MY DIARY
At the Conference of Paris
With Documents
By
DAVID HUNTER MILLER
Volume IV
Documents 2(6-304
■■■■
'.'r^:-
The edition of tills work consists of forty sets
only, printed for the Author by the
Appeal Printing Company
This set is Number mO
:■ V :■_ ,'
TABLE OF CONTENTS
OF
VOLUME IV
document page
216 The Treatment of Napoleon 1
217 Memorandum, to Hon. Arthur Hugh Frazier 4
218 Report from Hungary 6
219 Cablegram Received, January 21, 1919 9
220 Telegram from Berne, January 22, 1919 10
221 Draft Convention for "Equality of Trade Conditions" 13
222 Note of Lord Robert Cecil (Half-tone) 16A
223 Note of D. H. M. (Half-tone) 16C
224 Suggestions of Lord Eustace Percy 17
225 League of Nations Draft Convention, January 20, 1919 28
226 Notes on the League of Nations Draft Convention 39
227 Draft Convention Regarding Mandataries (Revised
24. I. 19) 43
228 Note (to Document 227) 46
229 Ordre du Jour de la Seance du 25 Janvier, 1919 48
230 Protocol No. 2, Plenary Session of Jan. 25, 1919 49
231 Protocole No. 2, Seance Pleniere du 25 Janvier, 1919. . 105
232 Telegram from Rome, January 24, 1919 160
233 Cablegram Sent January 25, 1919 161
234 Resolution adoptee par la Ct)NFERENCE des Associa-
tions Alliees pour la Societe des Nations 162
235 Notes (of D. H. M. re British Changes in Covenant) . . 163
236 Covenant (with British Suggestions) 168
237 Telegram from Rome, January 25, 1919 178
238 Copy of Telegram Received by American Embassy, Paris,
January 26, 1919 180
239 Covenant Incorporating Changes Agreed Upon by Lord
Robert Cecil and David Hunter Miller, January
27, 1919 181
240 Memorandum on the Draft Incorporating Changes in
Covenant 195
241 Perxjvian Note, re Tacna-Arica 200
242 Letter to Colonel House, January 27, 1919 202
243 Letter to Lord Robert Cecil, January 27, 1919 204
-i^,
ii TABLE OF CONTENTS
document page
244 Letter to Colonel House, January 28, 1919 205
245 Notes on Draft Convention for "Equality of Trade
Conditions" 206
246 Outline of Tentative Report and Recommendations
Prepared by the Intelligence Section, in Accord-
ance WITH Instructions, for the President and the
Plenipotentiaries, January 21, 1919 209
247 Comments on Economic Blockade as a Sanction for the
"League of Nations" 282
248 German International I^aw Society, Draft of a Con-
stitution OF the League of Nations 285
249 Cablegram Received from Washington, January 29;
1919 , 296
250 Memorandum by the Emir Feisal 297
251 Territorial Claims OF THE Government OF THE Hedjaz. . 300
252 Resolution in Reference to Mandatories 302
253 Letter of Lord Robert Cecil, January 29, 1919 304A
254 Notations Made by Lord Robert Cecil on the Copy of
Document 239 Returned in his Letter dated Janu-
ary 29, 1919 305
255 L/ORD Robert Cecil's Suggestion 307
256 Notes on a Permanent Court 309
257 Copy of Telegram Sent to Washington by the Amer-
ican Embassy, Paris, January 27, 1919 312
258 Telegram Received from Berne, January 30, 1919 313
259 Telegram Received from Berne, January 30, 1919 314
260 Telegram Received from Rome, January 30, 1919 315
261 Redraft of Resolution of January 23, 1919 316
262 Letter to Lord Robert Cecil, January 31, 1919 318
263 La Question du Banat 319
264 Delimitation entre les Serbes et les Roumains dans
LE Banat 325
>ji 265 Population Statistics of Banat by American Experts. . 338
266 Letter from Mr. Grew, January 29, 1919 339
267 Letter to Mr. Grew, January 31, 1919 340
268 Notes of a Conversation between President Wilson,
SiGNOR Orlando, Colonel House and Signor Scia-
loja, held on january 30, 1919 341
269 Telegram Received from the Hague, January 31, 1919. . 344
270 Memorandum, re Mr. Joseph Baily Brown 345
i-
TABLE OF CONTENTS iii
document page
271 Dkapt, re Abolition of Conscription 346
272 Revision of Mr. Hurst 347
273 Draft of Preamble, etc 352
274 Covenant, Hurst-Miller Draft 354
275 Memorandum on the Freedom of the Seas 358
276 Reparation des Dommages 363
277 Texte Adopte a l'Unanimite par la Reunion des Dele-
GUES DES Associations Alliees pour la Societe des
Nations tenue a Paris du 25 au 30 Janvier, 1919. . 365
278 Telegram Sent, January 31, 1919 369
279 Cablegram Received, January 31, 1919 371
280 Cablegram Sent, January 30, 1919 372
281 Cablegram Received, January 30, 1919 373
282 Cablegram Received, January 31, 1919 375
283 Letter of Mr. Grew, February 2, 1919 378
284 Letter to Mr. Grew, February 3, 1919 379
285 Covenant, as of February 2, 1919 (Hurst-Miller Draft
Recast and Printed) 380
286 Letter to President Wilson, February 3, 1919 387
287 Letter to Colonel House, February 3, 1919 388
288 Memorandum concerning the Scheme of Organization
of the League of Nations Prepared by the Swiss
Commission of Experts 389
289 Proposed Proces-Verbal of the League of Nations Com-
mission, Session of February 3, 1919 394
290 Drafting the League Covenant (for Release in Amer-
ican Papers of Sunday, February 23, 1919) 405
291 Secretary's Notes of a Conference Held in Colonel
House's Rooms at the Hotel Crillon, Paris, on
Monday, February 3, 1919, to Draft a Plan for the
League of Nations 411
292 Meeting of League of Nations Commission, February 3,
1919 416
293 Letter of Mr. Grew, February 1, 1919 418
294 Letter to Mr. Grew, February 3, 1919 419
295 Summary of First Reports from Officers sent to Berlin
with Captain Gherardi to Establish Courier Serv-
ice BETWEEN Germany and Paris 420
296 Report of Czecho-Slovakian Agreement 423
297 Memorandum of Transmittal, February 3, 1919 425
IV
TABLE OF CONTENTS
document page
298 Revision des Traites du 19 Avrtl 1839 426
299 Note Juridique sur la Revision des Traites des 1839 441
300 Note Historique sur la Revision des Traites de 1839. . . 451
301 Abstract of a Confidential Memorandum Submitted to
THE American Commission to Negotiate Peace by
HIS Excellency, the Belgian Minister at Paris,
January 12, 1919 468
302 Summary of Juridical Note Upon Revision of the
Treaties of 1839 473
303 Summary of Historical Note upon Revision of the
Treaties of 1839 475
304 Observations upon the Memorandum Submitted by his
Excellency the Belgian Minister at Paris, Janu-
ary 17, 1919 482
MAPS
With Document 246 : facing page
Plate I Lorraine and Alsace, Territorial Changes
AND Mineral Resources 214
II Belgium 216
III S'CHLESWIG 218
IV Proposed Boundaries in Russla 220
V Finland, Esthonia and Lettonia 222
VI Poland, Lithuania and Western Ukraine 226
VII Ukraine and Transcaucasia 228
VIII Czecho-Slovak Boundaries 232
IX ROUMANIA 234
X Roumanian Boundaries 234
XI Serb Frontier in the Banat and Backa 238
XII Italy: Northern Frontier Recommended 242
XIII Map Showing Coincidence of Proposed New
Frontier with Northern Limit of the
Adige Basin, Present Austro-Italian
Frontier, etc 242
XIV Frontiers in the Tyrol 242
* XIV A Important Corridors of Central Alps 242
XV IsoNzo — ISTRiA Region 242
XVI Austria-Hungary 244
XVII Albania 248
XVIII The Balkans 250
' XVIII A The Dobrudja 252
XIX Constantinople Area and Greek Asia 256
XX Asia Minor 258
XXI Arabia 266
XXII French Colonial Tariffs 276
XXIII Preferential Tariffs in the British Empire. . 276
With Document. 263 :
Le Banat 324
With Document 264 :
Proposed Serb-Roumanian Frontier in the Banat. .Page 337
With Document 265 :
1. Rough Sketch of the Banat Page 338
2. Map Illustrating the Population Statistics of the
Banat .' . 338
DOCUMENT 21 6
The Treatment of Napoleon''
The treatment of Napoleon by the Allies in 1814-1815 may be
divided into two phases: the first, in 18 14, when he was allowed
at least a formal voice in determining his own fate; the second, in
1 8 15, when the Allies dealt with him as a prisoner of war.
According to Metternich's Memotres, the Allied Conference at
Langres on January 25, 18 14 decided upon the deposition of Na-
poleon. ^^^ Upon entering the city of Paris, the Allies announced to
the inhabitants that they would treat neither with Napoleon nor
with any member of his f amily.^^^
On April 10, at a conference at Fontainebleau the plenipoten-
tiaries of Napoleon and of the Allies came to an agreement as to
the removal of the Emperor from France. The result of this meet-
ing, The Convention of Fontainebleau, published on the same day
as Napoleon's act of abdication, stipulated the following terms :^^^
1. The Emperor and his family were to retain their titles
during their lives.
2. The island of Elba was given to him in full sovereignty
for his lifetime, although it was attached to France for
defense against Moorish pirates.
3. The Emperor was to return to the Treasury all sums re-
moved thence at his order. His estates in France reverted
to the Crown.
4. A civil list of two million francs was set aside for persons
designated by Napoleon ; moreover his family was assured
a revenue of two and a half million francs.
5. Through the insistence of Napoleon's representatives the
Empress received the Duchies of Parma, Placenta, and
Guastalla, with the tentative assurance of a revenue of
two million francs.
The Emperor Alexander chivalrously desired to treat Napoleon
as a sovereign, a generosity which Metternich found "tres deplacee.**
a. Author, James T. Shotwell. See Diary, p. 88.
2 DOCUMENT 2l6
It is significant that in the negotiations of April 1814 Napoleon was
allowed to treat on nominally equal footing with the Allies, through
his plenipotentiaries, Ney, Macdonald, and de Caulincourt, and
pronounced his own adhesion to the Treaty of Fontainebleau.
The non-observance of the Treaty of Fontainebleau by the
Bourbons gave Napoleon at Elba cause for discontent, Louis XVIII
did not pay a sou of the two millions due to Napoleon's civil list.
The income promised to the Bonaparte family was interminably
delayed. Louis XVIII through Talleyrand protested at the Con-
gress of Vienna against giving the Italian duchies to Marie Louise.
Lastly, the Bourbon king, as well as some of the Allied envoys, were
considering the removal of Napoleon to the Azores or to St.
Helena.<^>
The return from Elba provoked an outburst of Irreconcilable
execration from the Allies and renewed the league of arms of 1813-
18 14. By the Declaration of Vienna of March 13, 18 15 the Con-
gress proclaimed that Napoleon's invasion had destroyed his only
legal title to existence, that he had placed himself outside the law,
and that no peace could be negotiated with him. "Les puissances
declarent en consequence que Napoleon Bonaparte s'est place hors
des relations civiles et sociales, et que, comme ennemi et perturbateur
du repos du monde, il s'est livre a la vindicte publique."^®' The
Quadruple Alliance was reconstituted, and most of the other Eu-
ropean states also acceded to it.
The military triumph of this formidable alliance delivered Na-
poleon once more into the hands of the Allies. After Waterloo
the Chamber of Deputies and the Senate deposed him and denied
the right of succession to his son. He was compelled to leave Paris
and at Malmaison planned flight to America. But from June 25th
the Allied generals made the delivery of Napoleon's person one of
the first and most imperative terms of an armistice. In a note of
July I St Austria, Russia, and Prussia declared that for the peace of
DOCUMENT 2l6 3
Europe Napoleon Bonaparte must be delivered to their keeping.
On July 15th the ex-Emperor surrendered himself to the English.
The Convention of August 2, 18 15, drawn up by the plenipoten-
tiaries at Paris, contained the following clauses -S^^
1. Napoleon Bonaparte was the prisoner of the Allies.
2. He was entrusted to the guardianship of Great Britain,
and the King of England was empowered to choose the
place where he should be interned.
3-4. Great Britain, Austria, Russia, Prussia, and France were
to appoint commissioners, who without assuming the re-
sponsibilities of guards should assure themselves of his
presence.
Napoleon's relatives were, in accordance with the protocol of Au-
gust 27th, interned in various states of Europe.
From England, where he fled on the Bellerophon, Napoleon
was sent by the British government to St. Helena. He forfeited
the title of Emperor, and was henceforth treated officially as a gen-
eral. The remainder of his days were passed under the surveillance
of the commissioners of the Allies.
NOTES.
1. Metternich, Mimoires, I, 182.
2. Declercq, II, 400.
3. Ibid, 402.
4. Debidour, I, 45-46.
5. Martens, N. R., II, 110.
6. Ibid., 605-607.
BIBLIOGRAPHY.
Debidour, A. : Histoire Diplomatique de L'Europe.
De Clerq, M. : Recueil des Traitfe de France.
Martens, Treaties, Nouveau Recueil, Tomes II and III,
Angeberg, Cte. de : Le Congr^s de Vienne et les Traites de 1815.
4
DOCUMENT 217
Memorandum*^
From : David Hunter Miller and
\\\ Major James Brown Scott,
Technical Advisors.
Hi
w
l;
n
w
. \.
] !■
iv
i
To: The Honorable Arthur Hugh Frazier.
Pursuant to your request we have the honor to submit herewith
an expression of opinion relative to the Powers to the represen-
tatives of which an invitation might properly be addressed for sub-
mission of memoranda concerning their respective territorial claims.
Powers represented at the Conference to whom invitations
should be addressed :
United States of America Greece
British Empire The Hedjaz
France Poland
Italy Roumania
Japan Czecho-Slovakia
Belgium Australia
f\ Servia South Africa
China New Zealand
Powers represented at the Conference to whom invitation should
not be addressed ;
Brazil Panama
Siam Bolivia
Cuba Ecuador
Guatemala Peru
Haiti Uruguay
Honduras Canada
Liberia India
Nicaragua
The question of the invitation of Portugal seems to be one
entirely of policy; the same may be said of Montenegro, which is
a. See Diary, p. 89.
DOCUMENT 217 5
mentioned in the Reglement, to which no representation has as yet
been accorded.
If the invitation is to go forward to any of the neutral Powers,
it is our opinion that Denmark and Sweden should be included by
reason of their respective interests in Schleswig-Holstein, and in the
Aaland Islands.
In the latter event it appears to us that no invitation should
issue to Finland, to Luxemburg or at present to Persia, although
the question here again is essentially one of policy.
If neutrals ought to be invited and if Spitzbergen is to be con-
sidered an invitation would in our opinion properly issue to Norway.
David Hunter Miller
James Brown Scott
Technical Advisors, American
Commission to Negotiate Peace.
23 January, 19 19.
1 ;
III
I (
■■i
I DOCUMENT 21 8
; ' I
j Report from Hungary*"
\\ \
(| I Budapest,
January i6, 19 19.
; I \ American Commission to Negotiate Peace,
4 Place de la Concorde, Paris.
Sirs:
I have the honor to report that our party reached here yester-
day morning and we were almost at once taken to the President
who talked with us for the greater part of an hour. I inclose a
report of his conversation with Lieutenant Goodwin. Ever since
I have been through a series of interviews only interrupted by in-
11 i tervals for food and sleep. I have already seen most of the min-
isters and several other important men and with difficulty have
secured time for this short despatch before the pouch closes. All
I can do is to try to recapitulate here the chief points which have
been taken up by my various interlocutors.
I. The Hungarians feel that they have a great and legitimate
grievance. They accepted an armistice on certain definite terms a
copy of which armistice is inclosed herewith. These terms they
'I claim have been violated in several respects. Under the armistice
a certain territory in the southern part of the country was to be
occupied by the Allies, but no acts of sovereignty were to be per-
formed in it until its legitimate fate had been decided by the Peace
Conference. Since the conclusion of the Armistice and after the
dissolution of the Hungarian army other large tracts have been
occupied by the Czechs, the Serbs and the Roumanians and
Ukrainians, and the Hungarians were formally notified by the
II I French Commanding General that they were not to oppose these
• j . advances. Also in all the above territories the invaders have de-
■j \
a. See Diary, p. 89.
DOCUMENT 2l8 7
posed officials, changed the language of signs and in other ways
acted as if they had every intention of remaining there and of forc-
ing the inhabitants to adopt their nationality. There have been
numerous tales of outrages, particularly on the part of the Rou-
manians, but the conduct of the Serbs is praised. There has also
been received a notification from Lt. Col. Vix saying that the Allied
Powers and the United States have authorized the Czechs to act
in full sovereignty in the territories occupied by them. I inclose a
copy of the notification.
The Hungarians say that all this is in violation of the terms of
the armistice, and that even if the notification from Lt. Col. Vix is
in accordance with instructions from the Allied Powers and the
United States, and of this they have had no confirmation, it does
not apply to the regions occupied by the Serbs and the Roumanians
and is in violation of the armistice terms. I am to see people on
this subject this afternoon and shall enclose any documents they
give me, but shall probably not have time to report further owing
to the departure of the courier.
II. All the territory thus occupied is immediately cut off from
Hungary. This has meant a dislocation of the economic life of the
whole country. On the one hand it is impossible for the govern-
ment to send money for pensions to the invalids, orphans, etc. in
the occupied regions. On the other hand what is left of Hungary
has suddenly been deprived of many of its most valuable resources,
for instance, four fifths of the Hungarian coal mines have been
seized and the country is suffering most acutely from the lack of
coal. If this shortage continues unabated, the laming of all in-
dustries with the consequent lack of employment of the working
classes means a great danger of Bolshevist revolution against a
government which has no armed forces with which to meet it.
III. The one great political question in the minds of all apart
from the maintenance of order and the economic situation Is the
danger that menaces the unity of the state. Some men even yet
. 'i;^?
:i^ !
H
i)
8 DOCUMENT 218
can hardly realize their territory which a thousand years ago had
much the same limits as at the present time is now seriously threat-
ened with dismemberment. Others do so with a feeling of despair
at what seems to them an enormity. Croatian Slavonla they aban-
don without too much regret, but the rest they plead passionately.
Their chief arguments are :
I . The geographical and economic unity which is confirmed by
the long historical one.
jjl j 2. The impossibility of a division which shall not leave great
H| i masses of people under alien rule and the certainty of fresh troubles
in the future.
3. Their willingness to give equal rights to all nationalities
and to institute some sort of a government like that of Switzerland
with cantonal independence.
4. Their readiness to put the question to the vote of the popu-
lations interested if only this can be done under fair conditions.
They declare they have confidence in the result of such a vote and
are willing to abide by it. When pressed they admit there are
\\\\ \ certain regions they are less confident than in others, for instance,
y • *,| they do not feel confident of the Roumanians, but declare that they
do of the Slovaks.
Finally they rest their whole appeal on the Fourteen Points of
President Wilson and say that their only hope Is in the sense of
justice of the United States and its leader.
I have the honor to be. Sirs,
Your obedient servant,
Archibald Gary Cooudge,
By Walter Goodwin Davis,
Captain of Infantry, U. S. Army.
4 incls.*
Memo, from Lieut. Goodwin.
. ,^ . Memo, from Mr. C. M. Storey.
!''V Copy of terms of armistice.
Copy of Memo, from Lt. Col. Vix.
Mi
! ! \].^M-
a. I have no copies of the three memorandums enclosed with the report
DOCUMENT 219
Cablegram Received"
Washington, Dated January 21, 19 19.
Rec'd. 22nd 7:00 P. M.
American Mission, Paris.
For Davis from Rathbone.
I St. Have been shown copy of cable somewhat garbled in trans-
mission from Minister Vopicka to Secretary of State, dated January
13th, numbered 6719 and understand copy has been sent to Hoover
in Paris.
2nd. This cable indicates that Roumania has delivered to
Minister Vopicka check for $5,000,000 on National Bank of Rou-
mania.
3rd. Unable to tell from cable whether $5,000,000 is intended
(A) as a repayment of the five drafts, for $1,000,000 each deliv-
ered by Vopicka sometime ago, or, (B) to make payment for food
purchases intended to be made out of new Roumanian $5,000,000
credit referred to in our 688 when established, or, (C) to provide
funds for food purchases in United States in addition to those con-
templated to be made out of credit referred to in (B) above.
4th. Please cable full information upon this subject. In any
case should think that check should be converted into dollars or
francs so that amount thereof would be available for use either in
payment of purchases here or to meet drafts above mentioned.
5th. State Department advises Roumania is at war with Ger-
many and that American Minister at Bucharest has been Instructed
to urge Roumanian Government to forward power of attorney to
representative in Washington to sign obligation.
PoLK,
Acting,
a. See Diary, p. 89.
its
(1/
m
m
m
14
If
^f.
f
m
'['i
■ -f
10
DOCUMENT 220
Telegram from Berne*
Berne,
Dated January 22nd, 19 19,
Rec'd 23rd, 7 :05 A. M.
;nl!f Pans,
American Mission,
January 22nd.
German Austria. National Zeitung: January 21st, Vienna,
2 1 St. Russian Red Cross Committee left Vienna Sunday. Leader
Committee, Doctor Hermann and several other members arrested
at Prague and Budapest at request Commandant Entente troops.
Committee conducted printing office for publishing Bolshevist news-
papers and pamphlets. Large stock clothing and about million
(iiii crowns which Committee turned over to Danish Mission confiscated
M by Police.
Vienna, 2 1st. In reply to repeated protests by German Aus-
trian Government against occupation German Austrian territory by
neighboring states, British Government replied that in opinion Brit-
ish Government question boundaries between German Austria and
neighboring states only be definitely decided by Peace Congress.
Until then boundaries Czech-Slovak Republic to comprise historical
boundaries Bohemia, Moravia and Austrian Silesia. From this and
recent French statement it must be assumed that competent great
powers consider that future German territory not prejudiced by pres-
ent occupation. Hope therefore founded that Peace Congress will
be guided in decision by justice and wish to safeguard world peace.
Vienna, 21. Newspapers report that National Assembly will
convene on February 26; elections on February 16. Abond reports
that immediately after Assembly meets, bill for union German
a. See Diary, p. 89.
DOCUMENT 220 II
Austria with Germany will be presented. Entire Assembly will then
proceed to Germany to take part in session German National As-
sembly. Amalgamation German Austria with Germany expected
by April 1st.
Neue Zueicher ZeitunG; January 2ist. Vienna, 20. Im-
posing demonstration all German political parties held Vienna yes-
terday to protest against oppression of German Bohemia and Ger-
mans of Sudete countries. Governor Lodgmann appealed to peo-
ples of Europe and victorious powers at Peace Conference. Ger-
man Bohemia under Czeck rule would remain hotbed new strug-
gles. Under-Secretary State Glockel described standpoint Social
Democrats who to last man advocate union all Germans in National
State.
Innsbruck, 20. Provincial Assembly adopted resolution pre-
sented by all parties containing declarations that under no circum-
stances could surrender German South Tyrol be sanctioned.
Die Zeit: January 18. Graz, 17. Two members Professor
Coolidge Commission arrived here today for purposes investigating
language and economic conditions of border districts In Carniola
and Styria, now claimed by both Jugo-Slavs and German-Austrlans.
Commission members conducted to Palace where negotiations be-
tween delegates Carniola and Jugo-Slav Governments were in prog-
ress and Immediately participated In negotiations.
Hungary. National Zeitung: January 21st. Budapest,
2 1 St. Sunday meetings held here during which reactionary speak-
ers incited people against Jews. Crowd made demonstration before
hotel where American peace delegation quartered. Christian So-
cialists also held great meeting Sunday in which Government at-
tacked. Shouts heard "Down with Jewish ministers: Down with
Karolyi, the Jew friend : We do not want a Jewish war minister."
Republican guard meeting. Crowd went to Karolyi's palace and
demanded his retirement. Another crowd entered coffee houses
12 DOCUMENT 220
:i
\\\\U
I
and ejected Jews. Demonstrators entered National Theatre and
forced Tews to leave Theatre.
j BuND: 22nd. Budapest 20th. Count Andrassy's castle, Tisza-
j dor, plundered by mob. Damage done amounts to eight million
j crowns.
j Neues Wiener Journal: January i8. Budapest, 17th.
j Meeting Bolsheviks held Budapest today. In speeches Bela Kun,
i President Hungarian Communist party, demanded vengeance for
j blood of first and greatest martyrs Bolshevism, Liebknecht and Lux-
I emburg. He said further, "Death and destruction to Government
j Socialists all countries: Destruction to those masses counter-revo-
i lutionlsts in Berlin who caused death of two greatest persons our
! times." Leader Red Guard made speech demanding that Budapest
Communists join forces with Berlin Spartacists.
i Jugo-Slav. Bund: January 22nd. Laibach, 21st. Employees
of South Slav banks in Trieste notified by police to leave Trieste
and occupied territory immediately. Through intervention former
Deputy, time fixed for departure prolonged. Various Trieste banks
must close owing to this measure. Laibach National Government
will protest to Entente Governments.
