East, the question as to equity and justice of these agreements and therefore as to their fundamental validity. 391 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "If Japan Is disposed to rely solely upon a claim as to the technical or juristic validity of the agreements of 1915, as having been actually signed in due form by the two Governments, it may be said that so far as this conference is concerned, the contention is largely irrelevant, for this gathering of the representatives of the nine Powers has not had for its purpose the maintenance of the legal status quo. "Upon the contrary, the purpose has been, if possible, to bring about such changes in existing conditions upon the Pacific and in the Far Bast, as might be expected to promote that enduring friendship among the nations of which the President of the United States spoke in his letter of invita- tion to the Powers to participate in this conference. "For the following reasons, therefore, the Chinese dele- gation is of the opinion that the 9ino-Japanese treaties and exchange of notes of May 25, 1915, should form the subject of impartial examination with a view to their abrogation. "1. In exchange for the concessions demanded of China, Japan offered no 'quid pro quo.' The beneiits derived from the agreements were wholly unilateral. "2. The agreements, in certain respects, are in violation of treaties between China and the other Powers. "3. The agreements are inconsistent with the principles relating to China which have been adopted by the conference. "4. The agreements have engendered constant misun- derstandings between China and Japan, and, if not abrogated, will necessarily tend, in the future, to disturb friendly rela- tions between the two countries, and will thus constitute an obstacle in the way of realizing the purpose for the at- tainment of which this conference was convened. As to this, the Chinese delegation, by way of conclusion, can, perhaps, do no better than quote from a, resolution introduced in the Japanese Parliament in June, 1915, by Mr. Hara, later Pre- mier of Japan, a resolution which received the support of some 140 members of Parliament. The resolution reads: " 'Resolved, That the negotiations carried on with China by the present Government have been inappropriate in every respect; that they are detrimental to the amicable relation- ship between the two countries, and provocative of suspicions on the part of the Powers; that they have the effect of lower- ing the prestige of the Japanese Empire, and that, while far from capable of establishing the foundation of peace in the Far East, they will form the source of future trouble.' "The foregoing declaration has been made in order that the Chinese Government may have upon record the view which it takes, and will continue to take, regarding the Sino- Japanese treaties and exchange of notes of May 25, 1915." Mr. Hughes reviewed both statements in a conciliatory 392 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. spirit. Both Mr. Hughes and Dr. Wang quoted the identic note, addressed to the Chinese and Japanese Governments by the United States Government, May 13, 1915, as follows: "In view of the circumstances of the negotiations which have taken place and which are now pending between the Government of China and the Government of Japan, and of the agreements which have been reached as a result thereof, the Government of the United States has the honor to notify the Government of (the Chinese Republic) (Japan) that it cannot recognize any agreement or undertaking which has been entered into or which may be entered into between the Governments of China and Japan impairing the treaty rights of the United States and of its citizens in China, the political or the territorial integrity of the Republic of China, or the international policy relative to China commonly known as the open door policy." Secretary Hughes called especial attention to the grati- fying declarations contained in paragraphs 2 and 3 near the close of Baron Shidehara's statement. Secretary Hughes noted that the treaty rights between China and Japan were distinct from the question of the treaty rights of the United States under its treaties with China. He concluded: "I may say that it is with especial pleasure that the Government of the United States finds itself now engaged in the act of reaffirming and defining, and I hope I may add revitalizing', by the proposed Nine-Power Treaty, these policies (the open door and equality of all nationals) with respect to China." At the suggestion of Mr. Hughes the speeches bearing oz\ the Twenty-One Demands were spread on the proceedings of the conference, the Chinese delegates reserving the right to seek a solution of the question on future occasions. On February 3, the Committee also approved a resolu- tion for the creation of a Board of Reference in China, said resolution to be appended to the Open Door Treaty. (See original Open Door resolutions under date of January 16-18.) February 4. SIXTH PLENARY SESSION OF THE CON- FERENCE — The Nine-Power Treaty on the Open Door in China received Its final touches in Committee on February, and was adopted by the Conference as its first action on Feb- ruary 4. The United States of America, Belgium, the British Empire, China, France, Italy, Japan, the Netherlands and Portugal: Desiring to adopt a policy designed to stabilize condi- tions in the Far East, to safeguard the rights and interests 393 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. of China, and to promote intercourse 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 plenipoten- tiaries: (Here follow the names of the plenipotentiaries.) Who, having communicated to each other^ their full powers, found to be in good and due form, have agreed as follows: ARTICLE 1. The Contracting Powers, other than China, agree: 1. To respect the sovereignty, the independence, and the territorial and administrative integrity of China. 2. To provide the fullest and most unembarrassed op- portunity to China to develop and maintain for herself an effective and stable Government. 3. To use their influence for the purpose of effectually establishing and maintaining the principle of equal oppor- tunity for the commerce and industry of all nations through- out 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 they will not seek, nor support their respective nations in seeking: (A) Any arrangement which might purport to estab- lish in favor of their interests any general superiority of rights with respect to commercial or economic development in any designated region in 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 participat- ing with the Chinese Government, or with any local author- ity, in any category of public enterprise, or which by reason 394 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 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 acquisi- tion 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 re- search. 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 Gov- ernments and nationals of all foreign countries, whether par- ties to the present treaty or not. ARTICLE IV. The Contracting Powers agree not to support any agree- ments by their respective nationals with each other, designed to create spheres of influence or to provide for the enjoyment of mutually exclusive opportunities in designated parts of Chinese territory. ARTICLE V. China agrees that, throughout the whole of the railways in China, she will not exercise or permit unfair discrimina- tions of any kind. In particular there shall be no discrimina- tion 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 transport 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 concessions, special agreement or otherwise. ARTICLE VI. The Contracting Parties, 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 obligations of neutrality. ARTICLE VII. The Contracting Powers agree that, whenever a situation arises which, in the opinion of any one of them, involves the 395 Second year book of the league of nations. application of the stipulations of the present treaty, and ren- ders 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 make the necessary communications to non-signatory Powers and will inform the Contracting Powers of the replies received. Adherence by any Power shall be- come 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 English and French texts are both authentic, shall remain deposited in the ar- chives of the Government of the United States, and duly certified copies thereof shall be transmitted by that Govern- ment 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 Feb- ruary, one thousand nine hundred and twenty-two. The Chairman then presented this resolution for a Board of Reference in China, which was approved as a supplement to the treaty: The United States of America, Belgium, the British Empire, China, Prance, Italy, Japan, the Netherlands and Portugal, Desiring to provide a, procedure for dealing with ques- tions 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 6, 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 promote intercourse between China and the other Powers upon the basis of equality of opportunity. Resolved, That there shall be established in China a board of reference to which any questions arising in connec- 396 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. tlon with the execution of the aforesaid articles may he re- ferred for investigation and report. The special conference, provided in Article II of the treaty to be signed at Washington on February 6, 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. Chairman Hughes offered the following explanatory comment: It will he observed that certain of the resolutions adopted by the committee, and on its recommendation adopted by the conference, are put in treaty form and other resolutions are not put in that form. The distinction is that those engage- ments which it is deemed require the sanction of a treaty are put in the form of a treaty and proposed for execution by the Powers. In other cases the resolutions are of a char- acter not requiring such sanction in the form of a treaty, and are deemed to be binding upon the Powers according to their tenor when adopted by the conference. In accordance with the recommendation of the Commit- tee on Pacific and Far Eastern Questions, the following declaration on the part of China is presented, to be spread upon the records of the conference as follows: "China upon her part is prepared to give an undertaking not to alienate or lease any portion of her territory or littoral to any power." The conference assented to placing this statement on the record. Senator Underwood presented a Chinese Tariff Treaty, based on the reports approved in the Far Eastern Commit- tee, January 5 and 16. ,, „ .^. i, ■„„ The United States of America, Belgium, the British Em- pire, 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 mat- ters, and to that end have appointed as their plenipoten- tiaries : [Here foHow the names of the plenipotentiaries.] Who having communicated to each other their full pow- ers, found to be in good and due form, have agreed as follows; ARTICLE I. The representatives of the contracting Powers having adopted on the 4th 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 397 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. 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 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, Bel- gium, 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 Shang- hai on December 19, 1918, shall forthwith be revised so that rates of duty shall be equivalent to 5 percent, effective, as provided for in the several commercial treaties to which China is a part. A revision commission shall meet at Shanghai, at the earliest practicable 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 addi- tional 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 ex- ports not to exceed 5 percent, 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 resolution by the Conference on Limita- tion of Armament and Pacific and Par Eastern Questions. The revised tariff shall become effective as soon as pos- sible, but not earlier than two months after its publication by the Revision Commission. The Government of the United States, as convenor of the present conference, is requested forthwith to communicate the terms of this resolution to the Governments of Power.s not represented at this conference, but who participated in the revision of 1918 aforesaid. ARTICLE II. Immediate steps shall be taken through a special con- ference to prepare the way for the speedy abolition of likin and for the fulfillment of the other conditions laid down in Article VIII of the tre?ity of September 5, 1902, between Great 398 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Britain and China; in Articles IV and V of tine treaty of Oc- tober 8, 1903, between tlie United States and China, and in Article I of the supplementary treaty of October 8, 1903, be- tween Japan and China, with a view to levying the surtaxed provided for in these articles. The special conference shall be composed of representa- tives of the signatory Powers, and of such other Powers as may desire to participate and may adhere to the present treaty, in accord with the provisions of Article VIII, in suf- ficient time to allow their representatives to take part. 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 down 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 lo such conditions as it may determine. The surtax shall be at a uniform rate of 2% 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 increase-d, but may not exceed 5 per centum ad valorem. ARTICLE IV. Following the immediate revision of the customs sched- ule 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 completion of the aforesaid immediate revision, in order to insure that thr-- customs duties shall correspond to the ad valorem rates fixed by the special conference provided 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 pursu- ance of this article shall be effected in accord 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 399 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. effective equality of treatment and of 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 ad- justments 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 cus- toms 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 mari- time frontiers of China. 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 Gov- ernments are at present recognized by the signatory Powers and whose- present treaties with Ch=na 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 mak-i the necessary communications for this purpose and to inform the Government of the contracting powers of the replies re- ceived. 