Poland. Basler Nachrichten: January 22nd. Lausanne,
2 1 St. (Ukrainian Telegraph Bureau) Reported from Stanislau
that Commandant troops stationed Cholm has requested reinforce-
ments to meet Bolshevik danger coming from East Poland which
is entirely In power Bolshevik bands. Bolshevism making great
progress in entire Poland.
Bohemia. Die Zeit. January i8th. Prague, 17th. Czeck
Academy of Sciences has conferred honorary membership on Masa-
ryk, Wilson and Ernest Denis.
Stovall.
13
DOCUMENT 221
Draft Convention for "Equality of Trade Conditions" «
(i). Goods the produce or manufacture of any one of the
High Contracting Parties imported into the territories of any other,
from whatsoever place arriving shall not be subjected to other or
higher duties or charges than those paid on the like goods the prod-
uce or manufacture of any other forjsign country. Nor shall any
prohibition or restriction be maintained or imposed on the importa-
tion of any goods the produce or manufacture of any of the High
Contracting Parties Into the territories of another, from whatso-
ever place arriving, which shall not equally extend to the importa-
tion of the like goods, being the produce or manufacture of any
other foreign country.
(2) . Goods the produce or manufacture of any one of the High
Contracting Parties exported into the territories of any other, shall
not be subjected to other higher duties or charges than those paid
on the like goods exported to any other foreign country. Nor shall
any prohibition or restriction be maintained or imposed on the ex-
portation of any goods from the territories of any one of the High
Contracting Parties to the territories of any other which shall not
equally extend to the exportation of the like goods to any other
foreign country.
(3). Goods the produce or manufacture of any one of the
High Contracting Parties passing through the territories of any of
the other High Contracting Parties shall be free from all transit
duties, whether they pass through direct, or whether during transit
they are unloaded, warehoused and reloaded.
(4). The regime applied to goods Imported into, exported
from, or in transit through the territories of any of the High Con-
tracting Parties shall not in any way depend on the flag or owner-
ship of any ships in which they may be carried or on the particular
a. British Draft. See Diary, p. 90. The comment of Dr. Young is Document
245.
14 DOCUMENT 221
III
frontier across which they enter or leave these territories, or on
whether they are imported or exported by sea or by land.
(5). Every favour, immunity or privilege in regard to the im-
portation, exportation or transit of goods granted by any one of
the High Contracting Parties to any foreign country whatever shall
simultaneously and unconditionally, without request and without
compensation, be extended to all the other High Contracting Par-
ties.
(6). The High Contracting Parties undertake not to discrim-
inate against the trade of any Contracting State by indirect means
such as Customs or administrative regulations or procedure, tariif
classification or interpretation, or by any other method whatsoever.
(7). The High Contracting Parties are agreed that the princi-
|[| pie of equality of trade conditions, which is the foundation of this
Convention, is infringed by all forms of unfair competition, such
as the use in trade of fake marks, names or descriptions or of marks
giving a false indication direct or indirect of the origin or nature
of any goods, and they engage themselves to take the necessary
legislative and administrative measures to safeguard goods the
produce or manufacture of any other Contracting State from such
unfair competition within their own territories.
(8). The High Contracting Parties undertake to permit the
ships of all Contracting States to carry any description of goods
and passengers to and from any ports or places in their territories
to which ships of their own nationality have access on conditions
no more onerous than those applied in the case of national ships,
and to treat them on a footing of equality with national ships in
regard to port and harbour facilities and charges of all kinds, in-
cluding facilities for stationing, loading and unloading, and duties
and charges of tonnage, harbour, pilotage, light house, quarantine,
and all analogous duties and charges of whatsoever nature, levied
in the name or for the profit of Government, public functionaries,
private individuals. Corporations, or establishments of any kind.
;'i'l
'it
DOCUMENT 221 1 5
(9). Nothing in this Convention shall prevent any Contracting
State from excluding foreign ships from its coasting trade, but while
such exclusion continues the ships of that State shall have no claim
under the Convention to participate in the coasting trade of any
other Contracting State even if that coasting trade be not reserved
for national ships.
This provision shall not affect the right of each of the Self-Gov-
ernlng Dominions of the British Empire and India to reserve
the coasting trade of Its own territory to British vessels.
(10). Nothing In this Convention shall prevent any of the
Contracting States from taking measures to exclude any classes of
goods or persons, or measures to counteract "dumping" or direct or
indirect bounties on goods so long as such measures are impartially
applied.
(11). Nothing In this Convention is to be construed as pre-
venting the establishment of a special Customs regime applicable
to trade between different portions of the territories and Domin-
ions of one of the High Contracting Parties.
( 12) . Any question arising as to the carrying out by any of the
High Contracting Parties of Its obligations under this Convention
shall unless settled amicably be referred on the demand of any Con-
tracting Party for consideration In manner set out in the annex.
(13). Any State which Is In default through failing to give
effect to the decision of the Tribunal referred to in the Annex or
in other manner specified therein shall not while such default con-
tinues be entitled to claim any of the privileges conferred by this
Convention or the Convention establishing Freedom of Transit on
its nationals, goods or ships.
The same provision shall apply to any state which has not yet
fulfilled any obligations imposed on it under the Treaty of Peace
to make reparation for injuries caused by the War, provided that
in such case the period of suspension of privileges shall not except
i6
DOCUMENT 221
M
-1;'
4
m
M
by resolution of the Council of the League of Nations extend beyond
five years.
Transitory Article.
(14). The High Contracting Parties agree not to make any
claim under this Convention on account of the temporary measures
taken by, or privileges accorded to, any Contracting State, during
the year immediately following the ratification of the Treaty of
Peace, for the purpose of ensuring speedy recovery from the effects
of the War. This period may, by Resolution of the Council of the
League of Nations, be extended (to not more than 2 years).
K 1
I:
CUMENT 222
i6a
OlI
Note of Lord Robert Cecil^
BRITISH DELEGATION,
■ "' '■'■"^'' ''
PARIS.
L/^\iZ_<5_^^>oAj3uAA.(^H*-v
.
1
lA
f) -S^y^-^-MTX^ J
Qj5.,,..-<>-J:^-^^
a. January 25th. See Diary, p. 91.
-^:^
i6b
TvoJL^.
•'A
v«Xiol-'
Hit
OLXi^ -
^ CS^^e^
^ '^ •■ >■
,'j^f,
1 6c
=5
^^f";£-'
cc
'f/f
c-
A^-fl't^t'i^ I ^i^
i^<*
X- N
J^^ *■
^*^^
/
i<. r
amI
rH^j^-i
i^'
cl<„,.t.^-<^<:^£/^-/
^■2*
■::;s^X^"~
z^^^'^^i ^^Ti-'t^L -^^ '-r> - ^;
/
y^^r^r- ^^-^;^f'::^
2<-^i<5^4.^ ^•z.^.-f.-.-.-^ c^-^^--.
•'-<
'/.f.
/
.'I ^ JJ
'" ,«
/ /^i
>/>-^
-<**.
P.
3
in
ffi'':\.-^ii:y
'^, -i i
17
DOCUMENT 224
Suggestions of Lord Eustace Percy*
PREAMBLE.
Delete the words from "jointly and severally*' to the end and
insert the words "unite in constituting a League of Nations and to
that end adopt the following measures."
Then insert sub-sections (i), (ii), (iii), and (iv) of Article
I of Chapter I of the British Draft, substituting for the words
"Chapter II" in sub-section (i) the words "Articles VII, VIII, IX,
X and XL"
Insert a new sub-section (v) as follows: —
"(v) They recognise the principle that the establish-
ment and maintenance of peace will require the reduction
of national armaments to the lowest point consistent with
domestic safety and the enforcement by common action of
international obligations. Accordingly they appoint a Com-
mission to study and recommend the forces which should be
maintained and the preparations which should be made by
each of them for the purposes of such common action and
they establish regular methods of conference between them
for the purpose of promoting a full and frank interchange
of information as to the national armaments and military
and naval programmes drawn up with a view to self-de-
fence."
Insert a new sub-section (vi) as follows: —
"(vi) They undertake that no treaty entered into be-
tween States members of the League shall be regarded as
valid, binding or operative, until it shall have been pub-
a. This paper was handed me by Lord Robert Cecil on January 25th. See
Diary, p. 91. It was an attempt to remodel the second Paris Draft of President
Wilson (Document 211) bv incorporating with it many of the provisions of the
British Draft (Document 225).
The references in this paper to the American Draft by paragraph and line may
be easily followed, for Document 211 is printed line for line as it was printed in
Paris.
1 8 DOCUMENT 224
llshed and made known to all other States members' of the
League."
Insert sub-sections 5 and 6 of the British Draft and sub-sections
(vii) and (viii).
For sub-section 7 of the British Draft substitute the follow-
ing sub-section (ix) : —
"They will work to establish and maintain fair hours
and humane conditions of labour for all those within their
several jurisdictions who are engaged in manual labour and
they will exert their influence in favour of the adoption and
maintenance of a similar policy and like safeguards wher-
ever their industrial and commercial relations extend. Ac-
cordingly they appoint a Commission to study conditions
of industry and labour in their international aspects and to
make recommendations thereon, including the extension and
improvement of existing conventions."
Insert the remainder of Article I of the British' Draft from the
word "stipulations" to the words "capital of the League."
Insert Article 2 of the British Draft as Article I, substituting
for the words "the boundaries of any state guaranteed by Article I
(i), (ii), do not conform" the words "any feature of the settle-
ment guaranteed by this Covenant and by the present treaties of
peace no longer conforms," and substituting for the words from
"so far as" to the end the words "in the case of territorial ques-
tions, cease to be under the obligation to protect the territory in
question from forcible aggression by other States, imposed on them
by sub-section (ii) of the Preamble."
Add at the end of this Article the following passage taken over
from Article III of the American Draft : —
"In considering any such modification the League shall
take into account changes in the present conditions and
aspirations of peoples or present social and political rela-
tions, pursuant to the principle that Governments derive
their just powers from the consent of the governed, and shall
be guided by the principle, which the High Contracting
Powers accept without reservation, that the growth among
DOCUMENT 224 19
all peoples of a sense of their duties as members of a cor-
porate society is superior in importance to every question
of political predominance or historical claims."
Insert Article 3 of the British Draft as Article II.
Article I (becomes Article III).
Delete from the word "which" in line 2 to the words "pro
tempore" at the end of the 2nd paragraph and insert the following
words :
"and an Executive Council. The Body of Delegates shall
consist of Representatives of the Contracting Powers at the
Capital of the League. The Meetings of the Body of Dele-
gates shall be held at the Capital of the League or elsewhere
as may be from time to time determined. At Meetings held
at the Capital of the League, the Executive Council shall
appoint the presiding officer of the Body. At Meetings held
elsewhere the representative of the State In whose terri-
tories the Meeting is held shall be the presiding officer,"
In paragraph 3 insert after the words "Body of Delegates"
the words "And Executive Council" and for the words "regular
diplomatic representative accredited to H." substitute the words
"regular representative at the capital of the League."
Insert Article 5 of the British Draft as the concluding two
paragraphs of this Article.
Article 2 (becomes Article 4).
After the words "The Body of Delegates" insert the words
"and the Executive Council."
After the words "field of their action" insert the words:
"In all matters covered by this paragraph the Body of
Delegates and the Executive Council may decide by a ma-
jority of the representatives present at any meeting."
Delete from the words "but all" in lines 4 and 5 of paragraph
2 and insert the following :
"but all resolutions passed or actions taken by the Body
df Delegates in the execution of the functions and powers
20 DOCUMENT 224
granted to them under this Covenant shall be passed or
taken either upon the initiative and recommendation of, or
after reference to and approval by, the Executive Council.
"The Council shall invite any State Member of the
League to send representatives to any Meeting of the Coun-
cil at which matters affecting that State will be under dis-
cussion and no decision on any matter directly affecting the
interests of a State Member of the League which is not
represented on the Council will be binding upon any such
State unless its representatives have been invited to the
Meeting when the decisions in question were taken.
"The Council may also invite any State Member of the
League to send representatives to any Meeting of the Coun-
cil whenever the Council shall consider that the work of
the League would be assisted thereby.
"All resolutions passed or actions taken by the Execu-
tive Council, or by the Body of Delegates upon the recom-
mendation of the Executive Council, except those adopted
in execution of any direct powers herein granted to the Body
of Delegates themselves or the Executive Council, shall have
the effect of recommendations to the several Governments
of the League.
"The Council of the League will be responsible for en-
suring the successful working of the League of Nations and
for seeing that it secures the harmonious cooperation of
the States Members of the League. In particular it is
charged with the duty of watching over the development of
all new independent States arising or created out of the
present Treaties of Peace and of conciliating and compos-
ing differences between them with a view to the maintenance
of settled order and the general peace.
"The Executive Council shall appoint a permanent Sec-
retariat and Staff. The Secretariat shall be under the gen-
eral control and direction of the Chancellor of the League
who shall hold office during the pleasure of the Council.
The first Chancellor of the League shall be the person
named in the Protocol hereto. Any successor shall be ap-
pointed by the Council,
"The Executive Council shall, through the Chancellor,
take the necessary steps to establish and maintain close and
continuous relations with the Governments of the signatory
Powers, with any Governments which may be acting as
mandatories of the League of Nations in any part of the
world, and with any organs or agencies of International
DOCUMENT 224 21
action, whether permanent or temporary, which may be
established under the general sanction of the League,"
Insert Articles 10, 11, 12, 13, 15 and 16 of the British Draft
as paragraphs in this Article.
Article III,
Omit, a passage on the lines of this article having been inserted
in Article II which has been taken over from the British Draft.
Article IF {will now become Article V),
In view of the new sub-section (v) inserted in Article I of the
British Draft which has now been embodied in the Preamble of the
Main Draft, and in view of the fact that it Is proposed to appoint
a separate Commission of the Peace Conference to study the dis-
armament question, It might perhaps be preferable to omit this
Article altogether. On the assumption, however, that it is re-
tained, the following amendments may be proposed : —
After the words "formulate at once" in line 5 insert the words
"after expert enquiry."
At the end of the first paragraph insert the words "but when so
approved it shall not be departed from by any signatory without
the consent of all."
For the rest of the Article substitute the following:
"As the basis for such a reduction of armaments, the
Contracting Powers hereby agree that the following mea-
sures are desirable: the abolition of conscription and all
other forms of compulsory military service ; the maintenance
of future forces of defence and of international action by
systems of militia or voluntary enlistment, whose numbers
and methods of training, together with the scale of direct
military equipment and armament which may be fair and
reasonable in each case, shall be fixed by the agreements with
regard to the reduction of armaments referred to In the
last preceding paragraph; the introduction of full and
frank publicity as to all national armaments and military
or naval programmes; and the prohibition of the manufac-
22 DOCUMENT 224
ture of munitions and implements of war by private enter-
prise or for private profit.
"No new State shall be recognized by the League or
admitted into its membership except on condition that its
military and naval forces and armaments shall conform to
standards prescribed by the League in respect of it from
time to time, provided, however, that the League shall not
prescribe such standards until the plan of disarmament re-
ferred to in the first paragraph of this Article shall have
been adopted by the contracting Powers.
"In consideration of the limitations which may thus be
Imposed on the military and naval forces and armaments
of weaker members of the League, whether in respect of
the standards prescribed for them by the League or in re-
spect of their inability themselves to undertake the manufac-
ture of munitions and implements of war, the Contracting
Powers recognize it as their joint duty to protect such
weaker members of the League and to supply to them,
where necessary, the amounts of direct military equipment
and armaments eventually determined in the manner pro-
vided in this Article to be fair and reasonable in their case.*'
Article V {will now become Article VI).
For the words "there has been an" in line 6 substitute "three
months after the."
After the words "Executive Council" in line 7 insert the words
"provided that the award of the arbitrators shall be made within
a reasonable time and the decision of the Council within six
months."
After the words "In case of arbitration" at the beginning of
the 3rd paragraph insert the words "pending the creation of a per-
manent court of International justice and in the absence of provi-
sions in any agreement between the parties to the dispute prescrib-
ing the constitution of the court to which the dispute shall be sub-
mitted."
Delete paragraphs 4 and 5.
For the words at the beginning of the 6th paragraph "If for
any reason" to "dispute" substitute the words In Chapter 2, Article
DOCUMENT 224 23
4 of the British Draft "If there should arise between States, mem-
bers of the League, any dispute likely to lead to a rupture which
is not submitted to arbitration under paragraphs 2 and 3 of this
Article they shall apply, &c."
After the word "and" in the 5th line of the 6th paragraph In-
sert the words "the Chancellor shall."
After the word "consideration" in the 7th line of the 6th para-
graph Insert Article 6 of Chapter 2 of the British Draft, substitut-
ing the words "under this Article" for the words "Article 4," and
deleting the words "the Conference or."
For the word "it" in the same line substitute the words "the
Council."
Delete the words "and as soon as possible make public," since
this has now been covered by the insertion of Article 6 of the
British Draft.
Delete the sentence "Other members" to "peaceful settlement"
and the sentence "Should the Executive Council" to "disputants."
For the latter sentence substitute Article 9 of Chapter 2 of the
British Draft, deleting the words "of the Conference or" In the ist
line, the words "or a similar report by the Conference" in the 7th
line, the words "or the Conference" in the 9th and loth lines, and
the words "Conference or" in the 12th line, and substituting the
words "Articles VII and VIII" for the words "Articles 12 and 13."
Insert as an additional paragraph to this Article VI, Article 7
of the British Draft, deleting the words "the Conference or" in the
1st line and the words "Conference or" In the loth and I3th-I4t'h
lines.
Insert as a final paragraph of this Article VI, Article 5 of the
British Draft, substituting for the words from "Conference" in
line 5 to the end the words "Body of Delegates, the Chancellor
shall refer the matter to that Body. In addition the Council may
at any time in the course of its investigation of a dispute or within
the period of three months after the making of its report refer the
24 DOCUMENT 224
consideration of the dispute to the Body of Delegates. In such
cases all the relevant provisions of this Article regarding the ac-
tion and powers of the Executive Council shall apply to the action
and powers of the Body of Delegates."
Article VI {will now become Article VII),
For the words "Article V" in line 2 substitute "Article VI.'*
Before the last paragraph insert the last paragraph of Article
13 and Article 14 of the British Draft.
At the end of the Article substitute for the words "Supplemen-
tary Article IV" the words "the third paragraph of Article IV"
and insert the following "and as part of the terms of Peace im-
posed on such State, it shall be called upon to restore" and con-
tinue as in Article 15 of the British Draft.
Article VII.
The difficulty about this Article is that it appears to refer to two
possible cases, one, the case of an attack by a Power, not a member
of the League, and the other, an act of war by a Power, member of
the League, of a more aggravated character than is necessarily in-
volved in the breach of the Covenant mentioned in Article VI. In
so far as it refers to the former case it would appear to duplicate
Article X.
In the latter case the distinction between Articles VI and VII is
so vague that it would seem preferable to leave Article VII out alto-
gether and to transfer the word "blockade" to Article VI. It is, in
addition, not evident what the "closing the frontiers" mentioned in
Article VII can mean over and above the prevention of all inter-
course with the subjects of any other State which is already provided
for in Article VI. It is therefore assumed that this Article may be
omitted.
Article VIII .
For the words "and to all the Powers" down to the word "take"
' AS
DOCUMENT 224 25
substitute the words "which shall have the right to take through the
organs herein provided".
For the word "Delegates" in the 3rd line of paragraph 3 sub-
stitute the word "Chancellor".
Omit the last paragraph.
Article IX,
For the words "The Delegates" in line 6 substitute the words
"The Council".
Articles X and XI stand.
Article XII .
Omit the last sentence.
It is also for consideration whether Article 2 of Chapter 3 of
the British Draft should not be inserted and whether, as in Article
3 of Chapter 3 of the British Draft, the process of application
should be left undetermined by substituting the word "League" for
the words "Body of Delegates".
Article XIII stands.
Insert as a new Article XIV, Article 4 of Chapter 3 of the
British Draft.
SUPPLEMENTARY AGREEMENTS.
In consideration of the fact that a general declaration in regard
to the matters dealt with in Articles I, II and III is contained in
Sub-Section 3 of Article I of the British Draft now inserted in the
Preamble of the American Draft and in consideration of the fact
that there is a Supplementary Draft of a general Convention regard-
ing mandatories, it seems preferable to substitute this Supplementary
British Draft for Articles I, II and III. This Supplementary Draft
covers practically the same ground as these Articles in detailed form.
Article IV, paragraph i, of these Supplementary Agreements
26 DOCUMENT 224
has been transferred with additions to Article V of the main Con-
vention,
Paragraph 2 of Article IV has been combined with Article 6
of Chapter i of the British Draft and inserted in Article IV of the
main Draft which has now become a compendium of the duties of
the Executive Council.
Article V of the Supplementary Agreements has been combined
with Sub-Section 7 of Article I of the British Draft now embodied
in the Preamble of the main Draft.
Article VI. It has been the intention of the British Draft to
leave the question of racial or national minorities to be settled in
the territorial treaties which are generally guaranteed by the
League. This decision Is based upon the fact that in some cases such
minorities will demand a guarantee of distinct treatment in such
matters as linguistic schools, while In others they will demand the
equal treatment guaranteed to them by this Article VI. Moreover,
if, as may be hoped, some means can be found In the territorial
treaties of committing the regulation of such questions to the joint
action of the States immediately concerned — e. g. by a standing Com-
mission of such States under an impartial chairman, — it is doubtful
whether the intervention of the Great Powers, under the general
provisions of the Covenant creating the League of Nations, would
conduce to the smooth working of such "regional" Commissions.
It seems better therefore to omit Article VI unless and until it
becomes evident that it is impossible to deal with these questions ade-
quately in the territorial treaties.
Article VII is to a certain extent covered by a provision in the
British Draft Convention regarding mandatories.
In regard to new and independent States, this is a matter of in-
ternal government which it is almost impossible for the League of
Nations to supervise or enforce. It might therefore be better to
omit this Article.
As regards Article VIII, it seems very doubtful whether any
DOCUMENT 224 27
provision which recognises in set terms the possibility of future wars
outside those contracted on behalf of the League of Nations should
be included in a Supplementary Agreement to this Covenant which
will be regarded by public opinion as putting an end to future wars.
The point is one with which it will perhaps be better to deal sepa-
rately.
Article IX has been inserted as a new sub-section in Article I of
the British Draft now embodied in the Preamble of the main Draft.
Article X is covered by Sub-Section (v) of Article I of the
British Draft now embodied as Sub-Section (vii) in the Preamble of
the main Draft and by the British Draft Convention dealing in de-
tail with equality of trade conditions.
28
DOCUMENT 225
January 20, 19 19.
LEAGUE OF NATIONS.'
Draft Convention*
Chapter I.
Functions and Organisation of the League.
I. Impressed by the horrors of the late War, and convinced
that another war of the same kind would be productive of still
greater disasters to humanity and civilization, the High Contracting
Parties* unite in constituting a League of Nations.
The primary object of the League is the promotion of peace
among the nations of the world. With this intent the H.C.P.
solemnly pledge themselves to co-operate in the League for the pre-
vention of war by eliminating, so far as possible, the causes of in-
ternational disputes, by providing for the pacific settlement of such
disputes should they arise, and by encouraging a general system of
international co-operation for promoting the peaceful progress of
mankind.
For achieving these ends the H.C.P. adopt the following mea-
sures: —
(i.) They enter into the obligations intended to secure the
avoidance of war which are contained in Chapter II.
of this Convention.
(ii.) They undertake to respect the territorial integrity of all
States members of the League, and to protect them
from foreign aggression, and they agree to prevent any
attempts by other States forcibly to alter the territorial
a. British Draft. See Diary, p. 91. Compare Document 207, of which this is a
revision and see also Document 226, handed to me with this on January 2Sth by
Lord Robert Cecil. ^
* Hereinafter referred to as "H.C.P."
DOCUMENT 225 29
settlement existing at the date of, or established by, the
present treaties of peace.
(iil.) They recognize the duty incumbent upon the more ad-
vanced members of the family of nations to render help
and guidance, under the sanction of the League, in the
development of the administration of States and terri-
tories which have not yet attained to stable govern-
ment.
(iv.) They entrust to the League the general supervision of the
trade in arms and ammunition with the countries in
which the control of this traffic is necessary in the
common interest.
(v.) They will endeavour to secure and maintain freedom of
transit and just treatment for the commerce of all
States members of the League.
(vi.) They appoint commissions to study and report to the
League on economic, sanitary, and other similar prob-
lems of international concern, and they authorize the
League to recommend such action as these reports may
show to be necessary.
(vii.) They appoint a commission to study conditions of in-
dustry and labour in their international aspects, and to
make recommendations thereon, including the exten-
sion and improvement of existing conventions.
Stipulations for securing the above objects are embodied in
separate Conventions annexed hereto or in the general treaties of
peace.
(2.) The H.C.P. place under the control of the League all in-
ternational bureaux established by general treaties and now located
elsewhere if the parties to such treaties consent. Furthermore, they
agree that all such international bureaux to be constituted in future
shall be placed under the supervision of the League and shall be
located at the capital of the League.
k
3a DOCUMENT 225
2. If at any time it should appear that the boundaries of any
State guaranteed by Article i (i), (ii) do not conform to the re-
quirements of the situation, the League shall take the matter under
consideration and may recommend to the parties affected any modi-
fication which it may think necessary. If such recommendation is
rejected by the parties affected, the States members of the League,
shall, so far as the territory in question is concerned, cease to be under
the obligation to protect the territory in question from forcible ag-
gression by other States, imposed upon them by the above provision.
3. The H.C.P. agree to accept as the basis of the organisation
of the League the provisions contained In the following articles.
4. A General Conference of the League shall be held within
six months of the date when the present Convention .comes into
force, and similar conferences shall be held from time to time as
occasion may require, and in any case at intervals of not more than
four years.
A General Conference of the League shall be composed of re-
sponsible representatives of the States members of the League.
The meetings of the General Conference of the League are re-
ferred to in the present Convention as the Conference of the League.
5. The H.C.P. appoint the following States members of the
League to constitute the Council of the League: — France, Great
Britain, Italy, Japan, and the United States of America. The
Council may at any time co-opt additional members. Except as
provided hereafter, no State shall be represented at any meeting of
the Council by more than two members.
Meetings of the Council shall be held from time to time as oc-
casion may require, and in any case at intervals of not more than
one year.
6. The Council of the League will be responsible for ensuring
the successful working of the League of Nations, and for seeing that
it secures the harmonious co-operation of all the States members of
the League.
DOCUMENT 225 31
In particular, it is charged with the duty of watching over the
development of the new States which may be recognized by the gen-
eral treaties of peace, and of settling all differences which may arise
between them connected with the arrangements effected by those
treaties.
7. The Council shall invite any State member of the League to
send representatives to any meeting of the Council at which matters
affecting that State will be under discussion.
No decision on any matter directly affecting the interests of a
State member of the League which is not represented on the Council
will be binding upon any such State unless its representatives have
been invited to the meeting when the decisions in question were taken.
8. The Conference of the League shall regulate its own pro-
cedure, and may appoint committees for any purpose it may deem
convenient. In all matters covered by this Article the Conference
may decide by a majority of the representatives present at any meet-
ing. The provisions of this Article apply also to the Council of
the League.
9. There shall be established a permanent international secre-
tariat of the League. The secretariat shall be under the general
control and direction of the Chancellor of the League, who shall
hold office during the pleasure of the Council. The first Chancellor
of the League shall be the person named in the Protocol hereto.
Any successor shall be appointed by the Council.
10. The Chancellor of the League shall be assisted by such
number of assistant secretaries as he may find it necessary to appoint
and such further staff as he may think necessary within the limits of
the expenditure which may be authorised.
11. The Chancellor shall act as the Secretary of the Confer-
ence of the League and of the Council of the League, and will be
responsible to them for such duties as may be entrusted to him.
12. Representatives of the States members of the League at-
tending meetings of the League, the representatives of the H.C.P.
32 DOCUMENT 225
at the capital of the League, the Chancellor and the members of the
permanent secretariat of the League, and the members of any judi-
cial or administrative organ or of any commission of enquiry work-
ing under the sanction of the League, shall enjoy diplomatic privi-
leges and immunities while they are engaged in the business of the
League.
All buildings occupied by the League, or by any organisation
placed under the control of the League, or by any of its officials, or
by the representatives of the H.C.P. at the capital of the League
shall enjoy the benefits of extra-territoriality.
13. The Secretariat of the League shall be established at
. This City shall constitute the capital of the League.
The meetings of the Conference of the League and of the Coun-
cil of the League shall be held at the capital of the League, or in
such other place as may be determined.
14. Each of the H.C.P. may maintain a representative at the
capital of the League.
15. The expenses of the League, other than those occasioned
by meetings of the Council of the League, shall be borne by the States
members of the League, in accordance with the distribution among
the members of the Postal Union of the expenses of the Interna-
tional Postal Bureau. The expenses occasioned by meetings of the
Council of the League shall be divided equally among the States
represented on the Council.
16. The H.C.P. recognise the right of the British Empire to
separate representation in respect of the Dominions of the British
Empire including India, at meetings of the Conference of the
League, and also at meetings of the Council, at which matters af-
fecting any particular Dominion are under discussion.
Chapter II.
Avoidance of War.
I. Each of the States members of the League agrees that it
DOCUMENT 225 33
will not, except in accordance with Article 12, go to war with an-
other State member of the League : —
(a.) without submitting the matter in dispute to a Court of
International Law or to the Conference or the Council
of the League; and
{b.) until the Court or the Conference or the Council of the
League has had reasonable time to render its decision
or report on the matter, provided that in the case of
the Conference or of the Council the time shall not
exceed months; and
(c.) within a period of three months after the rendering of
the decision or the report, Including for this purpose a
majority report, or after the expiration of the reason-
able period referred to in {b) ;
and also that It will not go to war with another State member of the
League which complies with the decision of the Court or, subject to
Article 9, with the recommendations of the Conference or of the
Council.
2. If there should arise between States members of the League
any dispute likely to lead to a rupture, which both parties agree to
refer to the decision of a court of international law, or which under
some convention between them either party Is entitled to claim as
of right should be referred to the decision of a court of international
law, the parties or party as the case may be shall inform the Chan-
cellor of the League, who shall forthwith make all necessary ar-
rangements for bringing the dispute before the Court accordingly.
All questions of procedure shall, if not settled by agreement between
the parties, be decided by the Court, and, pending the assembly of
the Court, may be decided by the Chancellor.
3. Pending the creation of a permanent court of international
justice, the court of international law to which the case is referred
under the preceding article shall be the court agreed on by the parties
or stipulated in the convention existing between them.
34 DOCUMENT 225
4. If there should arise between two States members of the
League any dispute likely to lead to a rupture which is not sub-
mitted to a court of international law under Article 2, it shall be
open to either of them to demand the reference of the matter to
the League. The object of the League in dealing with the matter
shall be to eflfect a just and lasting settlement of the diflference. The
Chancellor of the League shall in that case convoke a meeting of
the Council of the League at such place as may be deemed most
convenient under the circumstances, and the Council shall forthwith
proceed with the investigation of the dispute.
5. In the event of any State represented on the Council or of
any party to the dispute notifying the Chancellor within a period of
14 days after the demand for reference to the League that in its
opinion the dispute is one which should be referred to the Confer-
ence, the Chancellor shall convoke a meeting of the Conference.
Pending the assembly of the Conference, the investigation of the
dispute by the Council shall continue.
6. The party upon whose demand the matter has been referred
to the League shall file with the Chancellor of the League a state-
ment of its case with all the facts and papers relevant to the dispute.
The party against whom the complaint is made shall be Invited by
the Chancellor to file a statement of its case with all relevant facts
and papers.
The Chancellor shall forthwith publish the statements of the
parties.
The H.C.P. agree that, in the case of the reference of any dis-
pute to the League under Article 4, they will each, whether parties
to the dispute or not, place at the disposal of the Conference or the
Council to the fullest possible extent compatible with their interests
all the information In their possession which bears upon the ques-
tions under discussion.
7. Where the Conference or the Council finds that the dispute
can with advantage be submitted to a court of international law, or
DOCUMENT 225 35
that any particular question involved in the dispute can with advan-
tage be referred to a court of international law, it may submit the
dispute or the particular question accordingly, and may formulate
the questions for decision, and may give such directions as to pro-
cedure as it may think desirable. In such case, the decision of the
Court shall have no force or effect unless it is confirmed by the Re-
port of the Conference or Council.
Pending the creation of a permanent court of international jus-
tice, the court of international law referred to in this article shall be
a tribunal of arbitration nominated by the Conference or the Coun-
cil from among the members of the Permanent Court created by the
Convention for the Pacific Settlement of International Disputes.
8. Where the dispute is under investigation by the Council, the
Council shall, after considering the merits of the dispute, and the
decision of a Court under Article 7, make a report to the H.C.P.
9. Where the efforts of the Conference or of the Council have
led to the settlement of the dispute, a statement shall be prepared for
publication indicating the nature of the dispute and the terms of
settlement, together with such explanations as may be appropriate.
If the dispute has not been settled, the report of the Council to
the H.C.P., or a similar report by the Conference, shall be published.
This report shall set forth, with all necessary facts and explanations,
the recommendations which the Council or Conference think just
and proper for the settlement of the dispute. If the Report is
unanimously agreed to by the members of the Conference or Council,
other than the parties to the dispute, the H.C.P. hereby agree that
none of them will go to war with any party which complies with its
provisions, and that they will take all the measures described in
Articles 12 and 13 to prevent any other Power going to war with
such party. If no unanimous report can be made it shall be the
duty of the majority to issue a report indicating what they believe
to be the facts and containing the recommendations which they
consider just and proper.
36 DOCUMENT 225
10. The Council may at any time in the course of its investi-
gation of a dispute, or within the period of three months after the
making of its report, convoke a meeting of the Conference and
transfer to it the consideration of the dispute.
11. Where any dispute arises between any States, whether
members of the League or not, which, in the opinion of the Council,
may lead to a rupture, the Council may take the dispute into con-
sideration, and may deal with it as though it had been referred to
the League under Article 4, or in such other way as will in their
opinion best conduce to the peace of the world.
12. The H.C.P. agree that, in the event of any State member
of the League committing a breach of Article i, it will become,
ipso facto, at war with all the other States members of the League;
they will all regard each other as co-belligerents, and will take and
support each other in taking all such naval, military, or economic
measures as will best avail for restraining the breach of covenant.
In particular, they shall each forthwith take all measures neces-
sary to suspend financial, commercial, postal, and telegraphic rela-
tions with such State, and, as far as possible, shall prevent that State
from having any such relations with any other Power.
13. For the above purposes, each of the H.C.P. agrees that
it will detain all ships and goods within its jurisdiction belonging to
any person resident in that State ; it will prohibit all vessels flying the
flag of its mercantile marine from entering the ports of that State;
it will prohibit all exports to or imports from, and all financial
transactions direct or indirect, with any person in the territory of
such State; and it will also take such further economic and com-
mercial measures as the League may deem necessary.
Furthermore, each of the H.C.P. agrees that, if it cannot make
an effective contribution of naval, military, or aerial force, it will co-
operate to the utmost of Its power in the naval and military mea-
sures which may be taken.
The naval, military, and economic operations undertaken in
DOCUMENT 225 37
pursuance of this article and of the immediately preceding article
shall be carried out without regard to any limitations hitherto im-
posed on belligerent States by any convention or rule of international
law.
14. The H.C.P. agree, further, that they will mutually sup-
port one another in the financial and economic measures which they
are bound to take under the preceding article in order to minimise
the loss and inconvenience resulting therefrom, and that they will
mutually support one another in resisting any special measures aimed
at one of their number by the State with which relations have been
broken ofif, and that they will afiford passage through their territory
to the armed forces of any of the H.C.P. who are co-operating to
resist the breach of Article i.
15. The H.C.P. agree that, as part of the terms of peace im-
posed upon the State which has violated the provisions of Article i,
it shall be called upon to restore all contracts existing at the date of
the outbreak of hostilities between their nationals and the nationals
of the enemy State which their nationals wish to maintain, and also
to provide without reciprocity security for the payment of all debts
owing at the date to nationals of the co-operating States members
of the League.
16. In the event of disputes between one State member of
the League and another State which is not a member of the League,
or between two States neither of which is a member of the League,
the H.C.P. agree that the State or States not members of the League
shall be invited to become members of the League ad hoc, and the
above provisions shall be applied with such modifications as may
be necessary.
Chapter IIL
General,
I. The H. C. P. agree that the provisions of this Convention
shall override any previously existing treaty stipulations which may
38 DOCUMENT 225
be inconsistent by which they may be bound to any other members
of the League. Furthermore, they agree that they will not enter ^
into treaty engagements in future which are inconsistent with it.
2. Powers not represented at the present Conference may be
invited to become parties to the present Convention. These invi-
tations will be conveyed by the Chancellor of the League.
3. Powers not invited to become parties to the present Con-
vention may apply for leave to become parties. The League shall
in such case decide whether the Power so applying can be relied on
to observe the terms of the Conventions, and, If not, the League
may refuse the application, or, alternatively, may impose upon such
Power such further conditions as it may deem necessary.
4. The provisions of this Convention shall come into effect so
soon as it has been ratified by Great Britain, the United States of
America, France, Italy, and Japan.
39
DOCUMENT 226
Notes on the League of Nations Draft Convention"
Note to Chapter L
The Conventions to be annexed to the Covenant will be, roughly,
the following: —
{a.) Conventions defining territorial settlements;
{b.) Conventions defining the responsibilities of mandatory
States ;
{c.) Conventions dealing with arms traffic, liquor traffic, and
other tutelage of backward races ;
{d.) Conventions defining general economic policy {e. g.,
transit, air, trade conditions) ;
(e,) Conventions dealing with international labour conditions j
(/.) Conventions establishing the legal machinery of the
League ;
{g.) Conventions dealing with standard international activities
of a more scientific or technical character (e. g.^ health) ;
and establishing in each case the international organs, whether Com-
missions of Enquiry or Administrative or semi-Administrative Com-
missions, required to carry out the terms of each Convention.
These Conventions will probably include not only new Conven-
tions signed at Paris, but a number of existing agreements which the
League will take over (e. g., existing agreements under (^), such
as the Postal Union ) .
Note to Chapter I, Article lo.
The duties of the Chancellor should be somewhat as follows,
and directions to that effect might be given to him by the States com-
posing the Council in a protocol : —
a. This is a British note to Document 225. See Diary, p, 91.
40
DOCUMENT 226
(tf.) He should convene the meetings of the Conference and
the Council, prepare the work of these meetings, and
record the business transacted at them.
{b.) He should facilitate and register the results of the work
of the various international organs indicated in the Note
to Chapter I, and, in this connection, he should carry
out the provisions of Chapter I, article i (2) of the
Convention.
(c.) He should take the action required of him in connection
with international disputes, as provided in Chapter 11.
{d.) He should register all international treaties brought to
the cognisance of the League.
(e) In general, he should collect, for the information of the
Council and the Conference, all facts affecting the pur-
poses and obligations of the League.
(/.) The Conference and Council of the League should cor-
respond through him, as the sole responsible channel,
with the member States, with the international bodies
indicated under (t), and with any court of interna-
tional law or conciliation operating in pursuance of this
Convention.
(g.) He should maintain current relations at the capital of the
League with any official representatives whom the
member States may accredit to the League.
(k.) He should, at the request of two or more member
States, make arrangements for any official inter-State
meetings which it may be desired to hold.
(«.) He should make similar arrangements for any unofficial
meetings of an international character which he, as the
representative of the Council, may consider it advisable
to invite to the capital of the League.
DOCUMENT 226 41
Note to Chapter I, Article 11.
It might be well to agree in a protocol that the Council shall, in
the first instance, direct the Chancellor to select the secretariat in a
particular way. Such a protocol, signed by the States composing
the Council, might stipulate that the Chancellor shall appoint ten
permanent secretaries at his discretion, subject to the following pro-
visions : —
He shall choose one national of each of the States members of
the Council, two nationals of two European States not members of
the Council, one national of one of the States of America other
than the United States, and two nationals of any States members of
the League at his discretion. Before appointing a national of any
State, the Chancellor ought, however, to secure the approval of the
Government of such State, and the Council should have the right
to veto any given appointment by unanimous vote.
Note to Chapter HI, Articles i and 2.
I- On the assumption, as a matter of procedure, that the Con-
vention will In the first instance be negotiated and initialled by the
States forming the Council of the League, and that it will then be
offered for signature, during the Conference of Peace, to all the
other States represented at that Conference (except the enemy
Powers), It is suggested that a protocol should be annexed to the
Convention, as originally Initialled, naming the States to whom in-
vitations should be issued as soon as the Convention is finally signed
by the States represented at the Conference. It is suggested that
invitations should be issued as follows:
(a,) to any States at war with Germany, or having broken off
diplomatic relations with her, which may not be repre-
sented at the Conference ;
(N. B. — It is possible that the United States may
advise against the inclusion of some Latin-American
State coming within this category, e. g., Costa Rica.)
42 DOCUMENT 226
(b,) to European neutrals, i. e., Sweden, Norway, Denmark,
Holland, Switzerland, and Spain ;
(c.) to Latin-American States not represented at the present
Peace Conference, except Mexico, Hayti, Santo Do-
mingo, and any other State which, in the opinion of the
United States, may be considered unready for member-
ship (without prejudice to the right of such State to
apply for membership under Article 17).
(d.) to Persia.
2. The protocol should further set out that invitations should
be issued to new States recognised as sovereign and independent by
the Peace Conference. Jugo-Slavia would be included in this class
of States, unless it were organically united to Serbia.
3. The policy with regard to the admission to the League of
enemy Powers, /. e., Germany, Austria, Hungary, Bulgaria, and
Turkey, remains to be decided. On the whole, it might be well to
state in a protocol that they will be invited to apply, under Article
17, "when they have given proof of their genuine acceptance of the
present Convention, of the treaties and agreements annexed thereto,
and of the present general treaties of peace, and of their determina-
tion to abide by those obligations.*'
Russia cannot probably be invited to adhere, but it may be ad-
visable to state in a protocol the reasons for this omission.
43
DOCUMENT 227
Draft Convention Regarding Mandataries (Revised 24. 1. IB)"
1. The High Contracting Parties agree and declare that all
territories named in the protocol hereto as "vested territories"
which in consequence of the late war are to be transferred to any
states shall be held by such states upon trust to afford to their in-
habitants peace, order and good government.
2. The High Contracting Parties further agree that all the
territories named in the protocol hereto as "assisted states" which
in consequence of the late war are to attain their Independence, shall
be entitled to such assistance as they may desire for the purpose of
securing peace, order and good government for the population of
those states and may for the purpose of obtaining such assistance
select in concert with the Council of the League of Nations some
state member of the League as assisting power unless under any
convention in connection with the Peace Treaty an assisting power
has already been assigned to them.
3. In no vested territory shall the following practices be per-
mitted:
(i) Slavery and forced labour.
(il) Traffic in intoxicants deleterious to the health of the
natives.
(ili) The establishment and maintenance of fortifications or
fortified bases or native armed forces, except for the
purpose of and to the extent necessary for guarding
or policing the territory administered by the authority
immediately responsible for their maintenance.
(iv) The grant by the State of any rights or powers involving
the transfer to private Individuals or corporations of
a. This draft of Cecil was handed to me by him on January 25th, with a note
attached which is Document 228. See Diary, p. 91.
44 DOCUMENT 227
the responsibility for discharging any of its obligations
under this convention,
(v) The reservation by any State of the produce of any terri-
tory for the benefit of Its own nationals, whether by
restriction on Export, Government Monopoly, or spe-
cial concessions to Individuals or companies.
4. In all vested territories or assisted states there shall be
maintained :
(i) Freedom of conscience or religion, subject only to the
maintenance of public order and morals;
(il) the policy of the open door or equal opportunity for the
nationals of all the states Members of the League in
respect of the use and development of the economic
resources of such territories;
(iii) freedom of transit and equality of trade conditions in
accordance with the provisions of the Conventions re-
lating thereto;
and execution shall be duly and faithfully given to
(Iv.) the provisions of the Arms Traffic Convention.
5. In respect of vested territories the States placed in charge
thereof shall discharge all duties and responsibilities and be Invested
with all powers and rights of a sovereign government, but they shall
report annually to the League of Nations on all matters relating to
the discharge of their obligations under this convention. Such Re-
port shall contain full Information as to the progress of the terri-
tories and particularly as to the steps taken to secure effectively the
prevention of the prohibited practices.
6. In respect of assisted States the assisting States shall be in-
vested with such powers, rights, duties and responsibilities as shall
be given to them by any agreements with the Assisted States, and
they shall report the terms of such agreements to the League of
DOCUMENT 227 45
Nations and shall also make a report every year to the League
showing the steps taken to carry out those terms.
7. There shall be established by the Council of the League a
Commission or Commissions to assist the League in the supervision
of the mandatary states and the reports mentioned in articles 5 and
6 shall be considered by such commission and commissions, who may
make such recommendations thereon to the Council of the League
as they shall think right.
Note. The terms of this Draft Convention would, of course, be
additional to any special provisions contained in the
Treaties creating each individual mandate.
46
DOCUMENT 228
Note*
It may possibly be desirable to amend the annexed draft Con-
vention regarding Mandataries in the direction of adding some
general declarations agreeable to American and to international
labour sentiment. The following additions are suggested as innocu-
ous and in accord with British practice.
Preamble.
The High Contracting Parties who have united In creating, by
the present Treaties of Peace and by the Covenant establishing the
League of Nations, the new settlement of territories which formerly
belonged to Austria-Hungary and Turkey and of the Colonies for-
merly under the dominion of the German Empire, recognising that
the League of Nations must be regarded as the guardian of the
settlement thus arrived at and, in all matters not so finally settled,
as Trustee for the peoples of the territories named in the Protocol
hereto, now unite In laying down certain fundamental principles in
accordance with which they are resolved that this trusteeship shall
be exercised.
Article L
At the end, after the words "good government" insert the words
"All policies of administration or economic development shall be
based primarily upon the well considered interests of the peoples
themselves. Although, in such territories, the inhabitants are not
yet capable of nominating or explicitly approving the State appointed
as mandatary of the League, it is recognized that the rule requiring
the consent of the governed to their form of government should
nevertheless be fairly and reasonably applied, and that the Manda-
tary should take Into full and friendly consideration any expression of
a. This is a note to Document 227 handed to me with that Document by Cecil
on January 2Sth. See Diary, p. 91.
DOCUMENT 228 47 .
the desires of the inhabitants or of any section of them, with the
object of determining their best interests, in view of all the circum-
stances of their situation and development."
Article II.
Add at the end after the, words "assigned to them" "The assist-
ing State thus selected in accordance with the expressed desire of
the autonomous people of the territory concerned shall adopt as the
object of all tutelary functions discharged by it the development of
that people in as short a time as possible, into a political unit which
can fully take charge of its own affairs, determine its own connec-
tions and choose its own policy."
48
DOCUMENT 229
CONFERENCE DE LA PAIX
Ordre du Jour de la Stance du 25 Janvier 1919^
1°. — Proces- Verbal de la Seance precedente,
2°. — Indication des Commissions constituees pour I'etude des ques-
tions suivantes:
Societe des Nations,
Reparation des dommages,
Responsabilites des auteurs de la guerre, et sanctions.
Legislation internationale du travail,
Regime international des ports, voies d*eau et voies
ferrees.
'1°. — Discussion sur la Societe des Nations.
a. See Diary, p. 91.
49
DOCUMENT 230
PRELIMINARY PEACE CONFERENCE
Protocol No. 2*
Plenary Session of January 25, 19 19.
The Session is opened at 15 o'clock (3 p. m.) under the presi-
dency of Mr. Clemenceau, President.
Present:
For the United States of America:
The President of the United States.
Honorable Robert Lansing.
Honorable Henry White.
Honorable Edward M. House.
General Tasker H. Bliss.
For the British Empire :
Great Britain :
The Rt. Hon. D. Lloyd George.
The Rt. Hon. A. J. Balfour.
The Rt. Hon. G. N. Barnes.
The Hon. C. J. Doherty, Minister of Justice of Canada.
The Rt. Hon. Sir Joseph Ward, Bart., K.C.M.G., Min-
ister of Finance and Posts of New Zealand.
The Rt. Hon. The Lord Robert Cecil, K.C., M.P., Tech-
nical Delegate for the League of Nations.
Dominions and India :
Canada:
The Rt. Hon. Sir Robert Borden, G.C.M.G., K.C.,
Prime Minister.
The Rt. Hon. Sir George Eulas Foster.
Australia :
The Rt. Hon. W. M. Hughes.
The Rt. Hon. Sir Joseph Cook.
a. See Diary, p. 91.
II
■'I
\l
■ ( '
!!
50 DOCUMENT 230
South Africa:
General The Rt. Hon, Louis Botha.
Lieut.-General The Rt. Hon. J. C. Smuts.
New Zealand :
The Rt. Hon. W. F. Massey, Prime Minister.
India :
The Rt. Hon. E. S. Montagu, M.P., Secretary of State
for India.
Major-General His Highness The Maharaja of Bikanir.
For France ;
Mr. Clemenceau.
Mr. Pichon.
Mr. L. L. Klotz.
Mr. Andre Tardieu.
Mr. Jules Cambon.
Mr. Leon Bourgeois, former President of the Council of
Ministers, former Minister of Foreign Affairs, Tech-
nical Delegate for the League of Nations.
Marshal Foch.
For Italy :
Mr. V. E. Orlando, President of the Council of Ministers.
The Baron S. Sonnino.
The Marquis Salvago Raggi.
Mr. Antonio Salandra, Deputy, former President of the
Council of Ministers.
Mr. Salvatore Barzilai, Deputy, former Minister.
Mr. Scialoja, Senator of the Kingdom, Technical Dele-
gate for the League of Nations.
For Japan :
The Baron Makino, Member of the Diplomatic Advisory
Council, former Minister of Foreign Affairs.
DOCUMENT 230 51
The Viscount Chlnda.
Mr. K. Matsui.
Mr. H. Ijuin, Ambassador Extraordinary and Plenipo-
tentiary of His Majesty the Emperor of Japan at
Rome.
For Belgium :
Mr. Hymans.
Mr. Van den Heuvel.
Mr. Vandervelde, Minister of Justice, Minister of State.
For Bolivia:
Mr. Ismael Montes.
For Brazil: / -^
Mr. Olyntho de Magalhaes.
Mr. Pandia Calogeras.