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 con- tracting 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 accord with their respective constitutional meth- ods and shall take effect on the date of the deposit of all the 400 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ratificayons, which shall take place at Washington as soon as possible. The Government of the United States will trans- mit 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 ar- chives of the Government of the United States and duly cer- tified 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 Febru- ary, one thousand nine hundred and twenty-two. The conference formally approved the following resolu- tions (dates of committee adoption in parentheses): 1. On Chinese Eastern Railway (February 2.). 2. That the Japanese, Chinese and American statements about the twenty-one demands be placed on the records of the conference (February 23). 3. That the Japanese, American and French statementii about Siberia (January 23 and 24) be placed upon the records of the conference. 4. That a commission of jurists be appointed to con- sider International laws with respect to new agencies of war- fare (January 27). 5. That the Secretary-General be authorized to provide for the publication of the minutes of the conference. JAPAN'S HOMELAKD EXCLUDED FROM FOUR-POWER TREATY. It was also announced at this plenary session on Feb- ruary 4 that the four Powers concerned in the treaty of De- cember 13, 1921, had agreed upon this supplement to that treaty: The United States of America, the Britislr Empire, France and Japan have, through their respective plenipotentiaries, agreed upon the following stipulations supplementary to the quadruple treaty signed at Washington 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 provision 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 401 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the United States, and duly certified copies thereof shall be transmitted by that Government to each of the other con- tracting Powers. In faith whereof the respective plenipotentiaries have signed the present agreement. Done at the City of Washington, the sixth day of Febru- ary, one thousand nine hundred and twenty-two. ANNEX TO NAVAL LIMITATION TREATY. The confer- ence also placed upon its records a resolution supplementary to the Naval Limitation Treaty (February 1), and reading as follows: "It should, therefore, be recorded in the minutes of the subcommittee and before the full conference that the Powers signatory of the treaty of naval limitation regard themselves in honor bound not to sell any ships between the present date and ratification of the treaty, when such u. sale would be :• breach of Article XVIII." The Chinese Minister, Dr. Sze, expressed his satisfaction with the outcome of the conference, and singled out the Shantung agreement, a collateral result, as a special cause for thanksgiving to President Harding, Mr. Hughes and Mr. Balfour. The Chinese President at Peking, Hsu Shih Chang, on February 5, cabled to Mr. Harding his grateful acknowledg- ment that, by the Shantung solution, "the peace of the Far Bast Is further insured." Baron Kato gave to the press (February 6) a statement, of which this is the concluding paragraph: "In Japan we realized that a new spirit of moral con- sciousness had come over the world, but we could not bring ourselves truly to believe that it had struck so deeply into th^ souls of men, until we came to Washington. We came and we have learned; and in turn we have, I think, given evidence, such as no man can mistake, that Japan is ready for the new order of thought — the spirit of international friendship and co-operation for the greater good of humanity — which the conference has brought about." THE FINAL SESSION (seventh plenary) of the conference was held on February 6 when the work of signing treatie.s was completed, and President- Harding delivered a farewell address of congratulation and hope. The following paragraphs are a particularly significant portion of his address: You have written the first deliberate and effective ex- pression 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 402 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. one sure way to recover from the sorrow and ruin and stag- gering 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 apprehen- sion. At this table came understanding, and understanding brands armed conflict as abominable in the eyes of enlight- ened civilization. I once believed in armed preparedness. I advocated it. But I have come to believe there is better preparedness in a public mind and a world opinion made ready to grant jus- tice precisely as it exacts it. And justice is better served in conferences of peace than in conflicts at arms. How simple it all has been! When you met here twelve weeks ago there was not a commitment, not an obligation, except that which each delegation owes to the Government commissioning it. But human service was calling, world con- science was impelling, and world opinion directing. No intrigue, no offensive or defensive alliances, no in- volvements have wrought your agreements, but reasoning with each other to common understanding has made new relationships among Governments and peoples, new securi- ties for peace, and new opportunities for achievement and at- tending happiness. Here have been established the contacts of reason, here has come the inevitable understanding of face-to-face ex- changes when passion does not inflame. The very atmosphere shamed national selfishness into retreat. Viewpoints were ex- changed, differences composed, and you came to understand how common, after all, are human aspirations; how alike, in- deed, 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 accom- plishment. It may be that the naval holiday here contracted will expire with the treaties, but I do not believe it. Those of us who live another decade are more likely to witness a growth of public opinion, strengthened by the new experience, which will make Nations more concerned with living to the ful- fillment of God's high intent than with agencies of warfare and destruction. Since this conference of Nations has pointer! with unanimity to the way of peace today, like conferences in the future, under appropriate conditions and with aims 403 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. both well conceived and definite, may illumine the highway!^ and byways of human activity. The torches of understand- ing have been lighted, and they ought to glow and encircle the globe. The conference was closed, as it was begun, with prayer by Rev. Dr. W. S. Abernethy. ORGANIZATIONS AUTHORIZED BY THE WASHINGTON CONFERENCE. 1. A Five-Power conference to be called by the United States under the Naval Limitation Treaty, eight years after the treaty comes into force in order to consider what changes if any, may be necessary. 2. Rules of Warfare Commission, representing the five Powers. The United States Government, having been noti- fied within three months that the other Powers have selected delegates, is to fix the time and place of meeting. 3. A Nine-Power Revision Commission, under the Chi- nese Tariff Treaty, to meet at Shanghai and determine the customs rates. To this work three months are assigned. Then 4. A Special Conference meets in China to arrange for the abolition of the "likin" taxes, the imposition of surtaxes, and future periodical tax revisions. 5. A Board of Reference, under the Open Door Treaty, to consider economic and railway questions arising under the treaty and to make report. The Special Conference is to de- termine the composition of the Board. 6. An Eight-Power Commission on Extraterritoriality in China is to be constituted within three months, and must make report within a, year. 7. A special commission, composed of three Japanese and three Chinese, is set up by the Shantung Treaty to work out details of the transfer of Kiao-Chau to Chinese control. 8. The diplomats stationed at Peking are to confer with Chinese officials "whenever China shall so request" regarding withdrawal of foreign troops from Chinese soil. 9. The managers of foreign wireless stations in China are to confer with the Chinese Communications Minister to work out details of radio regulations. The documents embodying the official decisions of the Conferencet comprise the following: TREATIES. 1. Treaty between the United States, British Empire, France, Italy and Japan, limiting naval armament. tThe ofiicial report of the Washington Conference, containing the record of all plenary sessions and all committee mieetings, is published as Senate Document No. 126, of the 2nd Session of the 67th Congress. 404 jECO ND YEAR BOOK OF THE LEAGUE OF NATIONS. 2. Treaty between the same Powers in relation to the use of submarines and noxious gases in warfare. 3. Treaty between the United States, British Empire, France and Japan, relating- to insular possessions and in- sular dominions in the Pacific Ocean. 4. Declaration accompanying the Four-Power Treaty. 5. Treaty between the same four Powers supplemen- tary to the above. 6. A treaty between nine Powers relating- to principles and policies to be followed in matters concerning China. 7. Treaty between the same nine Powers relating to the Chinese customs tariff. RESOLUTIONS. 1. For a Commission of Jurists to consider amendment of the laws of war. 2. Limiting- the jurisdiction of the Commission of Jur- ists provided in Resolution 1. 3. Regarding a Board of Reference for Far Eastern questions. 4. Regarding extraterritoriality in China. 5. Regarding foreign postal agencies in China. 6. Regarding armed forces in China. 7. Regarding radio stations in China and accompanying declarations. 8. Regarding unification of railways in China and ac- companying declaration by China. 9. Regarding the reduction of Chinese military forces. 10. Regarding existing commitments of China or with respect to China. 11. Regarding the Chinese Eastern Railway. Approved by all the Powers, including China. 12. Regarding the Chinese Eastern Railway. Approved by all the Powers other than China. INCLUSION OF PACIFIC POSSESSIONS OF PORTUGAL AND THE NETHERLANDS WITHIN THE SCOPE OF THE FOUR-POWER TREATY. On February 16, Senator Lodge put into the Congres- sional Record* an important letter from Secretary Hughes, revealing that, twelve days before and prior to the adjourn- ment of the Conference, the three great naval Powers and France had agreed to recognize the Netherlands and Portugal in relation to the Pour-Power Treaty, thus: "Referring to our conversations in relation to the note •Cong. Rec, 67th Cong., 2nd Session, Vol. 62,- No. 63, p. 2946. 405 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. given to the Netherlands Government, I beg to say. that the following is a copy of the note which was delivered to the Minister for Foreign Affairs of the Netherlands on Feb. 4, 1922: " 'The United States of America have concluded on Dec. 13, 1921, with the British Empire, France and Japan, a treaty with a view to the preservation of the general peace and the maintenance of their rights in relation to their in- sular possessions and insular dominions in the region of the Pacific Ocean. They have agreed thereby as between them- selves to respect their rights in relation to these possessions and dominions. " 'The Netherlands not being signatory to the said treaty and the Netherlands possessions in the region of the Pacific Ocean therefore not being included in the agreement referred to, the Government of the United States, anxious to forestall any conclusion contrary to the spirit of the treaty, desires to declare that it is firmly resolved to respect the rights of the Netherlands in relation to their insular possessions in the region of the Pacific Ocean.' " This is identical with notes delivered by the British, French and Japanese Ministers. A similar note was delivered to the Portuguese Govern- ment. Ratification of Treaties The treaties signed at the Conference were submitted to the Senate on February 10, 1922. On the following day Sec- retary Hughes and Ambassador Shidehara signed a treaty covering the rights of the United States and its citizens in the island of Yap and other North Pacific Islands under the mandate of Japan. This treaty, immediately sent to the Senate, was the first one acted upon by that body, which approved it on March 1 by a vote of 67 to 22. The treaty followed the outlines of the preliminary agreement, which was published during the conference under date of December 12-13, 1921. For full text of the treaty and an account of its ratification see Current History for April, 1922, pp. 120-122. Of the treaties prepared in the conference the Four-Power Treaty concerning insular possessions in the Pacific was the only one to which there was strong opposition in the Senate. The Committee on Foreign Relations reported the others with unqualified ap- proval, but recommended the Four-Power Treaty on Febru- ary 25 with an interpretative reservation, as follows: "The United States understands that under the state- ment 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." In opposition to the ratification of 406 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the Four-Power Treaty the Democratic Senators who were the warmest friends of the League of Nations and the "irreconcilable" foes of the League united their forces. To- gether tliey formed almost one-third of the Senate. There- fore the three or four Senators who demanded the foregoing reservation were able to impose it upon the treaty, since their votes were necessary to malce up the required two-thirds ma- jority of the Senate. After a, prolonged and bitter debate, which aroused great interest throughout the country and revealed an overwhelm- ing public opinion in favor of the treaties, the Senate on March 24 voted for ratification of the Four-Power Treaty by 67 against 2 7, three more than two-thirds. The minority comprised 23 Democrats and 4 Republicans. All the other treaties were approved without serious opposition, the last ratifications occurring on March 29. Supreme Council The Supreme Council met at Cannes on January 5 and decided to invite all European States except Turkey to a con- ference at Genoa in April. The United States was also invited, but on March 8 sent a declination. At Cannes also Mr. Lloyd George and Premier Briand drew up a. proposed Franco- British treaty whereby Great Britain promised help to France against German aggression. The sudden resignation of Premier Briand on January 12 left this guarantee in suspense. The conference met on Monday, April 10, and for the first time since the war the neutrals, the ex-enemy States and Russia sat down to discuss matters as equals. Council of the League of Nations The sixteenth session of the Council was held at Geneva, January 10-14, 1922. Its most important acts were the recognition of an International Bureau at Brussels for col- lecting Information about the liquor traffic in Africa, the de- cision to withdraw from the Polish-Lithuanian controversy over Vilna, the re-election of Gen. Sir Richard Haking to be the League's High Commissioner at Danzig, and the ap- pointment of an advisory committee under the new con- vention for the suppression of traific in women and children. A full account of proceedings at this session of the Council will appear in the Year Book for 1922. The Permanent Court. The first session of the Perma- nent Court of International Justice was held at The Hague on Monday, January 30, 19 22. Eleven of the fifteen judges were present. Officers of the Court were elected on Febru- ary 3, and the first ceremonial session took place on Febru- ary 15. On March 24 the Court adjourned until June 15. 407 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. Appendix 1. MESOPOTAMIAN OIL, AND CLASS "A" MANDATES. While this mandate discussion was engaging the attention of the Council, the text of the Franco-British Convention of December 23, 1920, concerning new boundaries for French and English mandated territory in Syria and Mesopotamia, was received at Washington, February 20, 1921. This Con- vention was a sequel to the San Remo Agreement on Oil. That Agreement, signed April 25, 1920, was made at the meeting of the Supreme Council, which assigned mandates for Palestine and Mesopotamia to Great Britain, and man- dates for Syria and the Lebanon to France. The text of the Oil Agreement was kept secret for some time, but its terms, as they became known, drew forth protests, already cited, from the United States Government against the barring of Americans from oil fields supposed to be capable of yielding five billion barrels of oil, or as much as the total estimated oil resources of the United States. The text of the San Remo Agreement is as follows:* Memorandum of Agreement between M. Philippe Ber- thelot, Directeur des Affaires politiques et commerciales au Ministere des Aftaires Btrangeres, and Professor Sir John Cadman, K. C. M. G., Director in Charge of his Majesty's Petroleum Department: 1. By order of the two Governments of Prance and Great Britain, the undersigned representatives have resumed, by mutual consent, the consideration of an agreement re- garding petroleum. 2. Tills agreement is based on the principles of cordial co-operation and reciprocity in those countries where the oil interests of the two nations can be usefully united. This memorandum relates to the following States or countries: Rumania, Asia Minor, territories of the old Rus- sian Empire, Galicia, French colonies and British Crown colonies. 3. The agreement may be extended to other countries by mutual consent. 4. RUMANIA — The British and French Governments shall support their respective nationals in any common nego- tiations to be entered into with the Government of Rumania, for *This text appeared in International Conciliation Pamphlet No. 166 (Sept. 1921); also In Current History for January, 1922, pp. 65^-r,59. 408 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. (a) The acquisition of oil concessions, shares or other interests belonging- to former enemy subjects or bodies in Ru- mania which have been sequestrated, e.g., the Steaua Ro- mana, Concordia, Vega, &c., which constituted in that coun- try the oil groups of the Deutsche Bank and of the Disconto Gesellschaft, together with any other interests that may be obtainable. (b) Concessions over oil lands belonging to the Ru- manian State. 5. All shares belonging to former enemy concessions which can be secured, and all other advantages derived from these negotiations shall be divided, 50 per cent, to British interests and 50 per cent, to French interests. It is under- stood that in the company or companies to be formed to undertake the management and the exploitation of the said shares, concessions and other advantages, the two countries shall have the same proportion of 50 per cent, in all capital subscribed, as well as in representatives on the board, and voting power. 6. TERRITORIES OF THE LATE RUSSIAN EMPIRE — In the territories which belong to the late Russian Empire, the two Governments will give their joint support to their respective nationals in their joint efforts to obtain petroleum concessions and facilities to export and to arrange delivery of petroleum supplies. 7. MESOPOTAMIA — The British Government under- takes to grant to. the French Government or its nominee 25 per cent, of the net output of crude oil at current market rates which his Majesty's Government may secure from the Mesopotamian oil fields, in the event of their being developed by Government action; or in the event of a private petroleum company being used to develop the Mesopotamian oil fields, the British Government will place at the disposal of the French Government a share of 25 per cent, in such com- pany. The price to be paid for such participation to be no more than that paid by any of the other participants to the said petroleum company. It is also understood that the said petroleum company shall be under permanent British control. 8. It is agreed that, should the private petroleum com- pany be constituted as aforesaid, the native Government or other native interests ijhall be allowed, if they so desire, to participate up to a maximum of 20 per cent, of the share capital of the said participation, and the additional partici- pation shall be provided by each participant in proportion to his holdings. 9. The British Government agree to support arrange- ments by which the French Government may procure from the Anglo-Persian Company supplies of oil, which may be 409 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. piped from Persia to the Mediterranean tlirough any pipe line which may have been constructed within the French mandated territory, and in regard to which France has given special facilities, up to the extent of 25 per cent, of the oil so piped, on such terms and conditions as may be nautually agreed between the French Government and the Anglo-Per- sian Company. 10. In consideration of the above-mentioned arrange- ments the French Government shall agree, if it is desired and as soon as application is made, to the construction of two separate pipe lines and railways necessary for their construc- tion and maintenance, and for the transport of oil from Mesopotamia and Persip, through French spheres of influ- ence to a port or ports on the Eastern Mediterranean. The port or ports shall be chosen in agreement between the two Governments. 11. Should such pipe line and railways cross territory within a French sphere of influence, France undertakes to give every facility for the rights of crossing without any roy- alty or wayleaves on the oil transported. Nevertheless, com- pensation shall be payable to the landowners for the surface occupied. 12. In the same way France will give facilities at the terminal port for the acquisition of the land necessary for the erection of depots, railways, refineries, loading wharves, &c. Oil thus exported shall be exempt from export and transit dues. The material necessary for the constniction of the pipe lines, railways, refineries and other equipment shall also be free from import duties and wayleaves. 13. Should the said petroleum company desire to lay a pipe line and a railway to the Persian Gulf, the British Gov- ernment will use its good ofllces to secure similar facilities for that purpose. 14. NORTH AFRICA AND OTHER COLONIES — The French Government will give facilities to any Franco-British group or groups of good standing, which furnish the neces- sary guarantees and comply with French laws, for the acqui- sition of oil concessions in the French colonies, protectorates and zones of influence, including Algeria, Tunis and Morocco. It should be noted that the French Parliament has resolved that groups so formed must contain at least 67 per cent. French interests. 15. The French Government will facilitate the granting of any concessions in Algeria which are now under consider- ation, as soon as the applicants have complied with all the requirements of the French laws. 16. BRITISH CROWN COLONIES — In so far as exist- 410 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. ing regulations allow, the British Government will give to French subjects who may wish to prospect and exploit petro- liferous lands in the crown colonies, similar advantages to those which France is granting to British subjects in the French colonies. 17. Nothing in this Agreement shall apply to conces- sions which may be the subject of negotiations initiated by French or British interests. IS. This Agreement has today been initialed by M. Philippe Berthelot and Professor Sir John Cadman, subject to confirmation by the French and British Prime Ministers, respectively. San Hemo, April 24, 1920. J. CADMAN. P. BERTHELOT. Confirmed D. LLOYB GEORGE. April 25, 1920. A. MILLERAND. August 10, 1920, the treaty with Turkey (Sevres) was intended to provide a solid legal basis for the assignment of the mandates in Class A. This was spoiled by the movement of Turkish nationalists headed by Mustapha Kemal Pasha, who made Angora more truly than Constantinople the seat of Turkish government, and who refused to accept the treaty of Sevres. Inquiry from the United States Government, directed to Great Britain, concerning the San Remo Agreement, culmi- nated in the following note from Secretary Colby to Earl Curzon of Kedleston, dated November 20, 1920. This is the note referred to in Secretary Colby's letter of February 21, 1921, to the League of Nations. See page 24. Embassy of the United States of America, November 20th, 1920. My Lord, I have the honor to refer to your Note of August 9th, regarding the application of the principle of equality of treat- ment to the territories of the Near East to be placed under mandates, and specifically to the petroleum resources of those territories as affected by that principle. Before considering the observations of His Majesty's Government on the general principles advocated by the United States, and agreed to by the Allied Powers, for appli- cation to the mandates over former Turkish territory, as out- lined in the Notes of May 12th and July 28th, addressed to you on behalf of this Government, I think it will clarify the discussion to indicate certain of your statements and assur- ances which this Government has been pleased to receive. Thus, I note that the assignment to Great Britain of the 411 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. mandate for Mesopotamia was miade and accepted subject to no friendly arrangement whatever with any third Govern- ment regarding economic rights, which, of course, would have been wholly at variance with the purpose and contem- plation of any mandate. It is also gratifying to learn that His Majesty's Govern- ment is in full sympathy with the several propositions for- mulated in the Note of May 12th, above referred to, which embody or illustrate the principles which this Government believes should be applied In the mandated regions, and which are essential to the practical realization of equality of treat- ment. The statements of your Note, to the effect thafr the Brit- ish Government has refrained from exploiting the petroleum resources of the mandated territories in question; that the operations referred to have been conducted for purely mili- tary purposes under the immediate supervision of the Army authorities and at Army expense; and that no private in- terests whatever are in any way involved, are accepted with a full sense of the good faith of the British Government. The Government of the United States notes that His Majesty's Government has found it necessary to suspend, during the period of occupation, the grant of facilities and opportunities to British as well as to other private interests to investigate the natural resources of the country, either for the purpose of acquiring new claims or strengthening old ones, and that there is no reason for assuming that the ad- ministration either of Mesopotamia or of Palestine has at any time failed to carry out the assurances of His Majesty's Government. This Government welcomes your pledges to the effect that the natural resources of Mesopotamia are to be secured to the people of Mesopotamia and to the future Arab State, to be established in that region, and that it is the purpose of the British Government, fully alive to Its obligations as a temporary occupant, not only to secure those resources to the Mesopotamian State, but also its absolute freedom of action in the control thereof, and in particular that it is far from the intention of the mandatory Power to establish any kind of monopoly or preferred position in its own interest. The Government of the United States appreciates, like- wise, the concurrence with its view that the merits of all claims to rights alleged to have been acquired in the man- dated territories before the outbreak of hostilities must be duly established before recognition of such claims will be accorded. Adverting, at this point, to the views of His Majesty's Government regarding the nature of the responsibilities of mandatory Powers under the League of Nations, I desire to 4r2 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. call to the attention of His Majesty's Government the fact that, while the draft mandate, Form A, was adopted at Paris, It was the understanding of the American representatives, there present, that the British Government entertained and has expressed convictions favorable to said form, and that, presumably, its representatives would exercise their influ- ence in conformity with those convictions. I need hardly refer again to the fact that the Govern- ment of the United States has consistently urged that it is of the utmost importance to the future peace of the world that alien territory transferred as a, result of the war with the Central Powers should be held and administered in such a way as to assure equal treatment to the commerce and to the citizens of all nations. Indeed, it was in reliance upon an understanding to this effect, and expressly in contempla- tion thereof, that the United States was persuaded that the acquisition under