For China:
Mr. Lou Tseng Tsiang.
Mr. Chengting Thomas Wang.
For Cuba:
Mr. Rafael Martinez Ortiz.
For Ecuador;
Mr. Dorn y de Alsua.
For Greece:
Mr. Eleftherios Veniselos, President of the Council of
Ministers.
Mr. Nicolas Politis.
ForTheHedjaz:
His Highness The Emir Feisal. v
Mr. Rustem Haidar.
For Peru: ^;fl
Mr. Francisco Garcia Calderon.
For Poland;
Mr. Roman Dmowski.
52 document 23 o
For Portugal :
The Count Penha Garcia, former President of the Cham-
ber of Deputies, former Minister of Finance.
Mr. Jayme Batalha Reis, Envoy Extraordinary and Min-
ister Plenipotentiary of Portugal at Petrograd.
For Roumania:
Mr. Jean J. C. Bratiano.
|| Mr. Nicolas Misu.
I For Serbia:
^ Mr. Pashitch.
V Mr. Trumbitch.
I Mr. Vesnitch.
I For Siam :
I The Prince Charoon.
j|| Phya Bibadh Kosha.
For the Czecho-Slovak Republic :
Mr. Charles Kramar, President of the Council of Minis-
ters.
Mr. Edouard Benes.
For Uruguay :
Mr. Juan Carlos Blanco.
(••
'V"
The President informs the Conference that, at the request of
the Delegation of the United States, the approval of the Protocol
of the first Session is postponed to the next Session, as that Dele-
gation has not yet received the English text of Protocol No. i, which
it reserves the right to present to the Conference.
The order of the day calls for the appointment of five Conmiis-
sions charged with the duty of examining the following questions: —
1. League of Nations.
2. Responsibility of the authors of the War and enforce-
ment of penalties.
DOCUMENT 230 53
3. Reparation for damage.
4. International Legislation on Labour.
5. International Control of Ports, Waterways and Rail-
ways.
The first Commission to be nominated concerns the League of
Nations, on the subject of which the Bureau presents a draft reso-
lution which has been distributed, in English and French, to all the
members of the Conference.
The discussion is opened on the question of the League of Na-
tions.
The President of the United States delivers the following
speech: —
"I consider it a distinguished privilege to open the dis-
cussion in this Conference on the League of Nations. We
have assembled for two purposes — to make the present set-
tlements which have been rendered necessary by this war,
and also to secure the peace of the world, not only by the
present settlements but by the arrangements we shall make
in this Conference for its maintenance. The League of Na-
tions seems to me to be necessary for both of these pur-
poses. There are many complicated questions connected
with the present settlements which, perhaps, cannot be suc-
cessfully worked out to an ultimate issue by the decisions
we shall arrive at here. I can easily conceive that many of
these settlements will need subsequent reconsideration; that
many of the decisions we shall make will need subsequent
alteration in some degree, for If I may judge by my own
study of some of these questions they are not susceptible
of confident judgments at present.
"It Is, therefore, necessary that we should set up some
machinery by which the work of this Conference should
be rendered complete. We have assembled here for the
purpose of doing very much more than making the present
settlement. We are assembled under very peculiar condi-
tions of world opinion. I may say without straining the
point that we are not representatives of governments, but
representatives of peoples. It will not suffice to satisfy
governmental circles anywhere. It is necessary that we
54 DOCUMENT 230
should satisfy the opinion of mankind. The burdens of this
war have fallen in an unusual degree upon the whole popu-
lation of the countries involved. I do not need to draw
for you the picture of how the burden has been thrown
back from the front upon the older men, upon the women,
upon the children, upon the homes of the civilized world,
and how the real strain of the war has come where the
eye of government could not reach, but where the heart of
humanity beats. We are bidden by these people to make
a peace which will make them secure. We are bidden by
these people to see to it that this strain does not come upon
them again, and I venture to say that It has been possible
for them to bear this strain because they hope that those
who represented them could get together after this war, and
make such another sacrifice unnecessary.
"It is a solemn obligation on our part, therefore, to
make permanent arrangements that justice shall be rendered
and peace maintained. This is the central object of our
meeting. Settlements may be temporary, but the actions of
the nations in the interests of peace and justice must be per-
manent. We can set up permanent processes. We may not
be able to set up permanent decisions, and therefore, it seems
to me that we must take, so far as we can, a picture of the
world into our minds. Is it not a startling circumstance
for one thing that the great discoveries of science, that
the quiet study of men in laboratories, that the thoughtful
developments which have taken place In quiet lecture-rooms,
have now been turned to the destruction of civilisation? The
powers of destruction have not so much multiplied as gained
facility. The enemy whom we have just overcome had at
its seats of learning some of the principal centres of scien-
tific study and discovery, and used them in order to make de-
struction sudden and complete; and only the watchful, con-
tinuous co-operation of men can see to it that science, as
well as armed men, is kept within the harness of civilisation.
"In a sense, the United States is less interested in this sub-
ject than the other nations here assembled. With her great
territory and her extensive sea borders, it Is less likely that
the United States should suffer from the attack of enemies
than that many of the other nations here should suffer; and
the ardour of the United States — for It is a very deep and
genuine ardour — for the Society of Nations is not an ardour
springing out of fear and apprehension, but an ardour
DOCUMENT 230 55
springing out of the ideals which have come to conscious-
ness in the war. In coming into this war the United States
never thought for a moment that she was intervening in
the politics of Europe, or the politics of Asia, or the politics
of any part of the world. Her thought was that all the
world had now become conscious that there was a single
cause which turned upon the issues of this war. That was
the cause of justice and liberty for men of every kind and
place. Therefore, the United States would feel that her
part in this war had been played in vain if there ensued upon
it merely a body of European settlements. She would feel
that she could not take part in guaranteeing those European
settlements unless that guarantee involved the continuous
superintendence of the peace of the world by the associated
nations of the world.
"Therefore, it seems to me that we must concert our
best judgment in order to make this League of Nations a
vital thing — not merely a formal thing, not an occasional
thing, not a thing sometimes called into life to meet an
exigency, but always functioning in watchful attendance upon
the interests of the nations, and that its continuity should
be a vital continuity; that it should have functions that are
continuing functions and that do not permit an intermis-
sion of its watchfulness and of its labour; that it should be
the eye of the nation to keep watch upon the common interest,
an eye that does not slumber, an eye that is everywhere
watchful and attentive.
"And if we do not make it vital, what shall we do?
We shall disappoint the expectations of the peoples. This
is what their thought centres upon. I have had the very
delightful experience of visiting several nations since I came
to this side of the water, and every time the voice of the
body of the people reached me through any representative,
at the front of its plea stood the hope for the League of
Nations. Gentlemen, select classes of mankind are no
longer the governors of mankind. The fortunes of man-
kind are now in the hands of the plain people of the
whole world. Satisfy them, and you have justified their con-
fidence not only, but established peace. Fail to satisfy them,
and no arrangement that you can make would either set
up or steady the peace of the world.
"You can imagine, gentlemen, I dare say, the sentiments
and the purpose with which representatives of the United
ll'
$6 DOCUMENT 230
States support this great project for a League of Nations.
We regard it as the keystone of the whole programme which
expressed our purpose and our ideal in this war and which
the Associated Nations have accepted as the basis of the
settlement. If we return to the United States w^ithout hav-
ing made every effort in our power to realize this pro-
gramme, we should return to meet the merited scorn of
our fellow-citizens. For they are a body that constitutes
a great democracy. They expect their leaders to speak
their thoughts and no private purpose of their own. They
expect their representatives to be their servants. We have
no choice but to obey their mandate. But it is with the
greatest enthusiasm and pleasure that we accept that man-
date; and because this is the keystone of the whole fabric,
we have pledged our every purpose to it, as we have to
every item of the fabric. We would not dare abate a single
part of the programme which constitutes our instructions.
We would not dare compromise upon any matter as the
champion of this thing — this peace of the world, this atti-
tude of justice, this principle that we are masters of no
people but are here to see that every people in the world
shall choose its own master and govern its own destinies,
not as we wish but as it wishes. We are here to see, in
short, that the very foundations of this war are swept away.
Those foundations were the private choice of small coteries
of civil rulers and military staffs. Those foundations were
the aggression of great Powers upon small. Those founda-
tions were the holding together of empires of unwilling sub-
jects by the duress of arms. Those foundations were the
power of small bodies of men to work their will upon
mankind and use them as pawns In a game. And nothing
less than the emancipation of the world from these things
will accomplish peace. You can see that the representa-
tives of the United States are, therefore, never put to the
embarrassment of choosing a way of expediency, because
they have laid down for them their unalterable lines of
principle. And, thank God, those lines have been accepted
as the lines of settlement by all the high-minded men who
have had to do with the beginnings of this great business.
"I hope, Mr. Chairman, that when it is known, as I
feel confident that it will be known, that we have adopted
the principle of the League of Nations and mean to work
out that principle in effective action, we shall by that single
II
DOCUMENT 230 57
thing have lifted a great part of the load of anxiety from
the hearts of men eveiywhere. We stand in a peculiar case.
As I go about the streets here I see everywhere the Ameri-
can uniform. Those men came into the war after we had
uttered our purposes. They came as crusaders, not merely
to win the war, but to win a cause; and I am responsible
to them, for it fell to me to formulate the purposes for
which I asked them to fight, and I, like them, must be a
crusader for these things whatever it costs and whatever it
may be necessary to do, in honour, to accomplish the ob-
jects for which they fought. I have been glad to find from
day to day that there is no question of our standing alone
in this matter, for there are champions of this cause upon
every hand. I am merely avowing this in order that you
may understand why, perhaps, it fell to us, who are disen-
gaged from the politics of this great Continent and of the
Orient, to suggest that this was the keystone of the arch
and why it occurs to the generous mind of our President
to call upon me to open this debate. It is not because we
alone represent this idea, but because it is our privilege to
associate ourselves with you In representing it.
"I have only tried in what I have said to give you the
fountains of the enthusiasm which is within us for this thing,
for those fountains spring, it seems to me, from all the an-
cient wrongs and sympathies of mankind, and the very pulse
of the world seems to beat."
Mr. Lloyd George (Great Britain) delivers the following
speech : —
"I arise to second this resolution. After the noble speech
of the President of the United States I feel that no observa-
tions are needed in order to commend this resolution to the
Conference, and I should not have intervened at all had it
not been that I wished to state how emphatically the peo-
ple of the British Empire are behind this proposal. And if
the national leaders have not been able during the last five
years to devote as much time as they would like to its ad-
vocacy, it is because their time and their energies have been
absorbed In the exigencies of a terrible struggle.
"Had I the slightest doubt in my own mind as to the
wisdom of this scheme it would have vanished before the
irresistible appeal made to me by the spectacle I witnessed
last Sunday. I visited a region which but a few years ago
58 DOCUMENT 230
was one of the fairest in an exceptionally fair land. I
found it a ruin and a desolation. I drove for hours through
a country which did not appear like the habitation of liv-
ing men and women and children, but like the excavation of
a buried province — shattered, torn, rent. I went to one
city where I witnessed a scene of devastation that no indem-
nity can ever repair — one of the beautiful things of the
world, disfigured and defaced beyond repair. And one of
the cruellest features, to my mind, was what I could see had
happened: that Frenchmen, who loved their land almost
beyond any nation, in order to establish the justice of their
cause, had to assist a cruel enemy in demolishing their own
homes, and I felt: these are the results — only part of the
results. Had I been there months ago I would have wit-
nessed something that I dare not describe. But I saw acres
of graves of the fallen. And these were the results of the
only method — the only organised method — the only organ-
ised method that civilised nations have ever attempted or
established to settle disputes amongst each other. And my
feeling was: surely it is time, surely it is time that a saner
plan for settling disputes between peoples should be estab-
lished than this organized savagery.
"I do not know whether this will succeed. But if we
attempt it, the attempt will be a success, and for that rea-
son I second the proposal."
Mr. Orlando (Italy), having asked leave to speak, delivers the
speech of which the following is a translation : —
"Allow me to express my warmest adhesion to the great
principle which we are called upon to proclaim to-day. I
think that we are thus accomplishing the first and the most
solemn of the pledges which we gave to our people when
we asked them to make immense efforts in this Immense
war; pledges of which the counterpart was death, nameless
sacrifices and boundless grief. We are therefore fulfilling
our duty in honouring this sacred pledge. That is much,
but it is not all. We must bring to the task a spontaneous
spirit and, if I may be allowed the mystic expression, purity
of intention. It is not in any spirit of petty national van-,
ity that I allow myself to recall the great juridical traditions
of my people and its aptitude for law. I only do so the
better to prove to you that the mind of the Italian people is
well fitted to accept this principle spontaneously and wholly.
DOCUMENT 230 59
Now, law is not only the defence of order, founded on jus-
tice, against all violence, it is also the necessary outward
form, guaranteed by the State, of that essential principle
which forms the very foundation of the existence of human
society, that is to say, the principle of social co-operation.
I think, then, that the formula proposed to us offers, not
only guarantees against war, but also that co-operation
among nations which is the true essence of right.
"Mr. President, Gentlemen — to-day is a great moment,
a great historical date, because it is only from to-day that the
law of peoples begins and is born, and the fact that this
birth has taken place in the generous and glorious land
of France, which has proclaimed and won acceptance for
the rights of man by its genius and its blood, appears to me
to be a happy omen. Quod honum felix faustumque sit.**
Mr. Leon Bourgeois (France) speaks in French in these
terms : —
"I am deeply grateful to the President of the French
Council of Ministers for having done me the distinguished
honour of entrusting to me the task of speaking in the name
of France. Recollections of the Conference of the Hague
have probably led him to this choice ; the honour therefore
belongs to the very numerous colleagues present here with'
whom I collaborated in 1899 and 1907.
"President Wilson has just eloquently and finally said
that we do not, that you, Gentlemen, do not represent gov-
ernments alone, but peoples. What do the peoples wish
to-day, and what, therefore, do the governments wish who
are really free, really representative, really democratic, that
is to say, those whose wishes are necessarily in agreement
with those of their peoples? They wish that what we have
seen during these four horrible years shall never be repeated
in this world. Their wishes are the wishes of all the vic-
tims of this war, of all those who have breathed their last
for liberty and for right. Those men fought not only
to defend their country, but came together from all parts of
the world for this crusade of which President Wilson so
rightly spoke, and they knew that they died not only for
France, but for universal freedom and universal peace. For
universal peace : the Premier of England has just described
with striking eloquence the picture of ruin and desolation
which he has seen. That ruin, that desolation we ourselves
6o DOCUMENT 23 O
have witnessed, and you have seen them very far from the
spot where hostilities began. For, in fact, henceforth no
local conflict can be confined to some one part of the world;
whatever may be the State where the difficulty arose, be-
lieve me, it is the whole world that is in danger. There
is such an interdependence in all the relations between na-
tions in the economic, financial, moral and intellectual
spheres that, I repeat, every wound inflicted at some point
threatens to poison the whole organism.
"There is another reason why it is impossible that hu-
manity should again witness such spectacles. President Wil-
son has just alluded to the alarming progress of science,
turned from its proper object, which is continually to give
to mankind greater well being, a surer moral, more hope
for the future, and which was used for the most terrible and
miserable of purposes — ^the purpose of destruction. Now
science daily makes fresh progress and fresh conquest; daily
it perfects its means of action and, in the light of what we
have seen during these last five years in the way of terrible
and destructive Improvements in machinery and gunnery,
think of the fresh destruction with which we might be threat-
ened in a few years.
"We have, then, the right to face a problem of con-
science which thrills us all, that is what we are to do
to reconcile the special interests of our peoples, which we
cannot forget, with those of our common country — all hu-
manity.
"We must take council with ourselves and ponder that
saying which I deem as a sublime truth, that among all the
vital Interests which we can consider, there is one which is
above and includes all others, one without the defence and
protection of which all the others are in danger — the inter-
est of the common country.
"Speaking of tragedy of conscience, I remember the
scruples which, at the Conference of the Hague, held back
the representatives of even the freest peoples, the peoples
most Imbued with the sense of democracy and most re-
solved to prepare the way of peace. They said to them-
selves: 'We must nevertheless reserve questions of our honour
and our vital interests.' Perhaps It was this which delayed
the creation of that bond which will unite us from to-day.
We know now that there is one vital interest which we
have before all to consider and defend. That is the interest
DOCUMENT 230 61
of universal peace founded on right, without which none
of the most vital interests of our several countries, great
or small, would be free from menace and destruction.
"How can we succeed in making a reality of that which
but a few years ago was still thought to be a dream? How
is it that this dream now appears as an imminent fact in the
mind of the statesmen present here, realists whose right
and duty it is not to let themselves be carried away by ideals
of generosity, however attractive they may be? Why is it
that to-day these statesmen are sitting round this table in-
spired with a common thought? For doubtless you will
presently adopt unanimously the proposals which will be
made to you. How is it that these statesmen, these real-
ists, can come to consider as a tangible thing, realisable in
a short time, that which formerly appeared a dream ? Look-
ing back at the history of the last thirty years, particularly
to that Conference at the Hague, for reverting to which
I beg your pardon, we see that if it did not produce all
the results expected from it, it nevertheless produced a cer-
tain number. Members of the different Governments will
remember that the institutions set up by the Hague Confer-
ence thrice proved effective, and that in differences — I will
not use a stronger term — which might have disturbed the
relation between the different States, the judgments of the
Hague succeeded In smoothing away difficulties and re-estab-
lishing harmony. I may even recall that between France and
Germany there was a conflict — the Affair of Casablanca —
which might have been very serious and not for those two
countries alone, for, as I was saying, local conflicts some-
times become general, — where recourse to arbitration com-
pletely safeguarded the honour of France and made it pos-
sible for Germany not to draw the sword.
"Why is it that this could not last, or rather, why is it
that the institutions of the Hague failed to prevent the ter-
rible conflicts from which we are just emerging? There are
two reasons — and within the next few days you will sweep
away one of them. The Conferences at the Hague were at-
tended by the representatives of many States, but even
those who were Inspired by real good will were forced to
recognize that on the map of the world the frontiers of
different countries were not what they should have been.
While we were deliberating there we Frenchmen could not
forget that there was a part of France which was not free,
62' DOCUMENT 230
and you, representatives of the Kingdom of Italy, could
not forget that there were still Italian provinces outside
Italian law. How could you expect an international organ-
isation, however perfect, to prove really effective if, when
it began to work, it met this terrible question of irredentism,
as our Italian friends call it, national claims, as we say, just
as one's foot meets an obstacle on the road?
"You will bring about the situation in which the facts
conform to the principles of right. You will draw fron-
tiers which correspond to the wishes of the peoples them-
selves, and you will give to each country the limits which
right itself would give it. You will also impose obligations
which it was beyond our power to impose, for, as you will
remember — it was historically a very significant fact — how
the different States grouped themselves, and we have now
seen those who voted against us then join against us on
the field of battle. The foes of right were already leagued
together against us.
"You who have fought for right are about to set up
an organisation, to impose penalties and to ensure their en-
forcement. Having established compulsory arbitration, hav-
ing fixed — methodically, progressively and surely — the pen-
alties to be imposed for disobedience to the common will
of civilised nations you will be able to make your work
solid and lasting and enter with confidence and tranquillity
the Temple of Peace.
"This is not the moment to discuss ways and means, but I
hasten to say, in the name of the Government of the French
Republic, that to do all that can be done to lead the free
peoples as far as possible on the road to agreement must be
our aim and wish. In addition to juridical methods designed
to establish the reign of right and to ensure the freedom of
all, we shall certainly adopt — and here I turn towards the
Italian Prime Minister, who just said: "It is co-operation
in the work of peace" — all the measures required for co-
operations between States in relation to those numberless
interests the interdependence of which I mentioned just
now. This interdependence becomes daily closer. It will
not only be a question of checking nascent conflicts but of
preventing their birth.
"I think that, even without any further statement, I
have thus correctly interpreted the general feeling. It is
enough for me to have shown with what deep enthusiasm
DOCUMENT 230 63
France joins those who but lately proposed the creation of
the League of Nations. President Wilson said that this
question was at the very heart of mankind. That is true.
He said we must constantly have an eye open on humanity,
a watchful eye that never shuts. Well, I will end by recall-
ing another memory of the Hague. It has been said that
we heard there the first heart-beats of Humanity. Now it
lives, indeed, thanks to you. May it live for ever !'*
Mr. Hughes (Australia) having asked whether it will be pos-
sible to discuss the scheme when it is complete, the President re-
plies that the members of the Conference would be quite at liberty
to do so.
The President calls successively on the Delegates of various
Powers, who, speaking in French, support the draft resolution in
these terms:
Mr. Lou (China) : In the name of the Chinese Government
I have the honour to support wholeheartedly the proposed resolu-
tion. China, always faithful to her obligations and deeply inter-
ested in the maintenance of the peace of the world, associates her-
self entirely with the lofty ideal embodied in the resolution, which
is that of creating an international co-operation which would in-
sure the accomplishment of obligations contracted and will give
safeguards against war. I am glad to give an assurance to this
Conference that the Chinese Republic will always have the keen-
est desire to consult with the other States in the establishment of a
League which will give all nations, both small and great, an effec-
tive guarantee of their territorial integrity, of their political sover-
eignty, and of their economic independence founded upon an im-
partial justice.
Mr. Dmowski (Poland) : I rise not only to support the draft
resolution but to express deep gratitude for this noble initiative. I
do so not only as representing a part of mankind which has suffered
no less than those who have suffered most and which cherishes the
hope that such sufferings will never be repeated and that what this
64
DOCUMENT 230
I
war has not destroyed will be preserved for the peaceful generations
of the future.
I do so also as representing a country placed in that part of the
world where sources of danger to future peace are greater than else-
where, where to-day after the conclusion of the armistice war con-
tinues, as representing the country which at this moment is exposed
on three sides to danger and is forced to make war on three fronts.
If we have an institution like that which is proposed to-day, such as
would give international guarantees of peace, we should not be in
this dangerous situation.
I express my gratitude in the name of a country which, perhaps
more than all others, needs international guarantees of peace and
which will greet a League of Nations with the greatest enthusiasm.
Mr. Hymans (Belgium) : Gentlemen, I have not asked leave to
speak in order to discuss the ideas expressed in the draft resolution,
which the Belgian Delegation of course accepts wholeheartedly, and
which have been so nobly set forth in this Assembly. I have asked
to speak only on a practical question which is, I think, of general
interest.
The Conference to-day is organising its methods of work and
procedure. I should like to ask for an explanation of the last sen-
tence of the draft resolution relative to the representation of the
Powers on the Commission appointed to examine the draft con-
stitution of the League of Nations. The draft says that the Con-
ference appoints a Commission representing the Associated Gov-
ernments to work out the constitution in detail and to settle the
functions of the League.
The President replies to Mr. Hymans that the explanation which
he is about to furnish will doubtless give him satisfaction.
As nobody asks leave to speak on the subject of a resolution on
the League of Nations, which has been submitted to the Conference
by the Bureau, that resolution is unanimously adopted.
DOCUMENT 230 6$
The President then replies to the question raised by the Hon.
Minister of Foreign Affairs of Belgium, on the method of appoint-
ment of the Commission charged with the duty of working out the
draft constitution of the League of Nations.
The Great Powers, in accordance with the motion, have desig-
nated two Delegates each to serve on the Commission. It has been
decided that five Delegates to be chosen in common by the other
Powers should represent those Powers on the Commission. That
is to say, that you are asked to meet here, say, on the 27th January,
if that day suits you, at 2 or 3 o'clock, to come to an agreement
among yourselves and appoint the five Delegates of the other
Powers.
I ought to tell you that we shall ask you to agree to the same
course as regards the appointment of other Commissions. You will
therefore have several elections to hold at the same time.
On this question of the appointment of the Commission, the
Delegates of a certain number of Powers ask leave to speak and
explain in turn the views of their respective countries. All speak
in French except Sir Robert Borden (Canada) and Phya Bibadh
Kosha (Siam).
Mr, Hymans (Belgium) : The reply which the Hon. President
has been so good as to make to me raises the question of the con-
stitution of all the commissions which will be appointed to-day.
That will allow me, I think, to define my views on the whole ques-
tion, which I will do very quickly.
" Excepting the case of the Commission appointed to examine the
question of reparation for the damage of the war, the general sys-
tem, according to the President, is to give two Delegates to each of
the Great Powers, which allows them 10 Delegates, and five Dele-
gates in all to a group or collection formed of 19 Powers who have
been classed among the Powers ingeniously termed "Powers with
special interests."
■ I
i i
66 DOCUMENT 230
I do not wish to speak in the name of the Delegates of other
countries, but I will speak only in that of my own and in that of the
Belgian Delegation.
As an exceptional measure we, like Serbia, Greece, Poland, and
Roumania, have been given two Delegates — two to each of these
Powers on the Commission appointed to examine the question of
reparation for the damage of the war. Apart from this Com-
mission, the 19 Powers "with special interests" have to appoint in
common by a system hitherto unexplained, which they will have to
discover, five Delegates. It is not stated whether this will be done
by proportional representation or otherwise.
We Belgians will beg leave to present to the Conference the
following request : —
First, as regards the Commission to examine the constitution
of the League of Nations and, next, the Commission appointed to
examine international legislation on labour. We should wish the
Conference to be so good as to grant to Belgium two Delegates on
each of these two Commissions.