mandate of certain enemy territory by the victorious Powers would be consistent with the best interests of the world. It is assumed, accordingly, that your statements with reference to Mandate A, together with the statement that the draft mandates for Mesopotamia and Palestine have been prepared with a view to secure equality of treatment for the commerce and citizens of all States which are Members of the League of Nations, do not indicate a supposition on your part that the United States can be excluded from the bene- fits of the principle of equality of treatment. This Government is pleased to find that His Majesty's Government is In full sympathy with the principles formu- lated in Its communications of May 12th and July 28th. But it Is unable to concur in the view, contained in paragraph 15 of your Note, that the terms of the mandates can properly be discussed only In the Council of the League of Nations and by the signatories of the Covenant. Such powers as the Allied and Associated Nations may enjoy or wield, in the determination of the governmental status of the mandated areas, accrues to them as direct result of the war against the Central Powers. The United States, as a participant in that conflict and as a contributor to Its successful issue, cannot consider any of the Associated Powers, the smallest not less than itself, debarred from the discussion of any of its con- sequences, or from participation in the rights and privileges secured under the mandates provided for in the Treaties of peace. This Government notes with interest your statement that the draft mandates for Mesopotamia and for Palestine, which have been prepared with a view to secure equality of, treat- ment and opportunity for the commerce, citizens and subjects of all States which are Members of the League of Nations, 413 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. will, when approved by the Interested Allied Powers, be oom- m-unicated to the Council of the League of Nations. The United States is, undoubtedly, one of the Powers directly in- terested in the terms of the mandates, and I therefore re- quest that the draft mandate forms be communicated to this Government for its consideration before their submission to the Council of the League. It is believed that His Majesty's Government will be the more ready to acquiesce in this re- quest, in view of your assurance that His Majesty's Govern- ment is in full sympathy with the various principles contained in the two previous Notes of this Government upon this subject. The establishment of the mandate principle, a new prin- ciple in international relations, and one in which the public opinion of the world is taking a special interest, would seem to require the frankest discussion from all pertinent points of view. It would seerii essential that suitable publicity should be given to the drafts of mandates which it is the intention to submit to the Council, in order that the fullest opportunity may be afforded to consider their terms in rela- tion to the obligations assumed by the mandatory Power, and the respective interests of all Governments, which are or deem themselves concerned or affected. The fact cannot be ignored that the reported resources of Mesopotamia have interested public opinion of the United States, Great Britain and other countries as a potential sub- ject of economic strife. Because of the fact, they become an outstanding illustration of the kind of economic question with reference to which the mandate principle was especially designed, and indeed a peculiarly critical test of the good faith of the nations which have given their adherence to the principle. This principle was accepted in the hope of obvi- ating in the future those international differences that grow out of a desire for the exclusive control of the resources and markets of annexed territories. To cite a single example: because of the shortage of petroleum, its constantly increasing commercial importance, and the cont;inuing necessity of re- plenishing the world's supply by drawing upon the latest resources of undeveloped regions, it is of the highest impor- tance to apply to the petroleum industry the most enlight- ened principles recognized by nations as appropriate for the peaceful ordering of their economic relations. This Government finds difficulty in reconciling the spe- cial arrangement referred to in paragraphs 18 and 19 of your Note, and set forth in the so-called "San Remo Petroleum Agreement," with your statement that the petroleum re- sources of Mesopotamia, and freedom of action in regard thereto, will be secured to the future Arab State, as yet un- organized. Furthermore, it is difficult to harmonize that 414 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. special arrangement with your statement that concessionary claims relating to those resources still remain in their pre- war position, and have yet to receive, with the establishment of the Arab State, the equitable consideration promised by His Majesty's Government. This Government has noted in this connection a piiblic statement of His Majesty's Minister in Charge of Petroleum Affairs to the effect that the San Remo Agreement was based on the principle that the concessions granted by the former Turkish Government must be honored. It would be reluctant to assume that His Majesty's Government has already under- taken to pass judgment upon the validity of concessionary claims in the regions concerned, and to concede validity to certain of those claims which cover, apparently, the entire Mesopotamia area. Indeed, this Government understands your Note to deny having taken, and to deny the intention to take, any such ex parte and premature action. In this con- nection, I might observe that such information as this Gov- ernment has received indicates that, prior to the war, the Turkish Petroleum Company, to make specific reference, pos- sessed in Mesopotamia no rights to petroleum concessions or to the exploitation of oil; and in view of your assurance that it is not the intention of the Mandatory Power to establish on its own behalf any kind of monopoly, I am at some loss to understand how to construe the provisions of the San Remo Agreement that any private petroleum company which may develop the Mesopotamian oil fields "shall be under perma- nent British control." Your Lordship contrasts the present production of petro- leum in the United States with that of Great Britain and some allusion is made to American supremacy in the petroleum industry. I should regret any assumption by His Majesty's Government or any other friendly Power that the views of this Government as to the true character of a mandate are dictated in any degree by considerations of the domestic need or production of petroleum, or any other commodity. I may be permitted to say, however, for the purpose of correcting a misapprehension which your Note reflects, that the United States possesses only one-twelfth approximately of the petroleum resources of the world. The oil resources of no other nation have been so largely drawn upon for foreign needs, and Your Lordship's statement that any prophecies as to the oil-bearing resources of unexplored and undeveloped countries must be accepted with reserve, hardly disposes of the scientific calculations upon which, despite their problemat- ical elements, the policies of States and the anticipations of world-production are apparently proceeding. The Govern- ment of the United States assumes that there is a general recognition of the fact that the requirements for petroleum 415 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. are in excess of production and it believes that opportunity to explore and develop the petroleum resources of the world wherever found should without discrimination be freely ex- tended, as only by the unhampered development of such resources can the needs of the world be met. But it is not these aspects of oil production and supply, in so far as they are of domestic interest to the United States, with which I am concerned in this discussion. I have alluded to them in order to correct contusing inference, liable to arise from certain departures which I believe I discern in Your Lordship's communication from the underlying principles of a mandate, as evolved and sought to be applied by the Allied and Associated Powers to the territories brought under their temporary dominion, by their .loint struggle and common vic- tory. This dominion will be wholly misconceived, not to say abused, if there is even the slightest deviation from the spirit and the exclusive purpose of a trusteeship as strict as it is comprehensive. Accept, My Lord, the assurance of my most distinguished consideration. (Signed) BAINBRIDGE COLBY, Secretary of State of the United States of America. The Right Honorable Earl Curzon of Kedleston, K. G., His Britannic Majesty's Secretary of State for Foreign Affairs, etc. The next step was the Franco-British Convention of De- cember 23, 1920, above referred to, which was summarized in the First Year Book, pp. 61, 62. The complete text is to be found in Current History for January, 1922, pp. 655-657; also in International Conciliation Pamphlet No. 166 (Sept. 1921). This Convention, it should be noted, was kept secret like the San Remo Oil Agreement, and it was made one month after the receipt of Secretary Colby's first letter of protest, November 20, 1920. By this Convention the two Powers ad- justed the frontiers of mandated territories so that England could construct across the Syrian desert within its own terri- tory a railway and pipe line connecting with the Hedjaz rail- way and the Bagdad and Mosul railways — a link in a possible all-rail route to India. England also gained for Palestine some mountain terri- tory from which to draw a water-supply. On the other hand. Prance extended its Syrian frontiers to tap the oil-producing district in upper Mesopotamia. Apart from the disposal of oil wealth which might have been administered for the benefit of Mesopotamia and its peo- ple, this compact is noteworthy in that it shows two Powers changing the boundaries of the territories for which they held 416 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. mandates, a proceeding not warranted by the terms of the Covenant of the peace treaties. Meanwhile there had been great opposition among the Arabs both to the English in Mesopotamia and to the French in Syria. In July the reported forces of Great Britain in Mesopotamia included 15,000 white soldiers, about 80,000 Indian troops, and an air force of 1,000 men and 120 officers. Under date of March 1, 1921, Lord Curzon sent a tardy reply to Secretary Colby's note of November 20 on mandates in general and the Mesopotamian oil agreement in particular. The British note was not made public until April 5. Lord Curzon went back as far as 1906 to show that oil concessions in the vilayets of Mosul and Bagdad had been granted to British interests, and added that these rights are just as valid as any that the Standard Oil Company possesses in Palestine. Requests that valid property rights be disregarded are stigmatized as "scarce^ly consistent" with the attitude "adopted by the United States in regard to similar United States inter- ests in oil properties in Mexico." The British note expresses agreement with the American argument that the world's oil resources should be open for de- velopment without reference to nationality, but notes that an act of the Philippine Legislature in 1920 reserves development of public mineral lands there to citizens of the United States or the Philippines. Such legislation cannot but be regarded "as in contradiction of the general principle enunciated by the United States," it continued, and added: "In this connection, I observe that Mr. Colby does not at- tempt to refute the statements contained in my note of August 9 last concerning the action taken by the United States Gov- ernment to prevent the exploitation by British interests of such resources in Hayti and Costa Rica."' Lord Curzon alluded to Secretary Colby's statement that the United States possessed only one-twelfth approximately of world oil resources. The question, ho said, was of "subsid- iary importance" in the discussion, but added that while "the potentialities of the future are necessarily problematical, the undisputed fact remains that at present United States soil produces 70 per cent., and American interests in adjoining ter- ritory controls a further 12 per cent, of the oil production of the world." •The allusion to Costa Rica refers to tile Amory oii concession, granted by tlie Costa Rican Government of Federico Tinoco, wliich the United States refused to recognize as either a de facto or de jure Gov- ernment. This concession was said to belong to the so-called Cowdray oil interests, and was annulled by the Government that succeeded Tinoco's, Aug. 11, 1920. Secretary Hughes informed Great Britain, April 15 that the United States had refused to support American citi- zens who obtained concessions from Tinoco. 14 417 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. "It is not easy, therefore," Lord Curzon said, "to justify the United States Government's insistence that American con- trol should now be extended to resources which may he devel- oped in mandated territories, and that, too, at the expense of the subjects of another state who have obtained a, valid con- cession from the former government of those territories." Lord Curzon's conclusion was that British interest in Mesopotamian petroleum resources antedated mandates and the Great War, and that the San Remo oil agreement was not based on the results of the war, except in so far as it bene- fited Mesopotamia (Irak) rather than Turkey. II. SOME OP THE AGREEMENTS SUPERSEDED BY THE WORK OF THE WASHINGTON CONFERENCE. The Root-Takahira Agreement was not a treaty, but an exchange of executive notes, crystallizing into compact form previous conversations concerning the future policies of Japan and the United States. The note from Mr. Takahira to Mr. Root, dated November 30, 1908, was as follows: "The exchange of views between us, which has taken place at the several interviews which I have recently had the honor of holding with you, has shown that, Japan and the United States holding important outlying insular possessions in the region of the Pacific Ocean, the Government of the two countries are animated by a, common aim, policy, and inten- tion in that region. Believing that a frank avowal of that aim, policy, and intention would not only tend to strengthen the relations of friendship and good neighborhood, which have immemorially existed between Japan and the United States, but would ma- terially contribute to the preservation of the general peace, the Imperial Governmnt have authorized me to present to you an outline of their understanding of that common aim, policy, and intention: 1. It is the wish of the two Governments to encourage the free and peaceful development of their commerce on the Pacific Ocean. 2. The policy of both Governments, uninfluenced by any aggressive tendencies, is directed to the maintenance of the existing status quo in the region above mentioned, and to the defense of the principle of equal opportunity for commerce and industry in China. 3. They are accordingly firmly resolved reciprocally to respect the territorial possessions belonging to each other in said region. 4. They are also determined to preserve the common in- terest of all Powers in China by supporting by all pacific means at their disposal the independence and integrity of 418 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. China and the principle of equal opportunity for commerce and industry of all nations in that empire. 5. Should any event occur threatening the status quo as above described, or the principle of equal opportunity as above defined, it remains for the two Governments to commu- nicate with each other in order to arrive at an understanding as to what measures they may consider it useful to take." Mr. Root's note of even date repeated and affirmed the substantive portion of Mr. Takahira's note. The Xiansingr-Ishii Agreement of November 2, 1917, con- sisted of a similar exchange of executive notes. Mr. Lansing's note was as follows: Department of State, Washington, Nov. 2, 1917. Excellency: I have the honor to communicate herein my understanding of the agreement reached by ua in our recent conversations touching the questions of mutual interest to our Governments relating to the Republic of China. In order to silence mischievous reports that have from time to time been circulated, it is believed by us that a public announcement once more of the desires and Intentions shared by our two Governments with regard to China is advisable. The Governments of the United States and Japan recog- nize that territorial propinquity creates special relations be- tween countries, and, consequently, the Government of the United States recognizes that Japan has special Interests in China, particularly in the part to which her possessions are contiguous. The territorial sovereignty of China, nevertheless, remains unimpaired, and the Government of the United States has every confidence in the repeated assurances of the Im.perial Japanese Government that, while geographical position gives Japan such special interests, they have no desire to discrimi- nate against the trade of other nations or to disregard the commercial rights heretofore granted by China in treaties with other Powers. The Governments of the United States and Japan deny that they have any purpose to infringe in any way the inde- pendence or territorial integrity of China, and they declare, furthermore, that they always adhere to the principle of the so-called "open door," or equal opportunity for commerce and industry in China. Moreover, they mutually declare that they are opposed to the acquisition by any Government of any special rights or privileges that would affect the independence or territorial integrity of China, or that would deny to the subjects or citi ■ zens of any country the full enjoyment of equal opportunity in the commerce and industry of China. 419 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. I shall be glad to have your Excellency confirm this understanding of the agreement reached by us. Accept, Excellency, the renewed assurance of my highest consideration. ROBERT LANSING. His Excellency Viscount Kikujiro Ishii, Ambassador Extraor- dinary and Plenipotentiary of Japan, on special mission. The Chinese Government, which knew nothing about these notes until they were published, made through the Chinese Minister at Washington the following statement about them, which was made public by our State Department on November 13, 1917: "The Government of the United States and the Govern- ment of Japan have recently, in order to silence mischievous reports, effected an exchange of notes at "Washington concern- ing their desires and intentions with regard to China. Copies of the said notes have been commuincated to the Chinese Government by the Japanese Minister at Peking, and the Chinese Government, in order to avoid misunderstanding, hastens to make the following declaration so as to make known the views of the Government. "The principle adopted by the Chinese Government to- ward the friendly nations has always been one of justice and equality, and consequently the rights enjoyed by the friendly nations derived from the treaties have been constantly re- spected, and so even with the special relations betw^een coun- tries created by the fact of territorial contiguity it is only in so far as they have already been provided for in her existing treaties. "Hereafter the Chinese Government will still adhere to the principles hitherto adopted, and hereby it is again de- clared that the Chinese Government will not allow Itself to be bound by any agreement entered into by other nations." ///. Secret Compacts Regarding Shantung On the basis of the following secret agreements entered into between Great Britain, France, Russia and Italy, Japan forced the Peace Conference to yield Shantung. China was riot consulted nor informed about this disposal of her terri- tory. The terms of the agreement were not revealed until the Peace Conference met at Paris, and then only to the Council of Four. British Embassy. "Tokyo, Feb. 16, 1917. My Dear Excellency: With reference to the subject of our conversation of the 27th ultimo, when your Excellency informed me of the desire of the Imperial Government to receive an assurance that on 420 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. the occasion of a Peace Conference, His Britannic Majesty's Government will support the claims of Japan in regard to the disposal of Germany's rights in Shantung and possessions in the islands north of the equator, I have the honor, under in- structions received from His Britannic Majesty's principal Secretary of State for Foreign Affairs, to communicate to you the following message from His Britannic Majesty's Govern- ment: His Britannic Majesty's Government accede with pleasure to request of the Japanese Government for an assurance thai they will support Japan's claimis in regard to the disposal of Germany's rights in Shantung and possessions in the islands north of the equator on the occasion of the Peace Conference; it being understood that the Japaese Government will in the eventual peace settlement treat in the same spirit Great Britain's claims to the German islands south of the equator. I avail myself of this opportunity, M. le Ministre, to renew to your Excellency the assurance of my highest consideration. CONYNGHAME GREENE, His Britannic Majesty's Ambassador. To His Excellency Viscount Ichiro Motono, his Imperial Japa- nese Majesty's Minister for Foreign Affairs. To which Viscount Motono replied: The Japanese Government is deeply appreciative of the friendly spirit in which your Government has given assurance and happy to note it as fresh proof of the close ties that unite the two allied Powers. I take pleasure in stating that the Japanese Government on its part is fully prepared to support in the same spirit the claims which may be put forward at the Peace Conference by His Britannic Majesty's Government in regard to the German possessions in the Islands south of the equator. Three days later Motono sent the following notes to the French and Russian Ambassadors in Tokyo: The Imperial Japanese Government has not yet formally entered into conversations with the Entente Powers concern- ing the conditions of peace I propose to present to Germany, because it is guided by the thought that such questions ought to be decided in concert between Japan and the said Powers at the moment when the peace negotiations begin. Neverthe- less, in view of recent developments in the general situation, and in view of the particular arrangements concerning peace conditions, such as arrangements relative to the disposition of the Bosporus, Constantinople, and the Dardanelles,* being ♦This reference is to the secret treaties and agreements of 1915, 1916 ana 1917, among Great Britain, France, Italy, Rumania and Russia, which were first published by the Bolshevlki after they came in control of Russia, Nov. 6, 1917. 421 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. already under discussion by the Powers interested, the Im- perial Japanese Government believes that the moment has come for it also to express its desires relative to certain con- ditions of peace essential to Japan and to submit them for the consideration of the Government of the French Republic. The French Government is thoroughly informed of all the efforts the Japanese Government has made in a general man- ner to accomplish its task in the present war, and particularly to guarantee for the future the peace of Oriental Asia and the security of the Japanese Empire, for which it is absolutely necessary to take from. Germany its bases of political, military and economic activity in the Far East. Under these conditions the Imperial Japanese Govern- ment proposes to demand from Germany at the time of the peace negotiations the surrender of the territorial rights and special interest Germany possessed before the war in Shan- tung and the Islands situated north of the equator in the Pacific Ocean. The Imperial Japanese Government confidently hopes the Government of the French* Republic, realizing the legitimacy of these demands, will give assurance that, her case being proved, Japan may count upon its full support on this question. It goes without saying that reparation for damages caused to the life and property of the Japanese people by the unjustifiable attacks of the enemy, as well as other conditions of peace of a character common to all the Entente Powers, are entirely outside the consideration of the present question. The reply of the French Ambassador follows: The Government of the French Republic is disposed to give the Japanese Government its accord in regulating at the time of the peace negotiations questions vital to Japan con- cerning Shantung and the German islands in the Pacific north of the equator. It also agrees to support the demands of the Imperial Japanese Government for the surrender of the rights Germany possessed before the war in this Chinese province and these islands. M. Briand demands, on the other hand, that Japan give its support to obtain from China the breaking of the diplomatic relations with Germany, and that it give this act desirable significance. The consequences of this in China should be the following: First — Handing passports to the Gferman diplomatic agents and consuls. Second — The obligation of all under German jurisdiction to leave Chinese territory. Third — The internment of German ships in Chinese ports and the ultimate requisition of these ships in order to place 422 SECOND YEAR BOOK OF THE LEAGUE OF NATIONS. them at the disposition of the Allies following the example of Italy and Portugal. According to the information of the French Government there are fifteen German ships in Chinese ports totaling about 40,000 tons. Fourth — Requisition of German commercial houses es- tablished in China; forfeiting the right of Germany in the concessions she possesses in certain parts of China. Russia and Italy also gave their acquiescence in this matter, correspondence between Japan and Italy being ex- changed at Rome, not in Tokyo. Section VIII of the Versailles Peace Treaty Bearing on Shantung ARTICLE 156. Germany renounces, In favor of Japan, all her rights, title and privileges — particularly those concerning the terri- tory of Kiaochou, railways, mines, and submarine cables — which she acquired in virtue of the Treaty concluded by her with China on March 6, 1898, and of all other arrangements relative to the Province of Shantung. All German rights in the Tsingtao-Tsinan-fu Railway, in- cluding its branch lines, together with its subsidiary property of all kinds, stations, shops, fixed and rolling stock, mines, plant and material for the exploitation of the mines, are and remain acquired by Japan, together with all rights and privi- leges attaching thereto. The German State submarine cables from Tsingtao to Shanghai and from Tsingtao to Chefoo, with all the rights, privileges, and properties attaching thereto, are similarly ac- quired by Japan free and clear of all charges and encum- brances. ARTICLE 157. The movable and immovable property owned by the Ger- man State in the territory of Kiaochou as well as all the rights which Germany might claim in consequence of the works or improvements made or of the expenses incurred by her directly or indirectly in connection with this territory, are and remain acquired by Japan, free and clear of all charges and encumbrances. ARTICLE 158. Germany shall hand over to Japan within three months from the coming into force of the present Treaty, the archives, registers, plans, title — deeds and documents of every kind, wherever they may be, relating to the administration, whether civil, military, financial, judicial, or other, of the territory of Kiaochou. 