As regards the Commission for the establishment of the League
of Nations, we think that we have a right to this on account of our
international, political, and even geographical position, which has
exposed us, and may again expose us in the future, to serious
danger.
As regards the question of international labour legislation there
is nothing that could interest us more, Belgium, small in extent,
counts among the great commercial producing and industrial
powers of the world — she counted among them and I hope she
will again count among them in a short time, after her reconstruc-
tion,
I will not tire the Conference' by quoting figures, but we are in
that respect among the five or six foremost Powers ; we have a large
industrial population. In certain departments we are among the
DOCUMENT 230 67
very first. I will mention only the coal and zinc industries and the
production and casting of iron. I will not labour the points.
I think it would be just to give to Belgium a double representa-
tion on the two Commissions I have mentioned, that is, two Dele-
gates.
There remain three Commissions : one dealing with the control
of ports and ways of communication, another which will deal with
crimes committed during the war and with the penalty to be in-
flicted for those crimes, and the third dealing with reparation. But
in this last-named Commission we think we are fairly well repre-
sented. There remain therefore only two: that on ports, water-
ways and railways, and that on crimes committed during the war
and the penalties which those crimes deserve.
I ask that it should at once be recognized that Belgium shall
have a Delegate on each of these two Commissions, and In doing
so I do not think that I am asking more than is reasonable. Bel-
gium possesses one of the three most important ports on the Euro-
pean Continent. She has a network of railways which is the densest
in Europe. Owing to the needs of her production and trades she
is directly interested in the whole system of international communi-
cations. It is certainly not exaggerated to ask that for the exam-
ination of so grave a problem Belgium should have a Delegate, and
I ask the Conference to decide in this sense.
As regards the question of crimes committed during the war
and the penalties to be exacted for them, who could deny that we
have an absolute right to be represented on the Commission, when
our country was the first to be invaded, the first to be submerged
by invasion, when her neutrality was violated in spite of the treaty
signed by the enemy, and when some of the most abominable
crimes with which the enemy can be reproached were committed on
our soil as also on Serbian soil? I think, then, there Is nothing
excessive In our demand.
I speak only for ourselves. I do not wish to prejudice the rights
\y
;■ ;
^8 DOCUMENT 230
and interests of any other country. I do not think I shall arouse
their susceptibilities when I state this claim in the name of the
Belgian Delegation alone.
To sum up, I ask that, as in the case of the Commission on dam-
age caused during the war, Belgium should have two Delegates on
the Commission for the establishment of the League of Nations,
two Delegates on the Commission on international labour legisla-
tion, one Delegate on the Commission relative to the control of
ports, and one Delegate on the Commission for the examination of
crimes committed by the enemy and of the penalties to be exacted
for them.
I appeal to the sense of justice of the Great Powers and to that
of the President of the Conference.
Mr, Calogeras (Brazil) : It is with some surprise that I con-
stantly hear it said: "This has been decided, that has been de-
cided." Who has taken a decision? We are a sovereign assembly,
a sovereign court. It seems to me that the proper body to take a
decision is the Conference itself.
Now, it appears from what has been said that functions have
been allotted and that representation on the Commissions is con-
templated without certain very important interests having been
able to obtain a hearing. It is unnecessary to say that I cordially
adhere to the principle of a League of Nations. I have the honour
to represent a country which in its constitution absolutely forbids,
in express terms, the waging of a war of conquest. This is an idea
of long standing with us, firmly rooted in our traditions, I am
therefore heartily in favour of the idea of a League of Nations.
But if, on the other hand, I consider the proposed organisation
of the conditions and the manner in which the interests of my coun-
try may be represented thereon, I must point out that we have laws,
I may even say texts, of a constitutional character, which do not
permit us to give to anybody powers to represent us.
DOCUMENT 230 '69
I therefore appeal to the sense of justice of the President and
of the members of the Bureau of this Conference. I ask them that,
at least on the Commission which will deal with the League of Na-
tions as well as on those which are to examine international control
of railways and ports and reparation for damage, Brazil should
enjoy the representation to which she considers herself entitled.
Sir Robert Borden (Canada) : I have a great deal of sympathy
with the point of view of the smaller nations, because possibly the
constitution of the League affects them even more closely than it
affects the status of the Great Powers of the world. On the other
hand, I realize that there must be a reasonable limitation of the
membership of the Committee ; otherwise it would be very difficult
to carry on the work in an effective way. And I remember, also,
that after this Committee has made its report, its conclusions must
be submitted to this Conference, and must be approved by it before
they can go into effect. But I do feel that the matter has been
placed before this Conference in perhaps not the most appropriate
way. We are told that certain decisions have been reached. The
result of that is that everyone of us asks: "By whom have those
decisions been reached, and by what authority?"
I should have thought it more appropriate to submit a recom-
mendation to this Conference, and to have the Conference itself
settle the number to be appointed, and who they are to be. If that
course had been taken, It seems probable that most of the difficulty
which had arisen would not have presented itself. And I should
like to suggest, with all due respect, that perhaps that would be
a more appropriate method of dealing with such matters in the
future. Certain regulations have been formulated and passed by
which, as I understand, two Conferences were established — one a
Conference of the Five Great Powers, and another which may be
called the full or plenary Conference. I do not understand that,
up to the present time, there has been any Conference of the Five
70 DOCUMENT 23O
Great Powers in accordance with the regulations thus adopted, it
may be that is, and I have no doubt it is, with the best intention;
but nevertheless, as we are acting under regulations adopted by the
representatives of the Five Great Powers, it seems highly desirable
that we should abide by them. Therefore, I again suggest, with
all respect, that the proceedings in the future should be guided by
those regulations.
Mr, Trumhitch (Serbia) : I have the honour to declare, in the
name of the Delegation of the Kingdom of the Serbs, Croats, and
Slovens, that we support the entirely just proposal of my honourable
friend Mr. Hymans. At the same time, I have the honour to ask
that the same representation may be given to the Delegation to
which I belong as to the Belgian Delegation.
It is not necessary for me to retain the attention of this high
assembly to justify the desire which I have expressed, for the reasons
I : ; just now put forward by Mr. Hymans are almost the same as those
I ; i which justify our proposal.
i I Mr. Veniselos (Greece) : As regards the League of Nations, I
U\ associate myself with the request put forward by the Belgian Dele-
f p gation, without, however, asking that Greece should receive the same
y ■. treatment. I recognise that all small countries are deeply interested
|lj in the study of this question, but I must admit also that the situation
^ i I of Belgium is entirely a special one by reason of her proximity to the
[jl German Empire, which started this war, and for the other reasons
given by Mr. Hymans.
I therefore do not ask that my country should be specially rep-
resented on this Commission, and confine myself to declaring that
I hold myself at the disposal of the Commission when it is appointed
in order to make known my ideas on the subject.
As regards reparation for damage, I must thank the represen-
tatives of the Great Powers for the representation which they have
granted to my country.
;!
DOCUMENT 230 71
As regards the responsibility of the authors of the war, I ask
that Greece may also he given a representative, in view of the fact
that we have to deplore the loss of between three and four hundred
thousand people of Greek race in the Ottoman Empire. It would,
therefore, appear to be just that we should be represented in order
that we may be able to submit to the Commission and then to the
Conference our special point of view on this question.
I do not ask that my country should be specially represented on
the Commission relating to international legislation on labour, for
other nations are perhaps more interested than ourselves in this
question.
It would be well, finally, that we should be granted a represen-
tative on the Commission for the international control of ports, not
only on account of the maritime importance of my country, and of
the special interest which it has in this question, but also because
of the fact that even in the present territory of Greece there are
certain places which might come within the purview of this part of
the programme of the Conference. It would, therefore, be just
that Greece should in this respect be authorized to make known her
wishes.
I think it right to remind the assembly in conclusion that in the
report that I have the honour to submit to the Conference concern-
ing the territorial claims of my country, I declared myself ready to
agree that countries bordering on the sea should give all possible
facilities to countries placed behind them which have not such easy
access to the sea.
Count Penha Garcia (Portugal) : You will allow me to make
some observations on a question which interests small and Great
Powers alike. First, I draw your attention to an essential fact
which is moreover the corollary of all the noble speeches which this
assembly has just heard.
It is certain that the League of Nations, a question of such
^:i
m
72 DOCUMENT 230
great importance raised by the Great Powers and interesting the
weaker countries in so high a degree, must inspire confidence as
regards the future, particularly among the latter. It is likewise
certain that respect for our rights, the decisions which we shall be
called upon to take and the cordiality of our relations within this
Assembly will constitute a kind of foretaste of that League of Na-
tions which we have just been invited to join. I feel certain that
this consideration will guide the proposals of the Great Powers and
that our decisions will be inspired by the lofty view and the spirit
of high justice which should preside over the League of Nations.
We must not, however, exaggerate the importance of the ques-
tion of representation on the Commissions, for that, after all, only
concerns a method of work, and those who propose this method
meant well in doing so, because it offers indisputable advantages.
It is true that large Commissions are more difficult to direct and
that their work is sometimes rather slow, but we must not forget that
the work of these Commissions must be of such importance to each
of the countries interested that perhaps in reality it is worth running
the risk which we are now seeking to avoid. Perhaps it would be
better so to arrange that in each Commission all interests should be
represented and made known so that we may attain, doubtless more
slowly, a surer result, which will enable us to come with more precise
ideas and less unprepared to the plenary sessions.
I will especially draw the attention of the President, whose qual-
ities of heart and whose fairness constitute for us a twofold guar-
antee, to this point, of the importance of which for my country he
has certainly not lost sight.
As regards the Commission on reparation, the non-representa-
tion of Portugal is certainly due to an oversight, since other coun-
tries having special interests in this respect are all represented
thereon, a fact which, I may say, affords me great satisfaction. I
pay homage to the sufferings and endurance of so many countries
DOCUMENT 230 73
which have been the victims of an aggression the brutality of which
has excited universal indignation.
I beg leave, however, to point out that the position of Portugal
is absolutely the same, that we have shed our blood in France for
the cause of right and justice, that our territories in Africa have
been invaded, that we are half, I might indeed say completely, ruined
by our effort in the war. We do not regret this. But why, then,
should we not be heard, why should we not also be represented on
the Commission appointed to consider the question of reparation?
Once again I must observe this seems to me to be an oversight.
As regards the other Commissions, those relating to the control
of ports, to the League of Nations, to labour questions and to
penalties for responsibility for the war, are also of unquestionable
interest to Portgual, but, generally speaking, I request the Bureau
to be so good as to accede to the legitimate desire of all countries
represented at the Conference to be able to make their voices heard
whenever they have a special Interest to defend and to be repre-
sented on the Commissions. I ask that all these countries may be
placed on the same footing as the others where their rights are
affected.
Mr. Benes (Czecho-Slovak Republic) : Without entering into
detail in regard to the question of the nomination of representatives
on the Commissions, I beg leave to submit the following considera-
tions to the Conference:
The Czecho-Slovak Delegation ask to be represented on the
Commissions appointed to examine the questions of reparation and
of the responsibility of the Central Empires. We base this proposal
on the following grounds:
The Czecho-Slovak Republic is especially interested in all ques-
tions concerning the financial and economic liquidation of the former
Austro-Hungarian Empire; for its territory formed the most in-
dustrial region of that monarchy. It would therefore be impossible
M'
!]; 74 DOCUMENT 23O
''IP
to settle these questions without allowing us to bring forward such
information on the subject as we possess.
j,j; Our Delegation also has a special interest in the question of
<\i ' international railways and waterways. Our country has in fact no
1^^ access to the sea, and it is extremely important for our future inter-
>',,] national position to know how these great channels of communica-
j tion will be controlled, and especially to take part in the discussion
'j\ relating to the control of international railways, waterways and
ff ports. Therefore we ask to be represented on the Commission
?l instructed to examine these questions.
'V
;^ The question of the League of Nations being also of the highest
'^i interest to countries surrounded, like ours, by Powers who have
['I always been hostile to them, we ask that we may be granted a
'ill representative on the Commission concerned.
"') To sum up, we beg the Conference to grant us a representative
lip on each one of the three Commissions called upon to discuss ques-
tions of special interest to our Republic.
Mr. Bratiano (Roumania) : The Belgian representative, al-
though professing only to speak on behalf of the special interests of
Belgium, has raised a question of principle which Roumania has far
too much at heart to allow her to refrain from expressing agreement
with his point of view.
I wish for the moment to confine myself to drawing attention to
the importance of these principles to States like Roumania without
entering into the details of each of the questions which, I hope, will
be treated fully in a subsequent discussion. I will, however, point
out, in passing, with regard to one of these questions (that of in-
ternational ways of communications), that Roumania is at the mouth
of the Danube, a great river which affects the communication of a
^jf great part of Europe, and that she has therefore very special inter-
ests in It.
I do not, however, wish to lose sight of the fact that at this
DOCUMENT 230 75
moment the League of Nations is in question, and that it would be
poor evidence of the interest felt by Roumanla in the formation
of this League if I did not contribute to the explanations made by
those representatives of other countries who have already spoken.
It is certain that, in the representation of such a League, the relative
strength of each State has been kept in view, and it would be just to
consider at the same time the interests which lead each State to
favour the formation of this League, when it might perhaps be
found that small States have more interest in it than great ones.
In settling the representation of the League both of these points
of view must be kept in mind.
It is to express the interest which Roumania feels in the prin-
ciples of this League that she asks to be represented on this Com-
mission.
Phya Bibadh Kosha (Siam) : May I be permitted, in the name
of the Siamese Delegation, to ask whether representation may be
afforded to those countries who have the misfortune to be without
it, and, as a Delegate of one of those nations, to ask whether we
have the right and opportunity to attend the proceedings of each
Commission dealing with matters directly of interest to the country
which they represent, such as a League of Nations and the interna-
tional control of ports, railways, and waterways?
Mr. Lou (China) : I also desire to appeal to the spirit of equity
of the members of the Conference, so that technical Delegates may
largely'participate in the different work on the Commissions.
The desire has already been expressed, as to representation by
Delegates, that the principle of equality among States be the basis
of the League of Nations. I also expressed the desire to see the
Delegation of China represented in the Commissions on labour
legislation and on means of communication. In fact, China during
the war has sent over to France nearly 150,000 Chinese labourers,
of whom nearly 120,000 were in the British camps. All these
I'
i 'p ■. ■
.it;; '■
til
i'i
'i
PI
itil
I
76 DOCUMENT 230
labourers have indirectly contributed to the happy issue of the
present war.
On the other hand, China has a very large coastline, and her
railways, which connect her with the three big neighbouring Powers,
will have considerable development after the war.
It is for these reasons that I ask for the representation of the
Chinese Delegation on the two Commissions I have indicated.
I may perhaps make a suggestion. I have heard my honourable
colleague, who represents Brazil, saying : "The Conference decided
this, the Conference decided that." I personally have had the ex-
perience of two Peace Conferences, as Mr. Leon Bourgeois kindly
remarked a moment ago: I think that the present Conference will
make its work much more interesting if it will concentrate the efforts
of the two former ones, which have established a panel of Dele-
gates from which each Delegation interested in any one particular
question could select one or two members for the working of the
Commission. That is a suggestion I beg to propose to this Confer-
ence.
Mr. Dmowski (Poland) : In view of the extent of the territory
of Poland, the size of the population, and the economic develop-
ment of the country, and in view also of her political Interests and
her very important geographical position, I am of opinion that she
should have the right to send a Delegate to all such Commissions
as she may think fit,
I rise to associate myself with those members present who have
opposed the method whereby it is proposed to choose these five Del-
egates for Powers with special interests. The large number of
voices which have been raised shows that the task of assembling the
Delegates of the secondary Powers would be very difficult, that the
discussion between them would, firstly, involve much loss of time
and, secondly, would not tend towards harmony among them. I beg
leave to propose that each Delegation should draw up a written
DOCUMENT 230 77
Statement of its case in making a demand for the number of repre-
sentatives whom it wishes to send to each Commission. I would
likewise propose that there should be a Commission above all the
others to decide finally on the composition of each of them. We
would accept its decisions in advance, being convinced that it would
seriously consider the interests of all the Powers whatever they may
be.
The President, speaking in French, replies to the observations
and suggestions of the Delegates, in a speech of which the following
is a translation : —
"As nobody else wishes to speak, I shall speak in my
turn in order to try to justify the Bureau. It requires this,
for if it had ever flattered itself that it could satisfy every-
body, it would by now be thoroughly disillusioned.
"Sir Robert Borden has reproached us, though in a very
friendly way, for having come to a decision. Well, we
have decided, as regards the Commissions, in the same way
as we decided to summon the present Conference. With
your permission I will remind you that it was we who de-
cided that there should be a Conference at Paris, and that
the representatives of the countries interested should be
summoned to attend it. I make no mystery of it — there is a
Conference of the Great Powers going on in the next room.
Sir Robert Borden has the less reason to be unaware of it
since he yesterday did us the signal honour of making a
statement before us on questions concerning the British
Colonies.
"The Five Great Powers whose action has to be justified
before you to-day are in a position to justify it. The British
Prime Minister just now reminded me that on the day when
the war ceased the Allies had 12,000,000 men fighting on
various fronts. This entitles them to consideration.
"We have had dead, we have wounded in millions, and
if we had not kept before us the great question of the League
of Nations we might perhaps have been selfish enough to
consult only each other. It was our right.
"We did not wish to do this, and we summoned all the
nations interested. We summoned them, not to impose our
will upon them, not to make them do what they do not wish.
Ijljf 78 DOCUMENT 230
but to ask them for their help. That is why we invited them
■ to come here. But we still have to see how this help can
!t;: best be used.
■ j ; "A, few days ago Mr. Uoyd George was cruel enough
ijl;;^ to remind me that I was no longer very young. I entered
I I Parliament for the first time in 187 1. I have seen many
|; i committees and commissions and attended many meetings,
|l and I have noticed — as most of you have perhaps also no-
!>. • ticed — that the larger the committees are the less chance they
'; have of doing any work.
II "Now, Gentlemen, let me tell you that behind us is
|i> something very great, very august, and at times very im-
|.| perious, something which is called public opinion. It will
ji J not ask us whether such and such a State was represented on
|i such and such a commission. That interests nobody. It will
jj,;; ask us for results, ask us what we have done for the League
M of Nations so eloquently championed to-day by President
'^1' Wilson, Mr. Lloyd George, Mr. Bourgeois and Mr.
■^||| Orlando.
i*ll "What crime have we committed? We have decided
that, for our part, we would appoint two Delegates
each on the Commission on the League of Nations. I
would beg Mr. Hymans and all those who followed him to
let me keep to the point. As soon as I indulgently allowed
him to wander from it, as soon as the door was opened,
everybody rushed in and discussed everything except the
subject under discussion. It is my duty to guide the Confer-
ence in its work in order to obtain a result.
"We have therefore decided to appoint two Delegates
each, and then — may I be pardoned for it — we have decided
to ask you to appoint five Delegates in common.
"If you do not think this enough, I will not take the
responsibility of choosing from among you all, since each
asks for more representation, but I will make a proposal:
Choose all of us, so that everybody will at least have his
rights.
"What is the complaint? Has any right been denied to
any Power? You all know how committees work, and you
have the right to go before any committee you like. Mr.
Bourgeois, who is here, is not a plenipotentiary. He spoke
with the authority to which he is entitled, and you were glad
to hear him. I have heard Mr. Veniselos and many
of you say: 'Our voice will not be heard.' How can you
DOCUMENT 230 79
level such a reproach at us? Your voice will be all the
better heard, because we are now arranging a means by
which we can listen to each other. You can be heard on
all the commissions and committees, and, after all, are you
not sure that your voice will reach the Conference, since you
yourselves will be present and able to speak there?
"Think, Gentlemen, of the consequences of the pro-
posals now made to us. As Mr. Dmowski said just now,
requests will be made in writing, and we shall collect these
papers and then spend an hour or two in our committee
trying to find the best way out of these difficulties. But that
is of no use either, for what we want is tangible results.
The armistice still keeps many millions of men at the front.
It is not questions of procedure, but essential ones, that have
to be decided. I ask all of you to consider the consequences
of the proposals which come to us from all parts of this As-
sembly. If to-day we leave aside the essential question to
indulge in debates in procedure, I think I am safe in saying
that at the end of a week or even of a fortnight nothing will
have been settled and the essential question will not even
have been examined.
"Now, the public is waiting. This state of things ap-
pears to me impossible. I join Mr. Dmowski in asking
anybody having observations to make to send them to the
Bureau. But I do not ask for a special committee to decide
the matter.
"Why should I not say what I think? I do not see that
the committee has the right to impose Its will upon these
five Powers. At least I say what I think. I want to get on,
and I should very much like you to make up your minds
to-day.
"Let me make a suggestion which might suit everybody
for the time. You might vote on all the proposals which
we put before you to-day, reserving the right, which all
Assemblies have, to insert amendments. But, Gentlemen,
do not let us go home to-day without having voted decisively,
so that President Wilson, Mr. Bourgeois, Lord Robert Cecil,
and all of them, may be able to get to work this evening
and the Commissions to start from to-morrow. My aim
and that of my colleagues of the other Powers is to organ-
ise Commissions as soon as possible so as to give them work.
All those of you who wish to appear before them will do
so. Anybody who wants changes will ask for them. As
80 DOCUMENT 230
proposed by Mr. Dmowski, they will be examined and re-
ported on. In this way we shall at least have the advantage
of beginning work at once.
"We propose to you to appoint a certain number of
Commissions. There will be two — one economic and the
other financial — to be appointed at the next Session, after
which all the Commissions will be working, the order of
the day can be satisfactorily dealt with, and effective discus-
sion begun.
"I beg your pardon. Gentlemen, for having spoken at
such length, but all that I have said appeared to me neces-
sary. Think of the immense work awaiting us. Just think
of it I As President Wilson just now said, in an admirable
sentence which sums up the whole question: 'We, like our
Armies, wish to win, not only the war, but a cause.' We
have the burden and responsibility of this cause in our hands.
Of course, questions of procedure have their importance,
too. They will be settled in due course. If the number
of Commissions proves insufficient It can be increased — we
leave you quite free In that respect — ^but remember. Gentle-
men, the larger the Commissions the less gets done.
"Gentlemen, since I began to take part In these discus-
sions I have sacrificed a certain number of personal opin-
ions. I have done this cheerfully, feeling that I was doing
something good and useful for the common cause. That
was what I said to myself just now on hearing the noble
words of President Wilson and Mr. Lloyd George.
"Let all of us, Gentlemen, be animated by the same
spirit. The Bureau never wished to hurt anybody at all.
On the contrary, it would like to unite you all In one group.
Let us, then, start work at once, and In the meantime claims
will be presented and your Bureau able to start work."
Mr. Hymans (Belgium) declares that he will say no more for
fear of justifying the reproaches of the President of the Conference,
and confines himself to the following observations: —
"I simply propose that the Conference should vote on
the resolutions which have been submitted to it. The Bu-
reau has heard the observations which have been made in
this Assembly. As I said just now, I have confidence In its
justice, and I ask it to pay attention to those observations, to
revise the composition of the Commissions, and decide."
DOCUMENT 230 81
'Mr. Klotz (France) lays on the table of the Conference, for
reference to the Commission which has just been appointed, 9. draft
proposal for a financial section of the League of Nations.
The President submits to the Conference resolutions relative to
the appointment of the four other Commissions for which provision
is made in the order of the day, and for which the Powers with
special interests have to name their Delegates.
He recalls the fact that the second Commission has to examine
the responsibility of the authors of the war and the enforcement
of penalties (Annex 2), and that the small Powers have to choose
five representatives on this Commission.
In reply to an observation made by Mr. Calogeras (Brazil) on
the subject of the number of representatives allotted to his country,
the President points out that Brazil has no reason to complain of
the number of Delegates allowed to her, and that it does not follow
that because a country is not represented on a Commission it has
not the same rights as those who are.
On the third Commission, which will consider the question of
reparation for damages (Annex 3), Belgium, Greece, Poland, Rou-
riiania, and Serbia are asked to appoint two representatives each.
With regard to the text of the resolution relative to this Com-
mission, Mr. Klotz (France) observes that there appears to be
an important omission in it. It says that this Commission will have
to examine various questions : ( i ) the amount of reparation which
the enemy Powers ought to pay; (2) their capacity for payment;
(3) by what method, in what form, and within what time this pay-
ment must be made. To this last paragraph it will be well to add:
"And the guarantees necessary to Insure payment."
The amendment proposed by Mr. Klotz is referred to the
Bureau for examination.
On the fourth (International Le^slation on Labour — ^Annex 4)
and fifth (International Control of Ports, Waterways, and Rail-
Ui
^.i;^
82 DOCUMENT 230
ways — ^Annex 5) Commissions, the Powers with special interests
will for the time appoint five Delegates.
The President proposes that these appointments shall be made
on the 27th January.
Mr. Hymans (Belgium) having asked that the Secretariat
should examine the question and arrive at a decision regarding the
number of representatives to be appointed, the President replies
that the question is one for the Bureau, and not for the Secretariat.
He adds:
I ask that the Bureau should retain Its liberty of action. If you
do not wish to name your Delegates now, but would rather wait, so
be it, but, let me tell you, at this moment we are occupied with
serious questions. The Polish question is among the foremost. On
Monday we have to hear Delegates. If you ask for the postpone-
ment of the election it will be postponed, but I must tell you that the
Delegates of the Great Powers, for their part, will not consider
themselves to have been postponed and nobody will gain anything.
As for us, we think that our work Is urgent, and we ask the
help of the whole Conference to assist us to get through it.
Mr. Hymans (Belgium) expresses agreement, and asks for the
judgment of the Bureau, whose decision will be awaited.
Mr. Bratiano (Roumania) recognizes that everybody Is willing
to meet on the 27th January for the purpose of naming Delegates,
who will be able to begin work at once now that it is possible to
examine questions of principle.
The President puts to the vote the proposal of the Bureau : That
the Delegates of the Powers with special interests should meet on
the 27th January at 15 o'clock (3 p.m.) to elect representatives.
This proposal is adopted.
See Annex 6 for the Minutes of the Session of the 2']th January,
and Annex 7 for the list of the members of the five Commissions.
The President asks those members of the Conference who have
DOCUMENT 230 83
declarations to make regarding the Delegates to be so good as to
present them to the Bureau.
The session is adjourned at 18.10 o'clock (6.10 p.m.).
G. Clemenceau,
President,
P. DuTASTA^ Secretary-General
J. C. Grew,
M. P. A. Hankey,
Paul Gauthier, !■ Secretaries,
Aldrovandi,
Sadao Saburi,
Annexes to Protocol No. 2.
Annex i.
Draft Resolution relative to the League of Nations,
The Conference, having considered the proposals for the crea-
tion of a League of Nations, resolves that —
1. It is essential to the maintenance of the world settlement,
which the Associated Nations are now met to estab-
lish, that a League of Nations be created to promote
international co-operation, to insure the fulfilment of
accepted international obligations and to provide safe-
guards against war.
2. This League should be treated as an integral part of the
general Treaty of Peace, and should be open to every
civilised nation which can be relied on to promote its
objects.
3. The members of the League should periodically meet in
international conference, and should have a permanent
organisation and secretariat to carry on the business
of the League in the Intervals between the conferences.
84 DOCUMENT 230
The Conference therefore appoints a Committee representative
of the Associated Governments to work out the details of the consti-
tution and functions of the League.
January 25, 19 19.
Annex 2.
Draft Resolution relative to the Responsibility of the Authors of
the War and the Enforcement of Penalties.
That a Commission, composed of two representatives apiece
from the Five Great Powers and five representatives to be elected
by the other Powers, be appointed to enquire into and report upon
the following: —
1. The responsibility of the authors of the war.
2. The facts as to breaches of the customs of law committed
by the forces of the German Empire and their Allies
on land, on sea and in the air during the present war.
3. The degree of responsibility for these offences attaching to
particular members of the enemy forces, including
members of the General Staffs and other individuals,
however highly placed.
4. The constitution and procedure of a Tribunal appropriate
to the trial of these offences.
5. Any other matters cognate or ancillary to the above which
may arise in the course of the enquiry and which the
Commission finds it useful and relevant to take into
consideration.
January 25, 19 19.
document 230 85
Annex 3.
Draft Resolution relative to Reparation for Damage,
That a Commission be appointed with not more than three rep-
resentatives apiece from each of the Five Great Powers and not
more than two representatives apiece from Belgium, Greece, Po-
land, Roumania and Serbia, to examine and report: —
1. On the amount which the enemy countries ought to pay by
way of reparation.
2. On what they are capable of paying; and
3. By what method, in what form and within what time pay-
ment should be made.
January 25, 19 19.
Annex 4.
Draft Resolution on International Legislation on Labour.
That a Commission, composed of two representatives apiece
from the Five Great Powers and five representatives to be elected
by the other Powers represented at the Peace Conference, be ap-
pointed to enquire into the conditions of employment from the in-
ternational aspect and to consider the international means necessary
to secure common action on matters affecting conditions of em-
ployment, and to recommend the form of a permanent agency to
continue such enquiry and consideration In co-operation with and
under the direction of the League of Nations.
January 25, 19 19.
1 '
86 document 230
Annex 5.
Draft Resolution relative to International Control of Ports, Water-
ways and Railways,
That a Commission, composed of two representatives apiece
from the Five Great Powers and five representatives to be elected
by the other Powers, be appointed to enquire into and report on: —
International control" of ports, waterways, and railways,
January 25, 1919.
Annex 6.
Ilj Minutes of the Meeting held by the Representatives of Powers with
Special Interests , January 27, 19 19.
The Session is opened at 15 o'clock (3 p.m.) under the Presi-
dency of Mr. Jules Cambon, French Delegate, President.
Present: —
For Belgium:
Mr. Hymans,
Mr. Van den Heuvel,
Mr. Vandervelde.
For Bolivia:
Mr. Ismael Montes.
For Brazil:
Mr. Olyntho de Magalhaes,
Mr. Pandia Calogeras.
For China:
Mr. Lou Tseng Tsiang,
Mr. Suntchou Wei, Envoy Extraordinary and Min-
ister Plenipotentiary of China at Brussels.
a. Note by D. H. M. This word should be "regime."
?: i
DOCUMENT 230 87
For Cuba:
Mr. Rafael Martinez Ortiz.
For Ecuador:
Mr. Dorn y de Alsua.
For Greece:
Mr. Nicolas Politis.
Mr. Athos Romanos, Envoy Extraordinary and
Minister Plenipotentiary of H.M. The King of
the Hellenes at Paris, Technical Delegate.
For Haiti:
Mr. Tertullien Guilbaud, Envoy Extraordinary and
Minister Plenipotentiary of Haiti at Paris.
For The Hedjaz:
Mr. Rustem Haidar.
For Peru:
Mr. Francisco Garcia Calderon.
For Poland:
Mr. Roman Dmowski.
For Portugal:
Dr. Egas Moniz,
The Count Penha Garcia.
For Roumania:
Mr. Jean J. C. Bratlano,
Mr. Nicolas Misu.
For Serbia:
Mr. Pashitch,
Mr. Trumbitch,
Mr. Vesnitch.
For Siam:
The Prince Charoon,
Phya Bibadh Kosha.
88 DOCUMENT 230
For the Czecho-Slovak Republic:
Mr. Charles Kramar,
Mr. Edouard Benes.
For Uruguay:
Mr. Juan Carlos Blanco.
The President sets forth in the following terms the object of the
meeting : —
The President of the Conference has done me the honour of
appointing me to preside over the meeting of the Delegates of the
Powers with special interests which have to settle the names of their
representatives on the different Commissions, the list of which has
already been drawn up. Other Commissions will be appointed later
on.
To-day you are summoned to express your views in regard to
the composition of four Commissions.
I believe that all the members present speak or understand
French ; I therefore suggest that you should decide that no transla-
tion shall be made of the words pronounced here.
(The meeting, after consultation, assents to this proposal.)
So far as concerns the appointment of Delegates on the Com-
missions, the simplest plan appears to me to be to suspend the ses-
sion in order that you may be able to come to an agreement among
yourselves. We will open an examination of the lists when the ses-
sion is resumed.
Mr. Kramar (Czecho-Slovak Republic) asks leave to speak in
order to propose a compromise : —
I perfectly understand the idea which guided Mr. Clemenceau
at the last session, when he said that it would be useless to have
Commissions composed of too great a number of members. All
those who, like him, have had experience of parliamentary affairs
are convinced of this.
I hold the view, in accordance with this opinion, that the Com-
DOCUMENT 230 89
missions should be composed, in fact, of fifteen members. I ask,
however, that an exception should be made in the case of one of
them which seems to me to be of special importance. I mean the
Commission on the League of Nations. I am well aware that noth-
ing will be definitely decided in commission, but we all of us realise
that, when a step has been accepted by a Commission, it is difficult
for a contrary decision to be taken in plenary session.
Now, no injury could be caused to the idea of the League of
Nations if the small Powers were represented on the Commission.
For this reason, and since Mr. Clemenceau has publicly declared
that number was not a sacred thing before which one has to bow, it
has occurred to me that we might modify the number of Delegates
on this important Commission. It would be possible to decide that
it should be composed of twenty-five members : fifteen to represent
the Great Powers and ten for the Powers with special interests. In
this way it would be impossible for any kind of bitterness to remain
in the minds of the Delegates of the last-named Powers.
The other Commissions would remain with their composition
of fifteen members, ten for the Great Powers and five for the Pow-
ers with special interests.
Such is the arrangement which I desire to propose.
The President states that he takes note of the extremely inter-
esting observations offered by Mr. Kramar, and adds :
You certainly remember that at the last plenary session the
President of the Conference was at pains to observe that all Dele-
gates who might desire to make their voices heard in the Commis-
sions could do so as they wished.
At the present moment I do not think that we — for we repre-
sent here only a fraction of the Conference — can modify on our
own authority that which has been decided by the Conference at
its last session. The proposal which Mr. Kramar has just made
can be referred to the next plenary session. To-day we could not
deliberate in regard to it without exceeding the mandate which we
90
DOCUMENT 230
N>^^
have to fulfil. The only thing which we have to do is to keep within
the rules laid down for us by the Conference and to proceed to
vote.
It would, in my opinion, be best to suspend the session in order
that you may agree among yourselves on the choice which you wish
to make.
Mr. Calogeras (Brazil), after seeking leave to speak, expresses
himself as follows :
I desire in the first place, to congratulate this limited assembly
on having at its head as President so illustrious a statesman as Mr.
Jules Cambon. May I now be permitted to define certain questions?
Unless I am mistaken it was stated at the last plenary session
of the Conference, as Mr. Kramar reminded us, that the composi-
tion of the Commissions in respect of numbers, was a settled matter.
It was likewise stated that all claims — justified ones, naturally —
relating to an increase in the number of members of these Commis-
sions, should be reserved for a later session.
I think I remember that certain claims have already been heard;
it will at least be necessary for them to be examined.
It is clear that we cannot at this moment do more than what has
been decided. It should, however, be well understood and perfectly
clear that this is only a temporary solution until such time as a deci-
sion shall have been taken with regard to the question of increasing
the number of members of the Commissions. I apologise for speak-
ing at some length and I will attempt to summarise my observations.
I possess a certain experience of international conferences, hav-
ing sat on several occasions as the representative of Brazil in Pan-
American conferences. Now, my experience does not altogether
accord with what has been said here. One is aware that in great
parliamentary debates the majority, by its vote, compels the minority
and, moreover, that commissions are not always models of efficiency:
this we all know; I am myself a parliamentarian. However, in an
Assembly like this one, which is an International Conference, where
DOCUMENT 230 91
neither majority nor minority exists, votes must be obtained by
unanimity, because, as a final enforcement, you have the signature
of the agreements whereby conventional laws are fixed.
There clearly exist certain difficulties in connection with publicity,
the very great publicity which is, moreover, necessary to our dis-
cussions. In plenary session a question of human pride comes into
play. A nation which has expressed itself in a certain sense cannot
easily gainsay itself or reach a compromise; whereas, in Commis-
sions where there is a far greater degree of intimacy, where discus*
sions take place with greater heat but also with greater freedom,
agreements are far easier and far simpler than when they are de-
pendent on a vote to be obtained in the plenary Conference.
It is, moreover, manifest that one cannot require that, among
so many representatives of different States, among so many man-
datories bearers of diverse diplomatic instructions, one should ob-
tain forthwith the agreement which is the indispensable preliminary
of the needed solutions. By the very fact that publicity is much
greater in plenary session, you will understand that any divergences
of opinion, even those which may merely be ones of detail and
devoid of really great importance, directly they appear soon acquire
a much greater importance and produce an impression which might
be unfavourable and, if I may say so, disastrous to the solutions
which we wish to reach in harmony and by the free consent of the
will of all concerned.
These are the reasons for which it seemed, and still seems to
me to-day-^I speak from my small experience as a member of several
international conferences — that there will be every advantage, from
the point of view of the rapidity of our labours and having regard
to the necessary agreement which must receive the sanction of the
plenary Conference, in fixing the number of members, not of all but
of certain of the Commissions, at a higher figure than the one hither-
to adopted. I have myself made a claim. Other Delegates have
spoken more or less in the same sense ; it is clear that there is some-
thing to be done in this direction.
92 DOCUMENT 23O
We have come here with a great ideal which all the world sup-
ports; we desire to institute the League of Nations, that is to say,
a system of equality as between all nations. The principle of the
League has already been completely established. Each nation must
be given a vote; "one nation, one vote." That is the spirit in which
I beg leave to bring to your attention the arguments which appear to
militate in favour of an Increase in the number of members of Com-
missions, for the phrase "League of Nations" must not merely
appear in our speeches; its spirit must reign in our hearts.
The President points out, with the agreement of Mr. Calogeras,
that the observations which have just been made cannot modify the
proposals already placed before the Assembly; that, moreover, they
cannot be taken into account at a meeting which has for Its sole
object the designation of the representatives of Powers with special
Interests.
The observations of the Delegate for Brazil will, however, be
recorded In the Minutes of the session, and the President will com-
municate them to the Bureau of the Conference.
Furthermore, the Delegates of Powers which desire to see an
increase in the number of their representatives on the Commission
of the League of Nations may naturally go and offer their observa-
tions before that Commission. That Commission, which will be
undoubtedly animated by a most liberal spirit, may, If It considers
the number of representatives to be Insufficient, request the plenary
Conference to increase the number originally settled.
Mr, Vesnitch (Serbia) offers an observation of a technical de-
scription by proposing that the vote to be given should be in the
name of States, and not in the name of persons.
This proposal is adopted.
}M The session is suspended at 15.25 o'clock (3.25 p. m.) in
order to allow the Delegates to exchange views before
examining the list of the representatives to be designated.
i'\
DOCUMENT 230 93
The session is resumed at 16.5 o'clock (4.5 p. m.).
On the resumption of the session Mr. Hymans (Belgium) de-
scribes as follows the result of the exchange of views among the
Delegates : —
We have sought to reach an agreement, by means of private
conversations, in regard to the position of the four following Com-
missions : Commission on the League of Nations ; Commission on
Ports; Commission on International Legislation on Labour; Com-
mission to enquire into the Responsibility for Crimes committed
during the War.
As a result of the conversations which have taken place, there
are two Commissions in regard to the composition of which there
appears to be agreement, and we can thenceforward eliminate the
two following questions from our deliberations : the Commission on
the Responsibility for Crimes committed during the War, and the
Commission on International Legislation on Labour.
If there were no opposition, we could consider that the Dele-
gates have been named for the Commission to enquire Into the re-
sponsibility for crimes committed during the war, and to examine the
penalties attached to those crimes, that Commission being composed
of the representatives of Belgium, Serbia, Roumania, Poland and
Greece.
As regards the composition of the Commission to study Inter-
national Legislation on Labour, we propose to put down the names
of the following Powers: Belgium, Serbia, Cuba for the South
American group, Poland and the Czecho-Slovak Republic. The
Serbian Delegates, however, have been good enough to state that
they agreed to yield their place to Belgium, which. In view of the
position which she holds in the industrial and commercial world, may
be considered from that point of view as a Great Power. Belgium
would therefore have two seats.
The question is a more delicate one as regards the composition
94 DOCUMENT 230
of the Commission to enquire Into the constitution of the League of
Nations, and the composition of the Commission on the Control of
Ports, Waterways and Railways.
In the conversations which have just taken place, there seemed
to be an agreement as regards Belgium and Serbia, each having a
representative on both Commissions; there are, however, besides
those two. Powers which likewise demand to be represented on both
Commissions and the number of the Powers which wish to sit on
them exceeds the number of available seats. Brazil, China, Rou-
manla, Poland, the Czecho-Slovak Republic, Greece, and Portugal
ask to be represented on the League of Nations Commission.
With regard to the Ports Commission, in addition to Belgium
and Serbia, Uruguay representing the South American group, Po-
• land, China, Greece, Roumania, and Portugal ask to be represented
on this Commission.
In our opinion it would be best, with a view to the composition
: ' of these two Commissions, to take a vote; It is our intention to
; request you, Mr. President, when the vote has taken place and after
the nomination of the five Delegates to whom we have been told
we are entitled, to make yourself the interpreter of the desire of
to-day's meeting by begging the Bureau of the Conference to be
so good as to increase eventually the number of seats on these two
Commissions; we would indicate the Powers for which these seats
are requested.
!
The Greek Delegates state that they agree with Mr. Hymans In
>|j ' regard to the composition of the first two Commissions for which,
in default of opposition, the vote should be regarded as settled;
furthermore, like Serbia, they renounce their representation on the
! ] International Labour Legislation Commission in favour of Belgium.
1^ \ The President gives his consent to this mode of procedure and
1' concludes, to sum up, that five Delegates will be appointed and that
four will be designated In order that they may be proposed to the
V Bureau of the Conference so as to complete the Delegation.
DOCUMENT 230 95
The discussion is resumed on the method of voting.
The President states that, with regard to the Labour Legislation
Commission and that on the Responsibility for Crimes, there is no
need to vote, as the Delegates have agreed among themselves.
The representation of Powers with special interests on the In-
ternational Labour Legislation Commission will therefore be com-
posed as follows: Belgium, with two seats; Cuba, Poland, and the
Czecho-Slovak Republic, with one seat each.
As regards the Commission to enquire Into the Responsibility
for Crimes committed during the War, Belgium, Greece, Poland,
Roumania, and Serbia will each have one representative on that
Commission.
As regards the two other Commissions — those on the League of
Nations and on Ports — the President proposes to proceed by sepa-
rate vote for each Commission. This having been accepted, he
states that it is understood that the Delegates to be considered as
elected will be the five who have received the greatest number of
votes. The four names following them will be laid before the Con-
ference, by way of suggestion, with a view to complete the Commis-
sions.
An exchange of views takes place In order to fix the method of
voting. It is decided in the first place that the voting at the first
round is to be determined by absolute majority; at the second, by
relative majority; further, that each Delegation shall only hand in
one voting card.
The list of candidates for the League of Nations Commission Is
communicated to the meeting. These candidates are, in alphabetical
order (in French) : Belgium, Brazil, China, Ecuador, Greece,
Haiti, Poland, Portugal, Roumania, Serbia and the Czecho-Slovak
Republic.
The votes are collected, sorted and counted.
The President announces the result :
There are seventeen voters; the five nations which have received
g6 DOCUMENT 230
an absolute majority and the greatest number of votes are : Belgium,
China, Brazil, Serbia, and Portugal. Thereafter come Roumania,
Poland, Greece, the Czecho-Slovak Republic, Haiti, and Ecuador.
In accordance with the decision of the Assembly, the President
will communicate to the Bureau of the Conference the names of the
four nations which, after the five nations appointed, have obtained
' the greatest number of votes, namely: Roumania, Poland, Greece,
and the Czecho-Slovak Republic.
The President thereupon proposes to designate the members of
the Ports, Waterways and Railways Commission.
Mr. Benes (Czecho-Slovak Republic) offers the following
observation :
When we examined the question of the number of Delegates to
be admitted Into the Commission for Railways, Waterways, and the
Intemationalisation of Ports, I explained to my colleagues on the
Commission certain reasons for which we, the Czecho-Slovaks, were
anxious to be represented among the five Powers to be designated.
1 i Those reasons are as follows: We are in the middle of Central
Europe, a country surrounded on all sides by enemy powers, notably
Germany and the Magyars, and we have no access to the sea. For
us the question of the intemationalisation of railways is a vital one;
on the other hand, our State is a riverain state of the Danube and
we are specially interested in the question of the Adriatic; moreover,
I having no great ports, we shall therefore be interested in expressing
; ; \ our views on the subject of the special system of control of the Baltic
o!| and Adriatic ports. These are the reasons which we have advanced
J in order that we may be included in the number of the five Powers
\ \ which are to be represented on the Commission : I therefore propose
the candidature of the Czecho-Slovaks to be among the five Powers
W which you are about to designate.
Mr, Hymans (Belgium) announces, but not in order of priority,
the names of the Powers which ask to be represented on the Com-
DOCUMENT 230 97
mission : they are Belgium, Serbia, Uruguay, Poland, China, Rou-
mania, Greece, the Czecho-Slovak Republic and Portugal.
The votes are collected, sorted and counted.
The President announces the result: —
The five Powers which have secured an absolute majority are:
Belgium, China, Greece, Uruguay and Serbia.
After them the following have secured the greatest number of
votes: Roumania, Portugal, Poland and the Czecho-Slovak
Republic.
Therefore, the suggestion to be made to the Bureau is concerned
with the supplementary admission of the four last-named Powers.
Mr. Calogeras (Brazil) makes the following statement in re-
gard to the result of the voting : —
It appears to me that a great moral lesson is derived from the
votes which this Assembly has just cast: on all the Commissions it
is to Belgium that the greatest number, indeed almost the unanimity
of votes, has been given. That is not astonishing. We have barely
emerged from a struggle which will undoubtedly effect a complete
transformation of modern society: now, if it has been possible to
secure this victory, if we are assembled round this Conference table,
it is certainly because there has been an expiatory victim, a country,
small in extent, but great of heart, which has offered itself up as a
holocaust, and to which we may well apply the phrase which Joan
of Arc used of her banner : "It has been dragged in the dust; it now
floats in the breeze."
Mr. Hymans (Belgium) thanks him in the following terms: —
From the depths of ray heart I thank the representative of noble
Brazil for the words with which he has just greeted my country.
We have, I think, done our duty; victory has crowned the common
efforts of the Allies and all of us here will have only one purpose,
together with the great Allies at whose side we were sitting yester-
day; that is, to establish a just peace, and to organise an Interna-
tional order founded on the rights and equality of nations.
98 DOCUMENT 230
The President adds these words :
In the name of all the nations represented at this table I asso-
ciate myself with the words just pronounced by the representative of
Brazil ; at the same time, however, I desire to associate with these
eulogies Serbia, Roumania, and all the nations which have suffered,
like ourselves and like Belgium, for the cause of Civilisation and
Right
It is understood, of course, that the Delegates of countries
which have been indicated will be at the same time the Delegates of
all the nations, and that they may be requested to present the de-
siderata of nations which have not been themselves designated.
In conclusion, the President begs the Delegations to communi-
cate as soon as possible to the General Secretariat the names of the
representatives of nations designated by the vote which has just been
taken, as the Commission ought to be constituted as rapidly as
possible.
The members of the Secretariat take note of these names. (See
Annex VII.)
The session rises at 16.50 o'clock (4.50 p.m.).
J. Cambon,
President.
Annex 7.
V , List of Members of Commissions.
\\ '■ Commission on the League of Nations.
j United States of America:
i ; President Wilson,
' i Honorable Edward M. House.
)^J British Empire I
The Rt. Hon. The Lord Robert Cecil,
Lieutenant-General The Rt. Hon. J. C. Smuts.
iijj)-
DOCUMENT 230 99
France :
Mr. Leon Bourgeois:
Mr. Lamaude, Dean of the Faculty of Law of Paris.
Italy :
Mr. Orlando,
Mr. Scialoja.
Japan :
The Baron Makino,
The Viscount Chinda.
Belgium :
Mr. Hymans.
Brazil :
Mr. Epitacio Pessoa, Senator, former Minister of Justice.
China :
Mr. Wellington Koo, Envoy Extraordinary and Minister
Plenipotentiary of China at Washington.
Portugal:
Mr. Jayme Batalha Reis.
Serbia:
Mr. Vesnitch.
2.
Commission on the Responsibility of the Authors of the War and
the ^enforcement of Penalties.
United States of America :
Honorable Robert Lansing,
Mr. James Brown Scott.
British Empire :
The Rt. Hon. Sir Gordon Hewart, K.C., M.P., Attorney-
General, with the right of substituting:
The Rt. Hon. Sir Ernest Pollock, K.B.E., K.C., M.P„ Solici-
tor-General,
The Rt. Hon. W. F. Massey.
lOO DOCUMENT 23O
France:
Mr. Andre Tardieu,
Mr. Larnaude.
lialy:
Mr. Scialoja,
Mr. Raimondo, Deputy.
Japan :
Mr. Adatci, Envoy Extraordinary and Minister Plenipotentiary
of His Majesty the Emperor of Japan at Brussels,
Mr. H. Nagaoka.
Belgium :
Mr. Rolin-Jaequemyns, Secretary General of the Belgian
Delegation.
Greece :
Mr. Politis.
Poland:
Mr. Constantin Skirmunt, Member of the Polish National
Committee, Representative of the Committee at Rome.
Roumania:
Mr. S. Rosental, Jurist.
Serbia :
Mr. Slobodan Yovanovitch, Rector of the University of Bel-
grade (with the right of substituting Mr. K. Koumanoudi,
Professor at the University of Belgrade, or Mr. M.
Novakovitch, Professor at the University of Belgrade).
3-
Commission on Reparation of Damage.
United States of America:
Mr. Bernard M. Baruch, President of the War Industries
Board,
Mr. Norman H. Davis, Financial Commissioner,
Mr. Vance McCormick, President of the War Trade Board.
DOCUMENT 230 IDl
Great Britain :
The Rt. Hon. W. M. Hughes,
The Rt. Hon. The Lord Sumner of Ibstone, Lord of Appeal
in Ordinary,
The Rt. Hon. The Lord Cunliffe, former Governor of the
Bank of England.
France :
Mr. L. L. Klotz,
Mr. Loucheur, Minister of Industrial Reconstruction,
Mr. Albert Lebrun, Minister of the Liberated Territories.