423 INDEX Aaland Islands, commission's report, 32, 74; accepted by Council, 88-90; conference on neutralization of, 128, 209, 210 Afghanistan, independence of 279 Agreements, superseded American-Japanese, text of: 1. Root-Takahira 418, 419 2. Lansing-Ishii 419, 420 Aircraft, and auxiliary ships, in war, 279, 328; first agree- ment on, 329, 330; limitations on rejected 337-339 Albania, minorities in, 27; Boundaries of, 94, 95, 129, 151, 152, 185, 216, 250, 252, 253, 254; brings protests to As- sembly, 134; declaration concerning rights of minori- ties in, 180-183; Commission of Inquiry in, 185, 204; 208, 209 Alsace-Lorraine, social insurance funds transferred from Germany to France 91 Altamira, Rafael, judge in Permanent Court 143 Ambassadors, Council of, 7; warns Hungary against Charles of Habsburg, 58; approves Rhine customs duties, 58; appeals to Poland, 76, 85; Albania fron- tiers in hands of, 95; 96, 151, 152; 185, 204; appeals to United States for Austria, 106; approves League Council's decisions on Upper Silesia, 121; puts ban on Baranya, 126; considers Buergenland dispute, 138; ultimatum to Hungary, 214; decides Albanian boun- daries 216, 251, 252, 254; 302 Anzilotti, Djonisio, judge in Permanent Court 144 Argentina, and purchase of war materials, 31; amend- ment to Covenant favored by, postponed, 190, 191; has not paid League dues 199 Armaments, and Arms Traffic, 30, 31; at Danzig, 85, 87; Belgian Bureau of Information, 30, 102, 111; in Ger- many, 27 8; shipments to China 357 Armaments, Mixed Advisory Commission on, 31, 95, 102; first meeting of, 110-112; 138; criticized, 141; report of to Second Assembly 175-180; 209 Armaments, Limitation of Naval and other, Washington Conference, Sec. Hughes' speech, 230-234; full plan of U. S. experts, 234-241; Great Powers' navies and programs of building at that time, 241, 242; first speech of Mr. Balfour on, 244-250; Hughes and Briand on land armament, 261-274; limitation on gun— caliber, 328; limitation on fortifications in the Pacific, 372, 373; text of Five Power Treaty for Naval Limitation, 367-386; ratified by U. S. Senate, with reservation 40 g 497 Armenia, Wilson on mediation for, 8-11; passes under Soviet control, 32; in Turkev, 44, 139, 141, 153, 185, 211, 255 Armies, Chinese, reduction asked for 334, 348^ 360 Article X, of Covenant, omission proposed in Slecond As- sembly by Canada (Mr. Doherty), referred to Third Assembly 194-197 Assembly, of League, Second, 132 et seq.; organization of, 132, 133; agenda, 133, 134; disposes of Bolivian- Chilean dispute, 135, 136; discusses year's work of League, 136-138, 141; establishes a committee on new proposals, 139; constitutes Permanent Court, 139-141; honors Dante, 140; receives Papal telegram urging aid to Russia, 153; advocates Armenian na- tional home, 153; advises appeal for funds for Epi- demics Commission, 155; asks Council to appoint Committee on Organization of intellectual labor, 15 5, 156; adopts four resolutions on transit, 157, 158; ap- proves permanent organization at Constantinople to protect wom.en and children, 160; approves Council's policy about Vilna, 161; adopts resolutions about procedure under Article XVI, 162-164; adopts report on Econ. & Finan. Commission, 166, 167; approves Convention on Traffic in Women, 167, 168; adopts report on Opium Traffic Convention, 170, 171; adopts resolutions in support of Russian relief work and an- swers Papal message, 171-174; approves report on organization of League, 174, 175; adopts resolutions on work of Commission on Armaments, 178-180; Ambassadors must determine Albanian frontiers, 185, 186; adopts budget and creates Committee of Finan- cial Control, 186; amends five articles of Covenant, 187-197; postpones question of membership for very small states, 191; refers Article X to Third Assem- bly, 194-197; amendment to Article- XVIII deferred, 19a; to Article V, rejected, 198; to Articles IV and VI adopted, 198-202; four members of Council elected 202 Associations, International, Union of (Brussels) 155 Australia 298 Austria, plans for help of, 13; treatment of Polish Jews, 36; plea for credits fails, 49; reconstruction discussed, 51-53, 73, 79, 106; dispute with Yugo-Slavia, 100, 117; peace treaty with United States, 126, 216; dis- pute with Hungary over Buergenland, 127, 138, 161, 197, 198, 301 B Balfour, Ai-thur, answers criticisms of League, 138; criti- cized by Lr. Lange, 142; reviews the Vilna dispute, 150, 151; 168, 221, 244-250; 274; 282; 287; 295; on submarines 325-328 338, 339; 357, 358, 367, 368 Baranya, attempts independence 126 Barbosa, Ruy, judge in Permanent Court 144 Barcelona, Transport Conference at.. 17, 49, 87, 113, 114, 157 Belgium, relations with Luxemburg, 77, 102; invited to Washington Conference, 120; will inform Mandates Commission about administration of mandated areas, 184, 185; 202; 220, 221; 275, 388; Open Door Treaty, 393; Tariff Treaty 397 Beichmann, F. V. N., judge in Permanent Court 144 Benesh, Dr 302 Bessarabia 12 Blockade, Commission on Art. XVI, 19, 20; 92; 131; in- structions in Assembly votes, 162-164; Article XVI amended by Second Assembly., 188-190 Bolivia, asks Assembly of League to consider complaint against Chile 134, 135, 136, 166 Borah, Senator William E., resolution for a conference on reduction of armament 108 Bombardment of unfortified places, Hague Convention on, reaffirmed 339 Bon, Admiral de, defends submarines 323-325 Bourgeois, Leon, answers strictures upon League, 138; 151; questions power of League in Armenian question. 153 Boyden, Roland W., U. S. member of Reparations Com- mission 8, 73 Branting, Hjalmar, criticizes League in 2nd Assembly. .. 136 Brazil 176, 202 Briand, Aristide, 15, 48, 65; 112; 116, 167, 211, 221, 243, 250; speech on French armament, 262-274; 275, 277; letter to Hughes, 314; resigns , 407; 422 Budget of 1922 186 Buergenland (West Hungary), In dispute between Aus- tria and Hungary, 127, 138, 161, 197; plebiscite in Oedenburg district 198, 213, 301 Bulgaria 21 Bureaus, International, public and private 97, 98 Bustamante, Antonio S. de, judge in Permament Court. . 144 Cables, see Communications. Calender, Felix 278 Canada, delegation from in Second Assembly, proposes omission of Article X from Covenant ; 194-197 Cecil, Lord Robert, criticizes work of League, 136, 137, 139; 146, 153; favors relief for starving Russian peo- ple and regrets absence of organized labor from Sec- ond Assembly, 173, 174; on reduction of armaments, 178-180 Chicherin, George, Russian Minister of Foreign Affairs, asks to be Invited to Washington Conference, 120, 210, 218-220 Children, Protection of 21, 22, 84, 102 Chile, opposes Bolivian appeal to Assembly, 134, 135, 136, 166; moves to settle dispute with Peru 301 China, invited to Washington Conference, 119, 120; 202; 221; Chinese proposals to Washington Conference', 257-260; Committee on Chinese revenues, 276, 277; on alien post offices in China, 279, 280; on extraterri- torial courts, 279, 280-282; foreign troops in, 282- 286; Shantung, 282, 283, 285, 286, 287, 302-304; dis- cussion deadlocked, 310, 311; renewed, 331; ended, 360-367; 4 Root principles, now 5, and resolutions on extraterritoriality and China's neutral rights, all adopted, 295, 296; Four Power Treaty approved,' 297 298; foreign post offices, 398; demands cancellation of Chino-Japanese agreements of 1915, 302-310; tariffs, 332-334; military forces, 334, 335; tariffs and customs, 339-342; the Open Door, 342, 343; controls her rail- way rates, 344; resolutions on railways, 343-345; Shantung and cables, 345, 357-358; publicity for all commitments, 345-347; Chinese Eastern Railway, 348, 388; shipment of arms to, 357, 359; 21 Demands, 389-393, 401; Open Door Treaty, 393, 401; will alien- ate or lease no territory 397 President of, thanks President Harding-, 402; Ameri- can-Japanese agreements about China, 418-420; Chi- nese note on Lansing-Ishii Agreement, 420; secret agreements of 1917 about China 420-423 Cilicla, status of, between Kemal Pasha and France. ... 44 Coast of China Agreement 307 Colby, Bainbridge, letter to League on Mandates, 24-26; tenders "good offices" to Panama, 42; letter on Meso- potamian oil 411-416 Colombia 210 Commerce, International Chamber of, meeting, 105; In- ternational Institute of 98 Commissions and Conferences, authorized by Washing- ton Conference 404 Communications, Conference on, 8, 330; agreement be- tween Japan and China 345; 357, 364 Communications and Transit, Commission on, 87; first meeting, 113-115; on Berne Railway Convention in Saar Valley, 131; report on work of to Assembly, 157, 158; to co-operate with Econ. & Finan. Commission, 166; decides about Sas-r Valley railways 183 Conference, British Imperial 103-105 Conference, 5th Pan American 301 Conference, Porto Roso, announced, 13; First, conclusions postponed, 73* Second, similar result, 79; Third. .216-218 Conference, Washington, on Limitation of Armament and Pacific and Far Eastern Problems, first public steps toward, 108-110; official invitation to four great Pow- ers, 118, 119; to China. 119, 120; to other Govern- ments, 120; first agenda of, 152; and Russia, 218- 220; session of begins, 220-250; divides into two com- mittees 244 Far East, problems of; Chinese 10 points, 257-260; Japanese answer, 260, 261; Root's 4 principles about China, 276; sub-committee named to study Chinese revenues and tariff, 276, 277; another on extrater- ritoriality and another on post offices in China, 279- 282; on foreign troops and the Shantung question, 282-287; Japanese statement 283-286 Limitation of Armaments; Japan wants change of ratio and retention of Mutsu, 260; British action, 260; French position explained, 262-274; comment on Bri- and's speech, 274-276; committee on use of gas and aircraft and laws of war, 279; Committee recom- mends pledge to respect China's neutrality in future, 287, and to retain radio stations to Chinese Govern- ment, 287, 288; adds to Root's 4 principles a 5th. 295, 296 Conference approves the 5, and extraterritoriality and neutrality resolutions 295, 296 Committee approves of abolition of foreign post offices in China, 298; Cliina demands abrogation of agree- ments with Japan in 1915, 302-310; Committee agree- ment on Chinese tariffs, 332-334; on removal of for- eign troops 335, 336 Four Power Treaty for peace in the Pacific, text of ap- proved by Conference 297, 298 Agreement on naval ratio and Mutsu, 310; demands of France and Italy, 310; what France will accept, 311- 314; Great Britain proposes abolition of submarine in war, opposed by other Powers, 313-328; limits on gun-caliber, 328; Root resolutions on submarines, 328; limitations on aircraft and auxiliary ships, 329, 330; final form of submarine resolutions, 331, 332; Committee approves Root resolutions against use of poison gas 336, 337 Committee agreements on revision of tariff schedules, on abolition of llkln and imposition of surtaxes, and on uniformity in rates, 339-342; Hughes's Open Door resolutions (3 approved), 342, 343; resolutions for publication of commitments with and about China, 345-347; Root resolution against exclusive exploita- tion, 347, 348; reduction of Chinese armies desired, 334, 348; disagreement about Chinese Eastern Rail- way, 348; proposal to prohibit shipment of arms to China fails, 35 7, 359; resolutions adopted on radio service in China, 357, 358; limitations of aircraft re- jected, 337-339; against bombarding- unfortified places, 339; Commission of Inquiry on new" laws of war proposed, 339; Japanese statement about troops in Siberia presented, 348-352; Sec. Hughes's reply, 353-357; commission to study laws of war with new weapons 358, 359 Conference gives final approval to resolutions on for- eign post offices, foreign troops, the Open Door, rail- ways, reduction of armies, publicity, and radio- service 360 Shantung Agreement, text of 360-367 Five Power Treaty for Naval Limitation, text approved by Conference 367-386 Five Power Treaty on Submarines and Chemical War- fare, text approved by Conference 386-388 Resolutions on Chinese Eastern Railway, 388, 389; Japanese statement on 21 Demands, 389-391; Chi- nese reply, 391, 392; Sec. Hughes's comments, 393; Committee recommends the Board of Reference as annex to Open Door Treaty 393 Nine Power Treaty on Open Door, text of, approved by Conference 393-397 Nine Power Treaty on Chinese Tariff, text of, approved by Conference 397-401 Conference gives final approval to resolutions on Chi- nese Eastern Railway, 401, and places on records statements about 21 Demands and Siberia, 401; Japa- nese homeland not in Pacific Treaty 401 Conference gives final approval to resolution for Com- mission of Jurists, 401, and publication of minutes of Conference, 401; Powers will not sell warships 402 Final Session, 402-404; Organizations authorized by Conference, 404; Treaties and Resolutions adopted, 404, 405; Netherlands and Portugal recognized in connection with Pacific Treaty 405, 406 Congress of Colored Races, sends request to Mandatory Commission 159 Consortium in China 282, 390 Constantinople, ruled, in effect, bv British Commissioner, Gen. Sir Charles A. Harrington 113; 116, 117; 213 Control, Allied Military Commission of, in West Hungary, 197, 198; gives Oedenburg district to Hungary 302 Costa Rica, in dispute with Panama, 41-43; oil 417 Council of League, 12th Session, 16-43; traveling expenses of officers, 16; publicity for, 17; comimttee on opium traffic, 18, 19; blockade commission, 20; convention on woman traffic, and commission on deportations, 20, 21; creates mandates commission, 22; discusses relations of United States to mandates, 23-26; cre- ates mixed armaments commission, 30, 31; settles Danzig questions, 34, 35; provisional Health Organi- zation, 37; abandons Vilna plebiscite plan, 38; re- ceives appeal from Panama 41 13th Session, 80-103; continues mandates discussion, 80; budget, 80, 81; report on organization and ex- pense, 81-83; settles Danzig questions, 83-87; ap- proves acts of Saar Valley Governing Board, 87, 88; renders final decisions about Aaland Islands, 89, 90; provisional Health Organization, 90, 91; receives re- port of Commission on Amendments, 92-94; hears appeal from Albania about boundaries, 94, 95; com- pletes Mixed Armaments Commission, 95; modifies rules on appeals from Minorities, 96; places Interna- tional Bureau of Relief under League, 98; receives report on International Bureaus, 9 7, 98; receives M. Hymans' plan for settling Vilna dispute, 98, 99; com- missions should meet at Geneva, 100; receives report on Opium Traffic, 101, 102; each commission to be represented at meeting of Assembly, 103; is invited to decide Sllesian dispute 116 Special Sessions (Aug.-Oct.) to settle Sileslan contro- versy, plans for settlement, 120-123; Council to name chairmen of commissions under plan 123 Fourteenth Session, 127 et seq. ; will protect minorities in Rumania and Hungary, receives requests of Esto- nia. Latvia and Lithuania for admission to League, postpones new rules of financial administration, re- ceives reports, 12 8; continues hearing dispute be- tween Albania and Yugo-Slavia, 129; receives report of Health Commission, 129, 130; assures time for dis- cussion of complaints, 130, 131; distributes report on Russian refugees, 131; urges Allied Powers to define mandates, 131; leaves Buergenland controversy to Council of Ambassadors, 138; approves daily publica- tion of minutes, 139; authorizes Mr. Koo to reply to Lord Robert Cecil's criticisms, 139; constitutes Per- manent Court, 139-141; considers Danzig affairs and Vilna dispute, 147-151; welcomes requests for tech- nical advice from its Commission, 153; duties under Article XVI, 163, 164; stipulations concerning pro- tection of minorities in Albania, 180-183; minorities in Finland, 183; accepts Hydrographic Bureau, 183; authorizes letter to Powers on mandates, 183-185; commission on minorities, 197; final decisions of 14th Session 204-209 Fifteenth Session, Albanian frontiers, Irak and Russian refugees 250-255 Sixteenth Session, Brussels-African Liquor Traffic Bu- reau, abandonment of Vilna controversy 407 Council, Supreme, 7; Jan. meeting, 11-15; recognizes sov- ereignty of Latvia and Estonia, 12, 13; Feb. meeting. 