Italy:
Mr. Salandra,
Mr. D'Amelio, Councillor to the Court of Cassation,
Mr. E. Chiesa, Deputy.
Japan :
Mr. Mori, Financial Agent to the Embassy at London,
Mr. H. Nagaoka,
Mr. Tatsumi, Administrator of the Yokohama Specie B^nk.
Belgium :
Mr. Van den Heuvel,
Mr. Despret, Advocate at the Court of Cassation, Adminis-
trator of the Bank of Brussels.
Greece :
Mr. Romanos,
Mr. Michalakopoulos, Minister of State.
Poland:
Mr. Sigismond Chamiec, Director of the National Loan Bank,
Mr. Casimir Olszowski, Director of the Department of War
Damage at the Ministry of Finance.
Roumania :
Mr. Georges Danlelopol, Envoy Extraordinary and Minister
Plenipotentiary of His Majesty the King of Roumania at
I02
DOCUMENT 230
Washington, former Director of the National Bank of
Roumania,
Mr. P. Zahariade, Engineer-Inspector-General, former Direc-
tor of the Railways.
Serbia:
Mr. Milosh Savtchitch, former Minister (with the right of
substituting Mr. Dragutin Protltch, Advocate, or Dr.
Vel. Baikitch, Bank Director.
••^v.\\
;.;r^ I
Commission on International Legislation on Labour.
United States of America :
Honorable Edward N. Hurley, President of the Shipping
Board,
Mr. Samuel Gompers, President of the American Federation
of Labor.
Great Britain :
The Rt. Hon. G. N. Barnes,
Sir Malcolm Delevingne, K.C.B., Assistant Under-Secretary
of State for the Home Department.
France :
Mr. CoUiard, Minister of Labour and Social Insurance,
Mr. Loucheur.
Italy:
Baron Mayor des Planches, Honorary Ambassador, Commis-
sioner-General of Emigration,
Mr. Cabrini, Deputy.
Japan :
Mr. Otchiai, Minister Plenipotentiary and Envoy Extraordi-
nary of His Majesty the Emperor of Japan at The Hague;
Mr. Oka, former Director of Commercial and Industrial Af-
fairs at the Ministry of Commerce.
DOCUMENT 230 103
Belgium :
Mr. Vandervelde,
Mr. Mahaim, Professor of the University of Liege, Secretary
of the Belgian Section of the International Association
for the Legal Protection of Workers.
Cuba:
Mr. Antonio Sanchez de Bustamante.
Poland :
Mr. Jean Zoltowski, Member of the Polish National Commit-
tee (temporary Delegate).
Czechoslovak Republic :
Mr. Benes.
5-
Commission on the International Control of Ports, Waterways, and
Railways.
United States of America :
Honorable Henry White,
Honorable David Hunter Miller.
Great Britain :
The Hon. A. L. Sifton,
Sir Hubert Llewellyn-Smith, K.C.B., Permanent Secretary to
the Board of Trade.
France :
Mr. Claveille, Minister of Public Works and Transport,
Mr. Andre Weiss, Professor at the Faculty of Law of Paris,
Legal Adviser to the Ministry of Foreign Affairs.
Italy:
Mr. Crespi, Minister of Food,
Mr. de Martino, Secretary-General of the Ministry of Foreign
Affairs.
Japan;
Mr. K. Matsui,
Colonel Sato.
I04
DOCUMENT 230
■■J 1 1
VI i
Belgium :
Mr. Segers, Minister of State.
China:
Mr. Chengting Thomas Wang.
Greece :
Mr. Coromilas, Envoy Extraordinary and Minister Pleni-
potentiary of His Majesty the King of the Hellenes at
Rome,
Serbia:
Mr. Trumbitch.
Uruguay :
Mr. Juan Carlos Blanco.
''m^^I!
lOi
DOCUMENT 231
CONFERENCE
Des Preliminaires de Palx.
PROTOCOLE NO. 2/
SEANCE PLENIERE DU 25 JANVIER I919.
La seance est ouverte k 15 heures sous la presidence de
M. Clemenceau, President.
Sont presents :
Pour les £tats-Unis d'Amerique :
Le President des £tats-Unis;
Hon. Robert Lansing;
Hon. Henry White;
Hon. Edward M. House;
General Tasker H. Bliss.
Pour I'Empire Britannique:
Grande-Bretagne. i
The Rt. Hon. David Lloyd George; J
The Rt. Hon. A. J. Balfour; |
The Rt. Hon. G. N. Barnes; ^
The Hon. C. J. Doherty, MInlstre de la Justice du Canada;
The Rt. Hon. Sir Joseph Ward, Bart., K. C. M. G., Min- |
istre des Finances et des Postes de la Nouvelle-Zelande. ;^J
The -Rt. Hon. the Lord Robert Cecil, K. C, M. P., .I
Delegue technique pour la Societe des Nations.
Dominions et Indes.
Canada.
The Rt. Hon. Sir Robert Borden, G. C. M. G., K. C,
Premier Ministre; .
The Rt. Hon. Sir George Foster. "' ^ -^
a. See Diary, p. 91.
io6
DOCUMENT 231
Australie,
The Rt. Hon. W. M. Hughes;
The Rt. Hon. Sir. J. Cook.
Afrique du Sud.
General the Rt. Hon. Louis Botha ;
Lt. General the Rt. Hon. J. C. Smuts.
Nouvelle-Zelande.
The Rt. Hon. W. F. Massey, Premier Ministre.
Indes.
The Rt. Hon. E. S. Montagu, M. P., Secretaire d'fitat pour
I'lnde;
Major General Son Altesse le Maharaja de Bikanlr.
Pour la France :
M. Clemenceau;
M. Pichon;
M. L. L. Klotz;
M. Andre Tardieu ;
M. Jules Cambon ;
M. Leon Bourgeois, anclen President du Conseil des Min-
istres, ancien Ministre des Affaires etrangeres, Delegue
technique pour la Societe des Nations.
M. le Marechal Foch.
Pour ritalle:
M. V. E. Orlando, President du Conseil des Ministres;
Le Baron S. Sonnino ;
Le Marquis Salvago Raggi;
M. Antonio Salandra, Depute, ancien President du Conseil
des Ministres;
M. Salvatore Barzilai, Depute, ancien Ministre.
M. Scialoja, Senateur du Royaume, Delegue technique pour
la Societe des Nations.
ill- ■:'l
DOCUMENT 231 107
Pour le Japon :
Le Baron Makino, ancien Ministre des Affaires etrangeres,
Membre du Conseil diplomatique;
Le Vicomte Chinda ;
M. K. Matsui;
M. H. Ijuin, Ambassadeur extraordinaire et plenipotentiaire
de S. M. TEmpereur du Japon a Rome.
Pour la Belglque :
M. Hymans;
M. van den Heuvel;
M. Vandervelde, Ministre de la Justice, Ministre d*fitat.
Pour la Bolivie:
M. Ismael Montes.
PourleBresil:
M. Oiyntho de Magalhaes;
M. Pandia Calogeras.
Pour la Chine :
M. Lou Tseng Tsiang;
M. Chengting Thomas Wang.
Pour Cuba:
M. Rafael Martinez Ortiz.
Pour I'fiquateur :
M. Dom y de Alsua.
Pour la Grece :
M. Eleftherios Veniselos, President du Conseil des Minis-
tres;
M. Nicolas Politls.
Pour le Hedjaz:
Son Altesse Royale Tfimir Faygal ;
M. Rustem Haidar.
io8
DOCUMENT 231
I'mC
if. |!'
i:0' .:r
Pour le Perou :
M. Francisco Garcia Calderon.
Pour la Pologne :
M. Roman Dmowski.
Pour le Portugal:
Le Comte de Penha Garcia, ancien President de la Chambre
des deputes, ancien Ministre des Finances;
M, Jayme Batalha Reis, Envoye extraordinaire et Ministre
pletiipotentiaire du Portugal a Petrograd.
Pour la Roumanie :
M. Jean J. C. Bratiano;
M. Nicolas Misu.
Pour la Serbie:
M. Pachitch;
M. Trumbitch;
M. Vesnitch.
Pour le Siam :
Le Prince Charoon;
Phya Bibadh Kosha.
Pour la Republique tcheco-slovaque :
M. Charles Kramar, President du Conseil des Ministres;
M. fidouard Benes.
Pour rUruguay:
M. Juan Carlos Blanco.
Le President fait connaitre a la Conference que, sur la demande
de la Delegation des fitats-Unis, I'approbation' du Protocole de la
premiere seance est renvoyee a la prochaine seance, cette Delegation
n'ayant pas encore regu le texte anglais du Protocole No. i, qu*elle
se reserve le droit de presenter a la Conference.
DOCUMENT 231 109
Uordre du jour appelle la constitution de cinq
Constitution f^ . . , .,,,,.,
des v-ommissions chargees d etudier les questions sui-
Commissions.
vantes :
1° Societe des Nations;
2° Responsabilite des auteurs de la guerre et sanctions;
3° Reparation des dommages;
4° Legislation Internationale du travail;
5° Regime international des ports, voles d'eau et voles
ferrees.
-o La premiere Commission a nommer est relative
de'S^^^ociSe ^ ^^ Societe des Nations, au sujet de laquelle le Bu-
des Nations. reau presente un projet de resolution (Annexe I),
qui a ete distribue, en anglais et en frangais, a tous les membres de
la Conference.
La discussion est ouverte sur la question de la Societe des Na-
tions.
Le President des £tats-Unis, s'exprimant en anglais, prononce
le discours dont la traduction suit:
C'est un grand privilege qui m'est donne d'ouvrir la
discussion dans cette Conference sur la Ligue des Nations.
Nous nous sommes reunis ici pour deux objets: regler les
questions posees par la guerre actuelle et aussi assurer la
palx du monde, non seulement par ce reglement, mals par des
mesures que nous devrons prendre dans cette Conference
pour rendre la paix durable.
La Ligue des Nations me semble necessaire a la fois
pour ces deux objets: peut-etre ne reussirons-nous pas a
donner, par les decisions que nous prendrons ici, une solu-
tion definitive pour beaucoup des questions compllquees qui
sont liees au reglement de cette guerre. Je congois facile-
ment pourquoi un grand nombre des solutions que nous
adopterons necessiteront un examen ulterieur; pourquoi un
grand nombre des decisions que nous prendrons exigeront,
dans une certaine mesure, des modifications ulterieures;.car,
autant que mon etude de certaines de ces questions me per-
met d'en juger, tous ces problemes ne sont pas en ce moment
no
DOCUMENT 231
m
': i ■ ',
susceptibles d'une solution definitive. II nous faut done
creer quelque organisme charge d'achever I'ceuvre de la Con-
ference. Nous nous sommes reunis ici pour executer un
plan beaucoup plus vaste que le reglement direct de difficultes
immediates. Nous sommes reunis a un moment ou I'opinion
du monde est dans un etat particulier. Je puis dire, sans
exageration, que nous sommes non les representants des
Gouvemements, mais les representants des Peuples.
II ne suffirait pas que notre oeuvre satisfit tous les Gou-
vemements; il est necessaire qu'elle donne satisfaction a
I'opinion de I'humanite. Le fardeau de cette guerre a pese,
a un degre inconnu jusqu'ici, sur la population tout entiere
des pays qui y ont participe. A quoi bon vous exposer
comment, bien loin du front, ce fardeau est venu peser sur
les vieillards, les femmes et les enfants, sur les foyers du
monde civilise, et comment spontanement les coeurs se sont
eleves a des regions ou ne peuvent penetrer les regards du
gouvernement des hommes, mais ou bat le coeur de I'Human-
ite. Ces peuples nous demandent de conclure une paix qui
leur donne la securite. lis nous demandent de veiller a ce
qu'ils n'aient plus a recommencer cet effort et j'ose dire que
ce qui leur a permis de le supporter, c'est I'espoir que leurs
representants pourraient se reunir apres la guerre et rendre
inutile le renouvellement de pareils sacrifices.
Nous avons done I'obligation stricte de conclure des
accords permanents pour que la justice regne et que la paix
soit rendue durable. Tel est I'objet essentiel de notre
reunion. Les reglements peuvent etre temporaires, mais
Taction des peuples dans I'interet de la paix et de la jus-
tice doit etre permanente. Nous pouvons organiser des
procedures permanentes. II se peut que nous soyons hors
d'etat de prendre des decisions ayant un effet permanent.
C'est pourquoi nous devons, autant que possible, avoir pre-
sent a Tesprit le tableau actuel du monde. N'est-il pas
saisissant, par exemple, de constater que les grandes decou-
vertes de la science, les recherches des savants dans le calme
des laboratoires, les pensees geniales sorties du silence des
bibliotheques ont, dans ce conflit, ete detournees de leur
noble but pour servir a detruire la civilisation? Et ce n'est
pas tant les forces de destruction qui se sont accrues que
la destruction qui est devenue plus facile.
L'ennemi que nous venons de vaincre avait cree sur son
territoire quelques-uns des principaux centres de recherches
if 'I'
DOCUMENT 231 III
et de decouvertes sclentifiques du monde, et il s*en est servi
pour operer des destructions brutales et completes; seule
une cooperation attentive et continue des hommes peut
vedler a ce que la science, comme les armees, soit maintenue
au service de la civilisation.
En un sens, les fitats-Unis ont, dans cette question, un
interet moins direct que les autres nations ici reunies. Par
I'etendue de leur territoire, par le developpement de leurs
cotes, les £tats-Unis auraient vraisemblablement moins a
redouter I'attaque d'un ennemi que beaucoup d'autres na-
tions. La ferveur des Etats-Unis, — car il s'agit d'une fer-
veur veritable et tres profonde pour la Ligue des Na-
tions, — n'est pas une ferveur causee par la crainte ou I'ap-
prehension, c'est une ferveur qui vient de I'ideal dont ce
pays a pris conscience au cours de la guerre. En prenant
part a cette guerre, les fitats-Unis n'ont pas un seui instant
songe a intervenir dans la politique europeenne, dans la
politique asiatique ou dans la politique d'une partie quel-
conque du monde. lis ont pense que le monde entier s'etait
maintenant rendu compte qu'une seule cause etait interessee
a Tissue de la guerre. C'etait la cause de la Justice et de
la Liberte pour les hommes de toute race et de toute patrie.
Aussi les fitats-Unis estimeraient-ils valne leur intervention
dans la guerre si elle n'aboutissait qu'a un reglement d'en-
semble des questions europeennes. lis ne croiraient pas
pouvoir particlper a la garantie du reglement des questions
europeennes, si cette garantie n'impliqualt la surveillance
constante de la paix mondiale par les nations associees du
monde entier.
II me semble done que nous devons nous concerter de
notre mieux pour faire de cette Ligue des Nations un or-
ganisme vivant, non pas un organisme de pure forme, non
pas un organisme d'occaslon, non pas un organisme destine
a repondre a une necessite du moment, mais un organisme
fonctionnant perpetuellement, veillant aux interets des na-
tions, et qui soit reellement vivant; ses fonctions doivent
etre permanentes et il ne doit y avoir aucune interruption
dans son activite ni dans sa vigilance; la Ligue des Nations
doit etre Toeil des peuples charge de veiller aux interets com-
muns, un oeil qui ne se ferme jamais, un ceil toujours vigi-
lant et attentif.
Et si nous ne faisons pas de la Ligue des Nations un
organisme vivant, que ferons-nous? Nous tromperons Tat-
112 DOCUMENT 23 I
tente des peuples, car la Ligue des Nations est au centre
de leurs preoccupations. Depuis que je suis de ce cote de
I'Ocean, j'ai eu la joie de prendre contact avec le peuple
dans mes visites aux diverses nations; chaque fois, la voix
de la foule est montee jusqu'a moi par I'intermediaire de
ses representants, et ce qui dominait dans cette voix c'etait
I'aspiration du nionde vers I'etablissement de la Ligue des
Nations.
Messieurs, I'elite de Thumanite n'est plus representee
par les Gouvernants. L'avenir du monde est maintenant
(i entre les mains du peuple meme. Donnez-lui satisfaction,
vous aurez non seulement justifie sa confiance, mais encore
etabll la paix. Ne lui donnez pas satisfaction, aucun des
arrangements que vous pourrez conclure n'etablira la paix
du monde, ni ne la consolidera.
Messieurs, vous pouvez vous representer, j'ose le dire,
dans quel sentiment et dans quel dessein les Representants
■' des ]6tats-Unis soutiennent ce grand projet de la Ligue des
'■ Nations. Nous le considerons comme la clef de voute de
tout le programme, expression de nos desseins et de notre
• ideal dans cette guerre, que les Nations associees ont ac-
1 , cepte comme base de reglement. Si nous retournons
t^ r. aux £tats-Unis sans avoir fait tous nos efforts pour
I ! realiser ce programme, nous y trouverons en rentrant le
mepris justifie de nos concitoyens. L'ensemble de nos con-
citoyens, en effet, constitue une grande democratie. lis at-
il tendent de leurs Representants que ceux-ci expriment la
i I pensee de cette democratie et non leurs desseins personnels.
lis considerent leurs Representants comme leurs serviteurs.
V Nous n'avons d'autre parti a prendre que d'obeir a ce man-
dat. Mais c'est avec le plus grand plaisir et meme avec le
1 ,i [f plus grand enthousiasme que nous acceptons ce mandat; et
; : c'est parce qu'il est la clef de voute de tout I'edifice, que nous
r y nous sommes engages a lui consacrer tous nos efforts, comme
Ij' ,| y nous I'avons fait pour chaque partie de Tedlfice. Nous ne
jl' ;'', voudrions pas retrancher un seul article du programme qui
1 Vj constitue notre mandat. Nous ne nous hasarderions pas a
.) J. I consentir un compromis sur aucune matiere, en tant que
■ t'^, <^ champion de cette cause: la Paix du monde, la Justice; de
.,^jj■ |M ce princIpe: que nous ne sommes les maitres d'aucun peuple,
mais que nous sommes ici pour veiller a ce que tous les
peuples du monde choislssent leurs maitres et gouvement
leurs destinees non comme nous le voulons, mais comme lis
-.11
DOCUMENT 231 113
le veulent. En resume, nous soimnes Ici pour veiller a ce
que les causes . premieres de cette guerre disparaissent a
jamais. Ces causes premieres, c'etait le choix prive de
petites coteries de chefs civils et d'etats majors militaires.
Ces causes premieres, c'etait I'agression de grandes puis-
sances contre des petites. Ces causes premieres, c'etait
la constitution d'empires par la force des armes
contre la volonte des sujets qui les composent. Ces
causes premieres, c'etait le pouvoir pour de petites
oligarchies d'agir suivant leur volonte et de consid-
erer les hommes comme des pions dans un jeu. Et le moins
que la Paix puisse accompli r, c'est la delivrance du monde
de toutes ces dominations. Aussi les Representants des
]&tats-Unis n'ont jamais ete embarrasses pour choisir leur
ligne de conduite, parce qu'ils ont etabli pour eux des regies
de principe inalterables. Et, grace a Dieu, ces regies ont
ete acceptees comme bases de reglement par tous les hommes
a esprit eleve qui ont eu a s'occuper des preliminaires de cette
grande tache.
J'espere, Monsieur le President, que, lorsque Ton saura,
— et on le saura, j'en suis convaincu, — que nous avons adopte
le principe de la Ligue des Nations et que nous entendons
donner force executoire a ce principe, nous aurons par cela
seul soulage le coeur de tous les hommes de la plus grande
partie de ce fardeau d'anxiete qui pese sur eux. Nous nous
trouvons dans un cas parti culier. Lorsque je parcours les
rues de cette ville, je vois partout des hommes portant I'uni-
forme americain. Ces hommes sont entres en guerre apres
avoir eu connaissance de nos desseins. lis sont venus comme
des croises, non seulement pour gagner une guerre, mais pour
gagner une cause, et je suis responsable envers eux, car la
tache qui m'est echue est d'exposer les motifs pour lesquels
je leur ai demande de combattre. Et moi aussi, je dois
etre un croise pour ces idees, quoi qu'il en coute et quoi qu'il
soit necessaire de faire, en conscience, pour atteindre le but
pour lequel ils ont combattu. J'ai ete heureux de le con-
stater de jour en jour; il ne saurait etre question de notre
isolement a cet egard, car de tous cotes il y a des champions
de cette cause. Si je fais cette remarque, c'est simplement
afin que vous compreniez pourquoi c'est a nous, qui ne
sommes pas Interesses dans les questions politiques de ce
grand continent et de I'Orient, qu'est echue la mission de
suggerer que c'etait la la clef de voute de I'edifice, et pourquoi
114 DOCUMENT 231
le President de la Conference a eu la genereuse pensee de
m'inviter a ouvrir ce debat. Ce n'est pas parce que nous
sommes seuls a defendre cette idee, c'est parce que c'est
notre privilege de nous associer a vous pour la defendre.
Dans tout ce que j'ai dit, je me suis borne a essayer de
vous montrer les sources de I'enthousiasme qui est en nous
pour cette idee; car ces sources jaillissent, ce me semble, des
anciens maux et des sympathies anciennes de I'Humanite.
C'est le pouls meme de TUnivers qui semble battre quand
nous touchons a cette question vitale.
M. Lloyd George (Grande-Bretagne), s'exprimant en anglais,
prononce le discours dont la traduction suit :
Je me leve pour appuyer cette resolution. Apres le noble
discours du President des Etats-Unis, je sens qu'il n'est pas
besoin d'observations pour recommander son adoption a
la Conference, et je ne serais pas intervenu si je n'avais
ii desire dire avec quelle energie les peuples de I'Empire bri-
tannique soutiennent cette proposition. Si les chefs de la
, nation n'ont pu, au cours des cinq dernieres annees, se con-
sacrer a la defense de cette cause autant qu'ils I'auraient
■ ' voulu, c'est parce que tout leur temps et toute leur energie
': I ont ete absorbes par les exigences de ce terrible conflit.
I Si j'avals eu dans I'esprit le moindre doute sur la sagesse
de ce projet, ce doute se serait evanoui lorsque j'ai entendu
j I'irresistlble appel qui s'est eleve vers moi du spectacle dont
|: j'ai ete le temoin dlmanche dernier. Je visltais une region
' I qui, 11 y a peu d' annees, etalt I'une des plus belles d'un pays
; exceptionnellement beau. Je n'y al trouve que ruines et
desolation. J'ai parcouru pendant des heures une campagne
i^ qui n'avait plus I'apparence d'une contree habitee par des
'■' '; etres vivants, hommes, femmes et enfants, mais qui avait
malntenant I'aspect d'un pays bouleverse, parseme d'excava-
,; ' tions, ou tout etalt brise, retourne, arrache. Je suIs alle
'D '{j! dans une ville ou j'ai constate des devastations, qu'aucune
,ifij Indemnlte ne pourra jamais reparer; j'ai vu, defiguree et
I j mutllee au point d'etre irreparable, I'une des plus admlrables
;;i '■|, merveilles de I'univers. Et il s'est produit I'une des choses,
bi^i'l) a mon avis, les plus douloureuses que Ton pulsse imaginer:
;lii |fi| des Frangals, — qui etaient attaches a leur sol natal plus
peut-etre qu'aucun autre peuple ne Test, — ont du, pour faire
triompher la justice de leur cause, aider leur cruel ennemi
;' .; i a demolir leurs propres habitations et j'ai senti que c'etaient
■1.1 ";■■
i' ^
I: i
11
DOCUMENT 231 115
la les resultats de cette guerre, une partie seulement de ses
resultats. Si je m'etais trouve ici II y a quelques mois, j'aurais
ete temoin de quelque spectacle que je n'oserais decrire. Je
viens de voir des acres entiers couverts des tombes de ceux
qui sont tombes : c'etaient la les resultats du seul moyen, de
la seule methode organisee, a I'aide desquels les nations civi-
llsees ont jusqu'ici tente ou decide de regler leurs differends.
Et mon sentiment etalt le suivant: certes il est temps, il est
grand temps d'etabllr pour le reglement des differends entre
les peuples un systeme plus sage que cette sauvagerie or-
ganisee.
Je ne sais si nous y reusslrons. Mais si nous I'essayons,
cette tentative sera un succes; c'est pour cette raison que
j'appuie la proposition.
M. Orlando (Italie), demandant la parole, s'exprime ainsi:
Qu'il me soit permis d'exprlmer ma plus fervente ad-
hesion au grand principe que nous sommes appeles au-
jourd'hui a proclamer. Je crols que nous accompllssons ainsi
le premier des engagements, et le plus solennel, que nous
avons pris envers nos peuples, lorsque nous leur avons de-
mande d'immenses efforts pour cette immense guerre, en-
gagement dont la contre-partie etait la mort, des sacrifices
sans nom et des douleurs sans llmltes. Nous accomplissons
done notre devoir en falsant honneur a cet engagement sacre.
C'est beaucoup, mais ce n'est pas tout. II faut y apporter
la spontaneite d'esprit et, si Von me permet cette expression
mystique, la purete des intentions. Ce n'est pas dans un
sentiment de mesquine fatuite natlonale, mals seulement pour
vous mieux montrer que I'esprit du peuple italien est tout
a fait propre a accepter spontanement et Integralement ce
principe, que je me permets de rappeler ici les grandes tra-
ditions juridiques de mon peuple et sa vocation pour le
Droit. Or, le Droit, ce n'est pas seulement la defense d'un
ordre -fonde sur la justice contre toute violence ; c'est aussi
la forme exterjeure, obllgatoire, garantle par I'fitat, de ce
principe essentiel qui constitue la base meme de I'existence
de la societe humaine, c'est-a-dire le principe de la co-
operation sociale. Je crois done que la formule qui nous
est proposee est tres heureuse, puisqu'elle n'offre pas seule-
ment des garantles contre la guerre, mais c^u'elle envisage
aussi cette cooperation entre les Nations qui est la veritable
integration du Droit.