43-49; futile proposals for peace in Asia Minor, 43, 44, 49; new plans for reparations payments fall, 44- 48; sanctions occupation of Ruhr valley ports, 48; April-May meeting, issues ultimatum to Germany on reparations and invites United SItates to resume membership, 69-72; United States accepts, 72, 73; August meeting, votes to refer Silesian dispute to League Council, 115, 116; declares neutrality in Greco-Turkey war, 116; approves Russian Famine Relief Commission, 117, 171; will lift economic Rhine barrier, asks United States to help in Austria, will review Leipsic trials of war-criminals, 117, 153; abol- ishes Rhine customs barrier, 167; 210; Jan. 1922 meeting at Cannes, 407; Class A Mandates 408 Court, Permanent of International Justice, ratifications of statute of, 33; Aaland Islands disputes may be re- ferred to, 90; nominations for justices, 92, 113; four- teen justices elected by Assembly and Council, 139- 141; compulsory jurisdiction accepted by some states, 139; fifteenth justice elected and court constituted, 143; biographies of all the justices, 143-146; no nom- inations from United States, 147; 182, 183; first ses- sions of 407, 408 Covenant of League, amendments discussed In Commis- sion, 17, 83, 92-94, 131, 138; diplomatic immunities under, 117, 118; procedure under Article XVI, 162- 164; amendments to Articles XII, XIII, XV, XVI and XXVI adopted and others discussed, 187-197; amend- ment to Article I postponed, 190, 191; amendments proposed by Scandinavian Governments, not accepted, 191, 192; same fate for amendments to Article XXI, 193, 194; proposal to omit Article X referred to Third Assembly, 194-197; amendment to Article XVIII re- ferred to Third Assembly, 198; amendment to Arti- cle V rejected, 198; amendments to Article VI adopted, 198-202; amendment to Article IV adopted. 202 Curzon, of Kedleston, Earl, Sec. Colby's letter to, 411- 416; reply of 417, 418 Czecho-Slovakia, trade agreement with Austria, 53; 96; troops in Siberia 349, 353 D Danubian Watoi'ways, Commission, Permanent Technical on, 96, 113; Council names chairman of 131 Danzig, manufacture of arnis in and other questions, 34, 35, 41, 83-87; Polish naval base at, 147, 148, 204; citizenship in, 148; negotiations with Poland, 148; aeroplanes made in, 204; treaty with Poland. . . .214, 215 Delimitations, Commission of, in Upper Silesia 121 — in Albania 94, 252 Demands, the 21, 302-310; Japanese statement at Wash- ington on, 389-391; Chinese reply, 391, 392; Sec. Hughes on 393 Deportations, Commission of Inquiry into, 20, 21; 128, 160; to be expanded into Permanent Mixed Board. 160, 185 Disarmament, German, Inter-Allied Commission, 53; re- views its work 165, 166, 278 Drummond, Sir Eric, letters to United States Govern- ment, long unanswered, 92, 168-170; to name Public Health Secretariat, 161; duties under Article XVI, 163; 183, 216; 255, 256 E Economics and Finance, Commission on, 20, 31; reports to Council, 39, 40; 49; discusses Austria, 51-53, 73, 79; 98; report to Council, 99, 100; 110, 131; reports on Danzig, 148; reports on Brussels recommendations, 151; to give expert technical advice to States, 152, 153; relation of League to collection of Statistics, 164, 165; work of, reviewed by Second Assembly, 166, 167; to consider proposed expenditures 202; 209 Education, International Bureau of, proposed, 37, 155; first Pan-Pacific Conference on, 59, 60; in mandated areas 207 Epidemics, Commission on, 29; report to Council, 91, 92; 128; to be a section of Health Organization, 130; 138; success of 155; 161 Entente, the Little, 16; mobilizes troops, 58; treaties of, 73, 77; 213, 214, 216; understanding with Poland... 302 Esperanto, use of 139, 141 Estonia, recognized, 12, 13; applies for admission to League, 128; admitted 156, 158 Expenses of League, system of allocating. . 41, 83, 130, 198-202 Extraterritoriality, rights of in China, commission to re- port on, 280-282; resolutions approved 296 F Famine Relief, International Commission for. . . .117, 171-174 Par Eastern Republic (Chita) 120, 218, 330, 351, 352 Peisal, Arab Sheik, 78; king of Irak 127, 252 Financial Control, League Committee of 186, 20 9 Finland, minorities in, 27, 183; and Aaland Islands, 74; accepts Aaland Islands Commission's report. . . 89-90; 210 Finlay, Robert B., Viscount, Judge in Permanent Court. . 145 Franc, gold, unit for League of Nations 255, 256 France, alliances, 15, 16; begins negotiations with Kemal Pasha, 44; notifies Switzerland of abolition of Swiss privileges under treaty of Vienna, 57; 58; supports Sec. Hughes' contention about Yap, 59; threatens Ger- many about Upper Silesia, 76; disagreements with Great Britain, 112, 113; comments on peace treaty between United States and Germany, 126; attitude in Syria, 127; refrains from voting on Lithuania, 157; on limiting appropriations for armaments, 176, 177; will let Commission have information about man- dates, 184, 185; Rathenau-Lioucheur agreement, 202, 203; agreement with Kemal, 210-213; 221; 235; Brl- and's speech on armament of, 262-274, 275, 276; 287; will accept no reductions in "defensive" naval arm- ament, 311-314; favors retention of submarines, 321, 323-328; 330; opposes Board of Reference in China, 342, 343; 367, 386, 388; about Kwangchow-wan, 391; Open Door Treaty, 393; Tariff Treaty, 397; 401, 406; mandates and oil, 408-411; 416; secret agreements, 420-423 Fukien Agreement 308 G Gases, use of noxious, chemical warfare; 279, 336, 337, 359; text of treaty 387 Galicia, Ukranians protest against Polish treatment of, 28; Austrian treatment of Jews from, 36; status of, 141, 157, 164, 185 Geddes, Sir Auckland, 295, 29 6; resolution on Chinese railways 344, 368 George, David Lloyd, 15; ultimatum to Germany on repa- rations, 46, 47; trade with Russia, 55; 70; 112; 116, 221, 250, 289, 294, 407 Georgia 12, 32 Germany, disarmament in, 12, 13, 53, 70, 165; financial help for, 13; reparations, 13-15; 44-48; 50, 51; 64- 72; 202, 203; invited to Barcelona, 17; protest on Bupen and Malmedy, 19; 31; dispute with Poland over Upper Silesia, 54, 55, 75-77; decided by League, 120-123; 278, 279; represented at Red Cross Con- gress, 57; offers to restore devastated France, 66-68; accession of Dr. Julius Wirth's Ministry, 70; accepts Supreme Council's ultimatum, 72; trial of war-crim- inals, 71, 72; protests about Saar Valley set aside by League Council, 87, 88; 117; treaty of 1921 with United States, 123-126; sovereignty in Saar Valley, 131, 204; 209; denies Briand's charges, 277, 278; 286, 287; forbidden to build any submarines, 323; former cables 330, 345 Gini, Professor, report on raw materials 152, 153, 253 Gray, George 147 Great Britain, reversal of policy toward Persia, 49, 50; trade agreement with Russia, 55; policies in Mesopo- tamia and Palestine, 78, 79; suggests preliminary conference to Washington Conference, 105, 109; will turn over information about mandated areas to the Commission, 184, 185; 216, 221; 232, 233, 234, 235, 236, 238, 239, 241, 242; asks League Council to meet to consider Albania, 250; In Irak, 252; stops building of dreadnoughts, 260; 279; 287; treaty with Ireland, 289-295; 298; proposes to scrap all submarines, 313- 320, 325-328; 331; about publicity for Chinese agree- ments, 345, 346; promises to surrender Wei-Hai-Wei, 367; Five Power Treaty, 367: limits fortifications in Pacific, 372, 373; 386, 388; Open Door Treaty, 393; Tariff Treaty, 397; 401; 406; mandates and oil, 408- 41 8; secret agreements 420-423 Greece, 21, 27; rejects Supreme Council's plan for peace, 43, 44, 49; dispute with Albania, 94, 95; Turkish war- prisoners in, 95; war with Turkey to continue. 116; minorities in Albania 180-183 Group V, in 21 Demands 307, 308 H Habsbiirg, Cliarlcs of, first attempt to regain crown of Hungary, 58; second attempt 213, 214 Haking, Gen., League High Commissioner at Danzig, 34, 83-86; 147, 148, 204, 215, 407 Hanihara, Masanao, 222; explains Japanese garrisons In China, 283-286; 296; on 21 Demands 310, 368 Hanyehping Company 307 Harding, President "Warren G., Inaugural on "an associa- tion of nations," 60; first message on the same, 61- 64; receives appeal from German Government on reparations, 65, 66; speech to open Washington Con- ference, 222-225; 301; on Japanese "homeland," 311; 357; farewell address to Conference 402-404 Harvey, George, Ambassador, 73; speech before Pilgrims' Society 74-75; 116 Health Organization, Public, Provisional Technical Com- mission for, 37, 38, 101; report to Council, 129, 130; Assembly accepts 160, 161; 208 Heligoland, petitions League 113 Hines, Walker D 8 Huber, Max, judge in Permanent Court 145 Hughes, Charles Evans, holds Panama to the White award, 42, 43; rejects Dr. Simons's appeal, 51; rejects Soviet appeal, 56; denies that President Wilson as- sented to Japanese mandate for Yap, 59; rejects for President Harding German appeal about reparations, 66; 69, 70, 72, 73; rejects Poland's appeal, 76; 110; 118; letter on mandates analyzed, 137; sends 14 let- ters to League, 168-170; 220; first address to Wash- ington Conference proposing naval limitation, 225- 234; reception of speech, 242-244; 250; on U. S. land armament, 261, 262; 275; 282; 298; letter to Briand, 311-314; on Lord Lee's speech on submarines, 320, 321, 327; 336; introduces 4 resolutions on Open Door (reduced to 3), 342, 343; on Chinese railways, 343, 344; proposes publicity for all Chinese commitments, 345-347; on Japanese troops in Siberia, 353-357; on Pacific islands, 357; 360, 367; on 21 Demands, 393; letter about Netherlands and Portugal 405, 406 Hughes, William M., Australian Premier, on Anglo-Japa- nese treaty 60, 61, 103 Hungary, 16, 17; Charles' first attempt to resume crown, 57, 58; applies for admission to League, 83, 96; peace treaty with United States, 126; disputes over Baranya and West Hungary, 126, 127; 128, 138; withdraws ap- plication for admission, 161; 197, 198; 216; com- plains of League's Inaction 255 Hydrographic Bureau, 40, 98; placed under League 183 Hygiene publlque, Office International ....29, 38, 90, 91, 129 Hymans, Paul, deputed to settle Vilna dispute between Poland and Lithuania 38, 39, 98, 99, 112, 148-151, 161 I Inquiry, Oommission of. for Albania, 204; Instructions of Council to, 253, 254; members of 254 Irak, new Arab State 78, 127, 213, 252 Ireland, excluding Ulster, treaty with Great Britain. .289-295 Italy, 211, 216, 218, 222, 235, 253; favors retention of sub- marines, 321; 357, 359, 367, 386, 388; Open Door Treaty, 393; Tariff Treaty, 397; secret agreements. 420-423 J James, Edwin L., interviews Briand, 243; comment on prohibition of chemical warfare 337, 359 Japan, its mandate for Yap, 25; wants assurances before Washington Conference, 104, 105, 109, 110; on limit- ing appropriations for armaments, 176; 222; 232, 233, 235, 236, 238, 239, 241, 242, 260, 282'-286; 287; "home- land" In 4 Power Treaty, 298; agreement about Tap, 298-301; the treaties forced upon China in 1915, 302- 310; favors retention of submarines, 321; "home- land" to be excluded, 328; 330; 331; opposes Board of Reference In China, 342, 343; 345; official state- ment about troops In Siberia, 348-352; American re- ply, 353-357; mandated islands, 357; 359; Shantung Agreement, 360-367; Five Power Treaty, 367; limits fortifications, 372, 373; 386, 388; position towards China with reference to 21 Demands defined, 389-391; Open Door Treaty, 393; Tariff Treaty, 397; "Home- land" Exclusion Treaty, 401, 405, 406; Root-Taka- hira Agreement, 418, 419; Lansing- Ishli Agreement, 419, 420; Secret Agreements of 1917 420-423 Jews, Polish in Gallcla, 36, 37; in Palestine 78, 79 Jovanovic, Mihailo, judge in Permanent Court 146 Jurists, Commission of, on new rules of war, 339, 358, 359, 401. See War, laws of. K Van Karnebeck, H. A., chosen president of the Second As- sembly 132, 143, 202 Kato, Admiral Tomosaburo, 222, 250, 260, 261, 275, 368; final statement 402 , Kemal Pasha, 8; delegation from at London, 43, 44, 49; war with Greece to continue, 116; 127; agreement with France 210-213; 411 Koo, Wellington, 127, 1S2, 139, 221, 28-6, 295, 296, 332, 333, 335, 388 Korea 350 Korfanty, Adalbert, Polish leader 55, 75, 76, 77, 94 Kurdistan 44, 78 Labor, Intellectual Committee on organization of, 37, 130, 155, 156 Labor, International, Third Conference of 256, 257 Labor Office, International, 8; Council's committee on, 18; 27; 28, 31, 38, 82, 91, 95, 102, 111; diplomatic im- munities of, 118; 130; 131; 165; organization of re- viewed 174; 205, 206; 257 Lange, Christian L., criticizes Council and its Commis- sions in speech on disarmament 141-143 Latvia, recognized by Supreme Council, 12, 13; applies for admission to League, 128, 153; admitted. ... 156, 158 League of Nations, first court under, 8; for Council meet- ings, see Council; committee of experts on adminis- tration of, 18, 81-83, 128; interest in Panama-Costa Rica dispute, 42; Pres. Harding on, 61-64; Col. Har- vey on, 75; Aaland Islands disputes, 90; commission to be represented in Assembly, 103; inquiry to United States about Austria, unanswered, 106; to be umpire between Germany and Poland about Upper Silesia, 122; service in repatriating war prisoners, 154; three new members admitted, 156, 157; receives 14 letters at once from U. S. Government, 168-170; proposed branch offices of, in Paris, London, Rome, and So. America, 175; to guarantee rights of minorities in Albania, 183; budget of, for 1922 186; 359 Lee of Fareham, Right Hon. Lord, 221; speech proposing to prohibit .submarines, 313-320; Lee and Castex.329, 368 Liquor Traffic, in Africa, Bureau of Information 407 Lithuania, 12, 13, 35; objects to Vilna plebiscite, 38, 39; fails to get Memel, 48, 49; Hymans' plan to settle Vilna dispute, 98, 99; plan deadlocked, 112, 148-151, 161, 407; applies for admission to League, 128; ad- mitted 157, 158 Loder, B. T. C, Judge in Permanent Court 145 Lodge, Henry Cabot 220, 279, 280, 311, 357, 367, 405 Loucheur, Louis 202 Luxemburg 77, 90 M Mahany, Rowland B 8 Manchuria, Japanese in, 283, 284, 285, 286; and Mongo- lia in 21 Demands 304-307 Mandates, interference by United States, the Colby letter, 22-27; not yet defined, 131; discussion in Assembly, 136-138; Sec. Hughes's note on, 137; discussion and resolution in Second Assembly, 158, 159: Council au- thorizes letter to Powers about expediting work of Mlandates Commission, 183-185; questionnaire to Mandataries, 205-208; England in Irak, 252; Japan- U. S. agreement about mandated Pacific islands, 2 98- 301, 357; Class A Mandates and Oil, 408-418; man- date boundaries, question of 416, 417; 422 Mandates, Commission on, 22, 159; may have information about mandated areas, though mandates have not been confirmed, 184, 185; meets and organizes, 197; report of 204-208 Memel, government of, 41; intention to transfer to Lith- uania blocked 48, 49 Mesopotamia, 23, 26, 78; see Irak; 408-418, especially 409, 410, 413-415; British forces in 417 Migration, Commission on 8 Military, Naval and Air Questions, Permanent Advisory Commission on, 20; 30, 31; report to Council, 40; 83; 96; 110, 128; severely criticized by Lord Robert Cecil, 136, 139; 141; expenses of 148; 204; 206, 207 Minorities, Commission of Council on, 197. See First Year Book, page 2 3. Protection of, 27, 96, 128, 141, 180-183, 197 Mirdites (Albanian) 25], 252 Moore, John Bassett, judge in Permanent Court 145; 147 Morgenthau, Henry, to mediate in Armenia 9, 11 Murray, Gilbert 167 N" Nansen, Dr. Frithjof, reports to Council on war-prisoners, 21; suggested as commissioner for Russian refugees, 33; 95, 96, 131; reports to Assembly on war-pris- oners, 153, 154; as Relief Commissioner for Russia, 171-174; payment to his assistant, Capt. Finne, 209; report on refugees 254, 255 Naval Bases, In Pacific, Japanese opinion of at opening of Washington Conference 243, 244 Negulesco, Demetriu, judge in Permanent Court 145 Netherlands, invited to Washington Conference, 120; ex- ecutive authority of Opium Convention of 1912, 130; contributed to Assembly agenda, 134; 222; 357; 388; Open Door Treaty, 393; Tariff Treaty, 397; relations to Pacific Treaty -. 405, 406 Neutral House, at Constantinople 160, 185 Neutrality, of China, to be respected, 287; Conference approves, 296; see Open Door Treaty 395 New Zealand, experience with natives under mandate, 158, 159; 298 Nikolaievsk 352, 355 Noli, Bishop Fan S., Albanian leader, 95, 129, 151, 152, 183, 185, 186 Noulens, Senator Joseph, objectionable to Soviets 117 Nyholm, D. G. G., judge in Permanent Court 146 O Oda, Yorozu, judge in Permanent Court 146 Oedenburg, see Buergenland. Oil, the empire of, San Remo Agreement, 213, 408-411; in Persia, the Caucasus and Czecho-Slovaliia, 289; in relation to Class A Mandates, 408-418; Anglo-Persian Oil Co., 409, 410; in Syria and Palestine, 416; in Costa Rica 417 Open Door, in China, 342, 343, 347, 348, 360; treaty on, 393-396; Board of Reference 396, 397 Opium and Drug Traffic, Advisory Committee on, 18, 19; report to Council, 13th Session, 101, 102; 130; Second Assembly acts on report and new Convention, 170, 171; 207, 209 P Palestine, Court for Jews in, 44; dangers of Zionism in, 78, 79; oil in 408, 416 Panama, accuses Costa Rica in appeal to League, 41; tries to oppose demand of United States Govern- ment 42, 43; 210 Passports, Conference on, resolution in Assembly.157, 158, 218 Peet, William W., to be League Commissioner in Constan- tinople on Deportation of Women and Children. .160, 185 Persia, 49, 50; oil concessions in 289 Peru, dispute with Chile 301 Poland, -peace with Russia, 13, 54; pact with France, 15; Galician protest against, 28; typhus in, 29, 91; rela- tions with Danzig, 34, 41; 83-87; 147, 148; 204, 214, 215; relations with Lithuania, 35, 38, 39, 48, 98, 99, 112, 148-151, 161, 407; complains of Austria, 36; quarrel about Upper Silesia, 54, 55, 75-77; settled. 120-123, 278, 279; appeals to United States, 76; 96; wants more time to consider complaints to Council, 130, 131; contributes to Assembly agenda, 134; ab- stains from voting in Assembly, 157; 216; aligned with Little Entente •. . . . 302 Portugal, invited to Washington Conference, 120; reser- vation on work of Public Health Organization, 161; 222; 388; Open Door Treaty, 393; Chinese Tariff Treaty, 397; relations to Pacific Treaty 405, 406 Post Offices, alien In China, withdrawal of recommended, 279, 280, 360 Principles, 4, in dealing with China (Mr. Root's) become 5, adopted, 295, 296; see Open Door Treaty 394, 395 Publicity, for doings of Council, 16, 17, 139; 146, 180; for Assembly, 139, 141; for treaties, 198; for commit- ments with and about China, 345-347, 360; for Wash- ington Conference 401 R Radio service in China, to be under Chinese Government, 287, 288, 357, 358, 360, 364 Railways, Chinese, committee of experts to study, 343, 344; two resolutions on, 344, 345; 348; Chinese state- ment on, 345, 360; final resolutions on Chinese East- ern Railway, 388, 389; see Open Door Treaty 395 Rathbone, Albert, U. 3. Commissioner 7 Rathenau, Walter, pact with France for reconstruction of devastated regions 202, 203 Red Cross, League of and International Committee, 29, 33, 34, 38; congress of, proposes new laws of war, 57; 91, 92, 97; 172 Reference, Board of, in China 393, 396, 397 Refugees, Russian, relief for, 33, 97, 131, 139, 141; report on 254, 255 Relief Association, American, "A. R. A.," agreement with Soviets 117, 172, 174 Relief, International Bureau of, placed under League. ... 98 Reparations, Austrian, postponed, 13, 49, 53; German, in January, 13-15; in March, 44-48, 50, 51; German la- bor to restore Northern Prance (footnote), 51; in April 64-70, 71, 72 Reparations, Commission, 8, 14, 15, 46; formulates de- mands upon Germany, 50, 51; reviises and reissues them, 64, 65, 68, 69; ultimatum of Supreme Council, May 5, accepted by Germany, 69-72; a Danzig case referred to, 86, and United States in German peace treaty, 125, 126; refuses jurisdiction at Danzig, 148; Wiesbaden agreement 202, 203 Reservations (Brandegee) to Four Power Pacific Treaty in U. S. Senate, text of 406, 407 Resolutions of Washington Conference, see lists. 360, 4.01, 405 Revision of Chinese Tariff, Commission for 398 Rhineland, Commission on 8, 58, 167 Root, Elihu, declines nomination to be justice of Perma- nent Court, 139; 147, 220, 276, 295, 296; on subma- rines (and lawyers), 328; 336, 339; on "spheres of influence" in China, 347, 348; resolutions for a Com- mittee of Jurists, 358, 359, 367, 388; Root-Takahira Agreement 418, 419 Ruhr Valley, 46; port cities occupied by Allied troops, 48, 65; occupation of whole Valley threa,tened, 69, 70, 71; 117 Rumania, 12, 77, 128, 216, 217, 218; oil in 408, 409 Russia, relations with Armenia, 8-11; peace with Poland, 3 3, 54; becomes supreme again in Caucasus States, 32; condition of refugees, from, 33; Soviet policy to- wards Persia, 49, 50; trade with England and United States, 55, 56; will not recognize Aaland Islands set- tlement, 90, 210; relief work in, 117, 171-174; protest asralnst Washington Conference, 218, 219; 279; 286, 287; owns Chinese Eastern Railway, 348; integrity of territory, 352, 353; 407; oil in, 409; secret agree- ments 420-423 S Saai- Valley. Court, 8; Governing Commission, 17, 128' pension funds for, 50, 51; policies of, approved by Council, 87, 88; railways of, 131, 183; "enemy debts" '" 183, 204 Sakhalin 352, 355, 356 Salvador, objects to payments to League 130 San Remo, Agreement of, 213; text of 408-411 Sarraut, Albert 221, 325-327, 346, 368, 391 Schanzer, Carlo, Senator 222, 250, 275, 328, 332, 368 Secretariat, committee to investigate, 18; audit of ac- counts, 27; 28; report of committee, 81-83; 92; to study question of Russian refugees, 97; 102; diplo- matic privileges confirmed, 117, 118; 155; statistical section, 164, 165; organization reviewed, 174, 175; proposal for branch offices 175 Semenoff (Semionov), Gen 351 Sevres, treaty of, 9; to be revised, 12, 43, 44; practically abandoned 116, 210-213; 411 Shantung, 282, 283, 285, 286, 287, 302, 303, 304; Chino- Japanese negotiations over, deadlocked, 310, 311; renewed, 331, 345, ended by treaty 360-367; Secret Agreements of 1917 420-423 Shidehara, Baron Kijuro 222, 348-352, 368; 389, 406 Ships, of war, Powers will not sell 402 Siberia, Japanese troops in, 285, 330, 348-352, 353-357, 401. Siee Far Eastern Republic, and Vladivostok. Silesia, Upper, Inter-Allied Commission for, and plebiscite in, 45, 54, 55; civil war in, 75, 76, 77; civil war ends, 94, 112, 113; plebiscite in, 115; dispute referred to League Council, 116, and settled by it, 120-123; cost of settlement authorized, 139; commission to negoti- ate treaty 278. 279 Simons, Dr., German Foreign Minister, reparations pro- posals, 44, 45, 47, 48; appeals to Secretary Hughes, 51; protests against occupation of Ruhr ports, 51; 6 6 ; resigns. May 4 70 Smuts, Gen. J. C, speech on Pacific problems 103-105 Statistics, International, how obtained for League. . . .164, 165 Straus, Oscar S 147 Submarines, disagreement between France and England, 275, 276; wrangle over British proposal to prohibit in war, 313-328; American experts favor retention of, 321-323; France defends use of, 323-328; Balfour's summary of English attitude, 325-327; Root resolu- tions on, introduced, 328, 329; finally approved, 331, 332; 359; text of treaty 386-388 Sun Tat Sen 120 Sweden, protests decision 89; 210 Switzerland, Government provides auditors for League, 27; refuses admission to League troops, 35, 36; de- mands continuance of French free trade zones around Geneva, 57; relations to Karl of Habsburg 57, 58 Syria, French announcement of local self-government in, 127; oil in 408, 416 Sze, S. Alfred 221, 257, 282, 286, 344, 358, 391, 402 Tariffs, Chinese, 276, 277; committee agreement on, 332- 334; Commission to revise schedules, 339, 340; Con- ference on likin and surtaxes, 340, 341; equality of treatment for Powers and uniform rates, 341, 6^i.; text of treaty on, 397-401; commission and confer- ence under Taxation( Chinese, Conference on 398, 399 Telegraph, foreign in China 282, 283 Ter Meulen plan •• ^9. 52, 106 Thomas, Albert 28, 82, 130 Treaty Texts: Germany and United States l^cS-l^b Great Britain and Ireland 289-295 Four Power for peace in Pacific 297, 298 China and Japan about Shantung 360-367 Five Power, for Naval Limitation 367-386 Five Power, on Submarines & Chemical Warfare. . .386-388 Nine Power, on Open Door in China 393-397 Nine Power, on Chinese Tariffs 397-. 401 Four Power Agreement, excluding Japanese homeland from Pacific Treaty 401, 402 Annex to Naval Limitation Treaty, against selling ships. 402 Treaties, registration of. Council's commission on Art. XVIII, 18, 198; Baltic States, 12, 13; Polish-Russian, 54; Russian and others, 56; Little Entente, 73; con- trol of armaments in. 111; of peace, referred to in German-United States peace treaty, 123-126; between China and Japan in 1915, 302-310; and agreements relating to China to be published, 345-347; list of Washington, 404, 405; ratification of 406, 407 Troops, foreign in China, 282-286; agreement on removal of 335, 336; 360 Turkey, 9, 12; deportations in, 20, 128; and Armenia, 8, 32, 153; and Greece, 43, 44, 116, 137; and France 210-213 Typhus, campaign against 29, 91, 155, 185 Underwood, 0.scar W., 220; chairman of committee on Chinese revenues 277; 311, 332, 348, 367, 397 United States of America, withdraws from European Councils, 7, 8; 37; insists on Panama's acceptance of White award, 42, 43; 53; refuses to make comnaer- cial treaty with Russia, 55, 56; re-enters European Councils, 72, 73; Col. Harvey's reasons for entrance in the war, 75; and Austria, 79; letters of League to, not answered, 92; refuses preliminary session of Washington Conference, 105, 109; foreign debts to, 105, 106; declares war at end, 106; and arms traffic, 111; treaty with Germany, text of; also with Aus- tria and Hungary, 123-126; refuses to deal with League about opium traffic, 130; no agreement on mandates, 131, 137; no nominations made for Perma- nent Court, 147; discloses agenda of Washington Con- ference, 152; finally answers League letters, 168-170; peace with Colombia, 210; 216, 218, 220; 231-233, 234, 236, 238, 241, 242; agreement with Japan about Yap and mandated islands, 298-301, 357; experts fa- vor use of submarines in war, 321-323; 331; against chemical warfare, 336; 342; policy in Siberia, 353- 357; prohibits shipment of arms to China, 357; limits fortifications in Pacific, 372, 373; 367, 386; 388; on 21 Demands, 393; Open Door Treaty, 393; Tariff Treaty, 397; 401; 405; refuses Invitation to Genoa, 407; protests on mandates and oil, 408, 411; letters of Colby and Curzon, 411-418; past agreements with Japan 418-420 University, International 155, 156 V Versailles, treaty of, 7, 8; and German reparations, 14; 53, 69, 70-72; replaces treaty of Vienna, 57; German troops in Silesia a violation of, 76; invoked by Japan, 110; 111; German-United States peace treaty based on, 123-126; Wiesbaden agreement and, 203; 282; 287; 323; on chemical warfare, 336; amended by Shantung Agreement at Washington, 360; see text of treaty 423 Vilna 35, 38, 39, 48, 98, 99, 112, 148-151, 407 Vladivostok, Government of 218, 330; 349, 352 W Wallace, Hugh C, U. S. Ambassador to France, notifies Council of Ambassadors of withdrawal of United States 7, 8 Wang, Chung-Hui, judge in Permanent Court, 146; leads fight to cancel Chino- Japanese treaties of 1915, 302-310, 391, 392 War, international laws of, 279; relating to new agencies. Commission proposed, 339, 358, 359; approved 401 War-Criminals, trial of in Germany 71, 72, 117 War-prisoners, repatriated 21, 95, 96, 153, 154 Weiss, Charles A., judge in Permanent Court 146 Wilson, Woodrow, 7, 8; reply to invitation to mediate in Armenia 8-11 Wirth, Dr. Julius, becomes Chancellor and Minister of Foreign Affairs in Germany 70, 72 Women and Children, Conference on, Traffic in. .107, 108; 138 Women and Children, Permanent Consultative Commis- sion on Traffic in. League Council asked to name, 108; see Convention on Traffic, 167, 168; committee appointed 407 Yap, Island of, importance to United States, 25; Secretary Hughes writes to the other great Powers about, 58, 59; 298; preliminary U. S. -Japanese agreement about, reached, 298-301 ; 330, 345; signed and ratified 406 Yugo-Slavia, dispute with Albania, 94, 95, 129, 151, 152, 185, 209, 251-254; with Austria, 100; with Hungary, 126; 216 Information about the numerous publications of the League can be obtained by addressing "League of Nations, Information Section, Geneva, Switzerland," or by writing to the "World Peace Foundation, 40 Mt. Vernon Street, Boston, Mass.," which is the only American agent for the sale of those publications. Brooklyn Daily Eagle Publications PRICE Eagle Almanac — A Book of Information, General of the World, and Special of New York City and Long Island. Published Annually $1 . SO First Year Booi-c of the League of Nations. Pamphlet Form .50 Second Year Book of the League of Nations 1 . 50 The Charter of the City of New York. Published Annually with Amendments .... .75 The Code of Ordinances of the City of New York. PubUshed Annually with Amendments .75 Penal Law of the State of New York. 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