'■: ■■X
^■ir!r
1' ;■
«ii|r
Il6 DOCUMENT 231
Monsieur le President, Messieurs, c'est aujourd'hui un
grand moment, une grande date historique, parce que c'est
seulement des aujourd'hui que commence, que nait le droit
des peuples. Et puisque cette naissance a lieu dans cette
France genereuse et glorieuse qui a proclame et impose par
son sang et par son genie les droits de I'homme, ce presage
me parait heureux. Quod bonum felix faustumque sit.
M. Leon Bourgeois (France) prend la parole en ces termes:
Je suis profondement reconnaissant a M. le President du
Conseil des Ministres frangais de m'avoir fait I'lnsigne hon-
neur de me charger de prendre la parole pour parler au
nom de la France. II est probable que ce sont les souvenirs
de la Conference de la Haye qui I'ont amene a cette designa-
tion; j'en reporte par consequent I'honneur sur les tres nom-
breux CoUegues ici presents dont j'ai ete le collaborateur en
1899 et en 1907.
M. le President Wilson disait tout a I'heure cette elo-
quente et forte parole, que nous ne sommes pas ici, que vous
n'etes pas ici. Messieurs les Delegues, les Representants
seulement des Gouvernements, mais les Representants des
Peuples. Que veulent les peuples a I'heure actuelle, et que
veulent par consequent les Gouvernements veritablement
libres, veritablement representatifs, veritablement demo-
cratiques, c'est-a-dire ceux qui veulent necessairement ce que
veulent leurs peuples eux-memes? lis veulent que ce que
nous avons vu pendant ces quatre annees horribles ne se
renouvelle plus a la face du monde. Ce qu'ils veulent,
c'est ce que veulent toutes les victimes de cette guerre; ce
qu'ils veulent, c'est ce qu'ont voulu, en exhalant leur dernier
soupir, ceux qui sont morts pour la Liberte et pour le Droit.
Ceux-la ne se sont pas battus seulement pour defendre leur
Patrie, ils s'etaient unis de tous les points du monde libre
pour cette croisade dont a parle si justement M. le President
Wilson, et ils savaient qu'ils mouraient non seulement pour
leur pays, mais pour la Liberte universelle et pour la Palx
universelle. Pour la Paix universelle: tout a I'heure M. le
Premier d'Angleterre decrivait avec une eloquence saisls-
sante le tableau des rulnes et des desolations dont il a ete
le temoin; ces ruines, ces desolations nous les avons con-
statees et vous les avez vues bien loin du point de depart du
conflit qui a ouvert les hostilltes, car en effet, desormals, il
n'est pas un conflit local qui puisse etre circonscrit; en quelque
;■ S.
If:
if
DOCUMENT 231 117
£tat du monde que naisse la difficulte, soyez-en persuades,
c'est le monde tout entier qui est en danger. II y a une telle
interdependance dans les relations de tout ordre qui existent
entre les nations, une telle interdependance des conditions
economiques, des conditions financieres, des conditions
morales et intellectuelles que, je le repete, chaque fois qu*une
blessure est faite sur un point quelconque de I'organisme,
c'est I'organisme tout entier qui risque d'etre empoisonne.
II y a une seconde raison qui fait qu'il n'est plus possible
que de pareils spectacles soient encore donnes a I'Humanite.
M. le President Wilson faisait tout a I'heure allusion a ces
redoutables progres de la science qui etait detournee de son
objet propre, lequel est de donner sans cesse a I'Humanite
plus de bien-etre, plus de certitude du lendemain, plus d'esr
perances dans I'avenir et qui etait employee aux oeuvres les
plus redoutables et les plus miserables, c'est-a-dire aux oeuvres
de destruction. Or, la science tous les jours multiplie ses
progres et ses conquetes; tous les jours, elle perfectionne
ses moyens d' action sur le monde et, etant donne ce que nous
avons vu pendant ces cinq dernieres annees, ce qui a ete pro-
duit de redoutable et de destructif en mecanique, en balis-
tique, songez a ce que serait d'ici quelques annees la destruc-
tion nouvelle dont on pourrait etre menace I
Alors, nous avons le droit d'envisager ce probleme de
conscience qui nous passionne tous, a savoir ce que nous
devons faire pour concilier les interets particuliers de nos
peuples, que nous ne pouvons oublier, avec ceux de la Patrle
commune, de I'Humanite tout entiere.
Nous avons a rentrer en nous-memes et a refiechir a
cette parole, que je considere comme une parole de verlte
superieure, a savoir que, de tous les interets vitaux que nous
pouvons considerer, il y en a un qui est superieur a tous les
autres, qui englobe tous les autres, sans la defense et la pro-
tection duquel tous les autres sont en peril: I'interet de la
Patrie commune.
Je me rappelle, lorsque je parle de drames de la con-
science, les scrupules qui, autrefois, dans les Conferences de
la Haye, retenalent meme les representants des peuples les
plus llbres, les plus animes du sens democratique, les plus
resolus a preparer la Paix. lis se disaient : nous devons re-
server cependant notre honneur et nos Interets vitaux.
C'etalt la peut-etre ce qui retardalt la formation de ce Hen
que nous allons nouer aujourd'hul. Nous savons maintenant
Il8 DOCUMENT 231
qu'il y a un interet vital que nous devons avant tout consider-
er et defendre : c'est Tinteret de la Paix universelle fondee
sur le Droit, sans laquelle aucun des interets les plus vitaux
de nos patries particulieres, grandes ou petites, ne cesserait
d'etre menace et detruit.
Comment arrivera-t-on a reallser ce qui, il y a quelques
annees a peine, etait encore considere comme un reve ? Com-
ment ce reve apparait-il comme une realite prochaine dans
les esprits des hommes d'fitat ici presents et qui sont des
realistes, ayant le droit et le devoir de ne pas se laisser aller
aux theories genereuses, si sedulsantes qu'elles puissent etre?
Comment se fait-il qu'aujourd'hui ces hommes d'£tat soient
assis autour de cette table, animes d'une pensee commune? —
car il n'y a pas de doute que vous voterez tout a I'heure a
I'unanimite les propositions qui vous seront faites. Com-
ment se fait-il que ces hommes d'fitat, ces realistes, puissent
arriver a considerer comme tangible, realisable dans un temps
prochain, ce qui, autrefois, apparaissait comme un reve? Si
Ton se reporte a I'histoire de ces trente dernieres annees,
notamment a cette Conference de la Haye, dont je vous de-
mande pardon de parler encore, on s'apergoit que, si elle n'a
pas produit tous les resultats qu'on en attendait, elle en a
cependant produit un certain nombre. Les membres des
divers Gouvernements peuvent se souvenir que les institu-
tions de la Haye ont ete, a trois reprises, efficaces et que,
dans des differends — je n'en dis pas davantage — qui pou-
vaient troubler les relations entre divers fitats, les arbitrages
de la Haye ont reussi a aplanir des difficultes et a retablir
I'harmonie. Je puis meme rappeler qu'entre la France et
I'AUemagne, il y eut un conflit, Taffaire de Casablanca, —
dont la gravite pouvait etre grande; non seulement pour les
deux pays, car, comme je le disais, les conflits partiels en-
trainent parfois un conflit universel, — ou un arbitrage est
intervenu, qui a sauvegarde completement I'honneur de la
France et qui a permis de ne pas tirer I'epee.
I 1^ Comment done cela n'a-t-il pas pu durer, ou plutot, com-
'il'^K ment les institutions de la Haye n'ont-elles pas reussi a em-
p'JJl' pecher le conflit terrible dont nous sortons? Cela tient a
deux causes: vous allez, ces jours-ci meme, faire dlsparaitre
I'une d'elles. Les Conferences de la Haye avaient lieu entre
nombreux fitats, mais ceux memes qui etaient animes d'une
veritable bonne volonte etaient bien obliges de reconnaitre
que, sur la carte du monde, les frontieres de divers pays
I' i ^
1;, ■■'"
.'■ ''■■ '
DOCUMENT 231 119
n'etaient pas ce qu'elles auraient du etre: quand nous de-
liberions la-bas, nous ne pouvions pas, nous, Frangais, oublier
qu'il y avait une partie de la France qui ne jouissait pas de la
liberte; vous ne pouviez pas, vous. Messieurs les Represen-
tants du Royaume d'ltalle, oublier qu'il y avait encore des
provinces hors de la loi italienne. Comment vouliez-vous
qu'une organisation Internationale, quelque parfaite qu'elle
ait pu etre, fut veritablement efficace si, au moment de son
application, elle devait rencontrer, comme le pied rencontre
un obstacle sur la route, cette question redoutable de Tirre-
dentisme, comme disent nos amis d'ltalie, de revendication
nationale, comme nous disons?
Vous allez etablir un etat de fait conforme aux prin-
cipes du droit; vous allez fixer les frontieres conformement
aux voeux des populations elles-memes et vous allez donner
pour limites a chaque pays ce que doit lui donner le Droit
lui-meme. Alors, vous pourrez faire ce que nous n'avons
pas pu accomplir. Vous y ajouterez ce que nous n'avons pas
pu faire non plus, des obligations, car vous vous rappelez —
ce fut un fait historique bien significatif — comment se group-
erent les divers fitats, et nous avons pu voir ceux qui ne vo-
taient pas avec nous se rencontrer contre nous sur le champ
de battaille; les Allies contre le Droit etaient deja les Allies
contre le Droit I
Vous qui avez combattu pour le Droit, vous allez creer
une organisation, etablir des sanctions, en assurer I'execu-
tion. Ayant etabli I'obligation de I'arbitrage, ayant regie
d'une fagon methodique, progressive et sure, les sanctions
necessaires pour assurer I'obeissance a la volonte commune
des Nations civillsees, vous pourrez fafre oeuvre solide, dura-
ble, et vous pourrez entrer avec certitude et tranquillite dans
le temple de la Paix.
Ce n'est pas I'heure de discuter ici les voies et moyens,
mais je m'empresse de dire, au nom du Gouvernement de la
Republique frangaise, que tout ce qui pourra etre fait pour
mener aussi loin que possible sur la route I'unanimite des
peuples libres, nous devons le tenter et le vouloir.
Nous ajouterons certalnement aux mesures d'ordre ju-
ridique qui ont pour but de faire regner le Droit et d'assurer
la liberte de chacun, — ici je me tourne vers M. le Premier
Ministre Italien qui disait justement: C'est une cooperation
a la Paix; — vous ajouterez toutes les mesures qui constltue-
ront entre fitats les cooperations necessaires au point de
I20 DOCUMENT 23 1
vue de ces interets innombrables dont je disais tout a I'heure
I'interdependance. Cette interdependance devient chaque
■i jour plus etroite. Et il ne s'agira pas seulement d'arreter
. ' les conflits venant de naitre, mais de les empecher de naitre.
ji; Je crois avoir ainsi traduit le sentiment commun en
Ij n'allant pas plus loin dans mon expose. Il me suiRt d'avoir
;' montre avec quelle ardeur profonde la France se joint a
I) ceux qui, tout a I'heure, ont propose la creation de cette
1^ Ligue des Nations. M. le President Wilson disait que cette
■;i question etait au coeur meme de I'Humanite. Cela est vrai.
; j II disait qu'il fallait avoir un oeil constamment ouvert sur
I cette Humanite, un oeil vigilant qui ne se ferme jamais. Eh
I bien, je terminerai en rappelant encore un souvenir de la
ft Haye : Quelques-uns ont dit que nous avions entendu la les
premiers battements du coeur de I'Humanite. La voici
,■ maintenant vivante, bien vivante ; que, grace a vous, elle vive
t\ eternellement !
i ji M. Hughes (AuSitralie) ayant demande s'il serait possible de
I discuter le projet lorsqu'il sera mis au point, le President lui repond
f! ' que les membres de la Conference auront toute liberte pour le faire.
Le President donne successlvement la parole aux Delegues de
diverses Puissances, qui s'associent en ces termes au projet de reso-
lution :
M. Lou (Chine) :
Au nom de la Delegation chinoise, j'ai I'honneur d'ap-
puyer de tout coeur la resolution proposee. La Chine, tou-
jours fidele a ses obligations et hautement interesses au
maintien de la paix mondiale, s'associe completement au des-
sein eleve de cette resolution tendant a creer une coopera-
tion internationale, qui assurera I'accomplissement des obli-
gations Internationales contractees, Elle fournira des sauve-
gardes contre la guerre. Je suis heureux d'assurer a la Con-
JvJ. ference que la Republique de Chine aura toujours le plus
t i >):,j^ vif desir de cooperer avec les autres £tats a I'organisation et
' >jl I'etablissement d'une Ligue des Nations qui donnera a
illf ' toutes, grandes et petites, les garantles effectives de leur in-
''i f!>' tegrite territorial, de leur souverainete politique et de leur
Independance economique fondees sur une justice impar-
tiale.
I J
ij[i %
1:1'
Si I
DOCUMENT 231 121
M. Dmowski (Pologne) ;
Je prends la parole, non seulement pour appuyer le
projet de resolution, mais pour exprimer une reconnaissance
profonde pour cette grande initiative. Je le fais, non seule-
ment comme representant d'une partie de THumanite qui a
souffert non moins que celles qui ont souffert le plus, et qui
nourrit I'espoir que de telles souffrances ne se repeteront
plus, que ce qui n'est pas detruit dans cette guerre restera
conserve pour les generations pacifiques de I'avenir.
Je le fais aussi comme Representant d'un pays situe dans
la partie du monde ou les sources du danger pour la paix
dans I'avenir sont plus grandes qu'autre part, 011, aujour-
d'hui, apres la conclusion de I'armistice, la guerre continue,
du pays qui est a I'heure presente expose de trois cotes au
danger et qui est force de faire la guerre sur trois fronts.
Si nous avions une institution comme celle qui est proposee
aujourd'hui et de nature a offrir des garanties internationales
de paix, nous ne serions pas dans cette situation dangereuse.
J'exprime cette gratitude au nom du pays qui a besoin,
peut-etre plus que tous les autres, des garanties internation-
ales de paix, et qui accueillera le projet de la Ligue des Na-
tions avec le plus d'enthousiasme.
M. Hymans (Belgique) :
Messieurs, je n'ai pas demande la parole pour discuter
les idees exprimees dans le projet de resolution, auxquelles la
Delegation beige, naturellement, adhere de plein coeur, et
qui ont ete si noblement developpees dan« cette Assemblee.
J'ai demande la parole seulement sur une question d'ordre
pratique et qui est, je pense, d'interet general.
La Conference, aujourd'hui, organise la methode de ses
travaux et sa procedure. Je voudrais demander une explica-
tion sur la derniere phrase du projet de resolution, qui vise
la representation des Puissances dans la Commission
chargee d'etudier le projet de constitution d'une LIgue des
Nations. Le projet dit que la Conference nomme une Com-
mission representant les Gouvernements associes pour
elaborer dans le detail la constitution et pour determiner les
attributions de la Ligue. . . .
Le President repond a M. Hymans que les explications qu*il
va foumir lui donneront sans doute satisfaction.
122 DOCUMENT 23 1
Personne ne demandant la parole au sujet de la resolution sur
la Societe des Nations soumise a la Conference par le Bureau, cette
resolution est adoptee a Punanlmite.
Le President repond alors a la question soulevee
Mode
denomination par I'honorable Minlstre des Affaires etrangeres de
des ^ ^
Commissions. Belgique, sur le mode de nomination de la Commis-
sion chargee d'elaborer le projet de constitution de
la Societe des Nations :
Les Grandes Puissances, conformement a la motion, ont
designe chacune deux Delegues pour faire partie de la Com-
mission. II a ete decide que cinq Delegues, a elire globale-
ment par les autres Puissances, representeraient ces Puis-
sances dans la Commission. Ceci veut dire que vous etes in-
vites a vous reunir ici, par exemple le 27 Janvier, si ce jour
vous convient, a 2 ou 3 heures, pour vous entendre entre
vous et nommer les cinq Delegues des autres Puissances.
Je ne dois pas vous cacher que nous vous demanderons
un vote de meme nature pour la constitution d'autres Com-
missions. Vous aurez done plusieurs elections a faire a la
fois.
Sur cette question de constitution des Commis-
Composition sions, les Delei?ues d'un certain nombre de Puissances
des
Commissions. demandent la parole et exposent tour a tour le point
de vue de leur pays.
M. Hymans (Belgique) :
La reponse que I'honorable President a bien voulu me
faire souleve la question de la constitution de toutes les
Commissions qui vont etre nommees aujourd'hui. Ceci me
permettra, je pense, de m'expliquer sur la question tout en-
'jl 'ji tiere: je le feral tres rapldement d'ailleurs.
II J Sauf pour la Commission chargee d'etudier la question
i I ; de la reparation des dommages de guerre, le systeme gen-
ui|l eral, d'apres ce qu'a dit M. le President, est de donner deux
'J-v^i Delegues a chacune des Grandes Puissances, ce qui leur at-
' ' ,'^;' tribue dix Delegues, et cinq Delegues en tout a un groupe, a
une collectivite formee de dix-neuf Puissances, que Ton a
rangees dans la categoric des Puissances ingenieusement
denommees "Puissances a interets particuliers."
■|i:
:.l
'':'
DOCUMENT 231 123
Je ne veux point parler au nom des Delegues d'autres
pays;^ je parlerai seulement au nom du mien, au nom de
la Delegation beige.
On nous a donne, par exception, ainsi qu'a la Serbie, a
la Grece, a la Pologne et a la Roumanle, deux Delegues —
deux a chacune de ces Puissances — dans la Commission
chargee d'etudier la question de la reparation des dom-
mages de guerre. En dehors de cette Commission, les dix-
neuf Puissances dites "a interets particuliers" auront a nom-
mer ensemble, d'apres un systeme que Ton n'indique pas,
qu'il faudra qu'elles trouvent, cinq Delegues: on ne dit pas
si ce sera selon la representation proportionnelle ou autre-
ment.
Nous nous permettrons, nous. Beiges, d'exposer a la
Conference le voeu que voici : d'abord, en ce qui concerne la
Commission pour 1' etude de la constitution de la Ligue des
Nations, ensuite pour la Commission chargee d'etudier la
legislation internationale du travail, nous voudrions que la
Conference voulut bien accorder a la Belgique, dans chacune
de ces deux Commissions, deux Delegues.
En ce qui concerne la Commission pour la constitution de
la Ligue des Nations, nous pensons que nous y avons droit,
en raison de notre position internationale, de notre situation
politique et meme geographique, qui nous a exposes, et qui
peut encore nous exposer dans I'avenir, a de graves perils.
En ce qui concerne la question de la legislation inter-
nationale du travail, il n'en est pas qui puisse nous interesser
davantage. La Belgique, petite par son territoire, figure au
nombre des Grandes Puissances — elle y figurait, j'espere
qu'elle y figurera encore dans peu de temps, apres sa re-
construction, — au nombre des grandes Puissances commer-
cials, productrices et industrielles du monde.
Je ne fatiguerai pas la Conference en lui produlsant des
statistiques ; mais nous sommes, a ce point de vue, parmi les
cinq ou six premieres Puissances. Nous avOns une population
industrielle considerable. Dans certains domaines, nous
sommes parmi les toutes premieres: je citerai seulement
I'industrie du charbon, I'industrie du zinc, la production du
fer, la production de la fonte, etc. N'insistons pas.
J'estime qu'il serait equitable de donner a la Belgique,
dans les deux Commissions dont je parle, une double repre-
sentation, deux Delegues.
Pour le surplus, 11 reste trols Commissions: Fune, au
124 DOCUMENT 23 1
sujet du regime des ports et des voles de communication;
I'autre, qui s'occupera des crimes commis au cours de la
guerre et des sanctions a prendre contre ces crimes; la
troisieme, enfin, sur les dommages de guerre. Mais,
dans celle-ci, nous avons une representation que
nous jugeons equitable. II n'en reste done que deux:
celle des ports et des voies de communication par fer et par
eau et celle des crimes commis au cours de la guerre et des
sanctions que ces crimes appellent.
Je demande qu'il solt reconnu, des a present, que la Bel-
gique aura un Delegue dans chacune de ces deux Commissions
et je ne crois par depasser ainsi la limite de ce qu'il est raison-
nablement permis de demander. La Belgique possede un
des trois premiers ports du continent europeen. EUe a un
reseau de voles ferres qui est le plus dense de I'Europe. Les
besolns de sa production et de son commerce I'lnteressent
directement a tout le systeme des communications Interna-
tionales. II n'est certainement pas exagere de demander que,
pour I'etude d'un probleme aussi grave, la Belgique ait un
Delegue. Je demande a la Conference de le decider.
Quant a la question des crimes commis pendant la guerre
et des sanctions a y appliquer, qui pourrait contester que nous
ayons droit a etre representes dans la Commission, alors que
notre pays a ete le premier envahi, le premier submerge par
rinvaslon, que sa neutrallte a ete violee, contrairement au
traite signe par Tennemi, alors que c'est sur notre sol, comme
sur le sol serbe, qu'ont ete commis quelques-uns des crimes
les plus abominables que Ton puisse reprocher a I'ennemi?
Je pense done que notre demande n'est pas excessive.
Je ne parle que pour nous. Je ne veux prejudicier aux
droits et aux interets d'aucun des autres pays. Je pense ne
point les froisser en formulant cette reclamation au nom de
le Delegation beige seulement.
En resume, je demande qu'il soit attrlbue a la Belgique,
comme dans la Commission des dommages de guerre, deux
. . Delegues dans la Commission pour la constitution de la
', V| Societe des Nations, deux Delegues dans la Commission de
^>ij/|i la legislation Internationale du travail, un Delegue dans la
,v'y*' Commission relative au regime des ports et un Delegue dans
i-iji^lj la Commission constituee pour I'examen des crimes commis
par I'ennemi et des sanctions a y appliquer.
Je fais appel a I'equite des Grandes Puissances et a celle
de M, le President de la Conference*
'f^ii
y ■'
m ^
i\ % ;
DOCUMENT 231 '^^ ' 1 25
M. Calogeras (Bresil) :
C'est avec une certaine surprise que j'entends dire a
chaque instant: "II a ete decide ceci, il a ete decide cela."
Qui a pris une decision? Nous sommes une Assemblee
souveraine, une Cour souveraine : il me semble que I'organe
normal de nos decisions, c'est la Conference elle-meme.
Or, il resulte de ce qui vient d'etre dit que des attributions
ont ete faites, que des representations dans des Commissions
sonts prevues, sans que des interets extremement respecta-
bles aient pu se faire entendre. II est inutile de dire que
j'adhere de tout coeur au principe de la Ligue des Nations.
J'ai I'honneur de representer un pays qui, dans sa Constitu-
tion, prevoit en termes expres I'interdiction absolue de faire
aucune guerre de conquete; c'est la une idee seculaire chez
nous, enracinee par la tradition. Je suis done de tout coeur
acquis a I'idee de la Ligue des Nations.
Mais si, d'un autre cote, j'envisage I'organisation pro-
jetee des Commissions et la maniere dont les interets de
mon pays peuvent y etre representes, je dois faire remarquer
que nous avons des lois, je dirai meme des textes d'ordre
constitutionnel, qui ne nous permettent de donner a per-
sonne des pouvoirs pour nous representer.
Je fais done appel a i'equite de Monsieur le President et
des membres du Bureau de cette Conference. Je leur de-
mande que, au moins dans ]a Commission qui s'occupera de
la Ligue des Nations, ainsi que dans celles qui doivent
etudier le regime international des chemins de fer et des
ports et la reparation des dommages, le Bresil ait la repre-
sentation a laquelle il croit avoir droit.
Sir Robert Borden (Canada) [dont les paroles, prononcees en
anglais, sont aussitot traduites en frangais] :
Je tiens a exp rimer ma sympathie a I'egard des Petltes
Nations qui, dans la question de la Ligue des Nations, sont
encore plus interessees que les Grandes Puissances a la crea-
tion de cette Ligue. Mais, en meme temps, je me rends bien
compte qu'il faut que le nombre des membres de Commis-
sions comme celles qu'on se propose d'instituer soit raison-
nablement limite, si Ton veut que la Conference travaille
utilement.
Je reconnais aussi que les resolutions presentees doivent,
pour produire leur effet, etre approuvees par la Conference.
Feut-etre peut-on se permettre de dire que la forme sous la-
■^ II ■'
■ i)
.ill ill )i.\
126 DOCUMENT 231
quelle la resolution dont je parle, relative a la Commission
de la Ligue des Nations, a ete presentee, n'est pas la plus
heureuse. "II a ete decide . . . ", a-t-on dit. II est naturel
que les uns et les autres demandent: par qui? par quelle
autorite cette decision a-t-elle ete prise? J'aurals cru qu'Il
eut convenu plutot de soumettre une proposition a la Con-
ference qui aurait decide du nombre des membres et de la
composition de cette Commission. SI I'on avait suivi cette
procedure, la difficulte actuelle ne se seralt pas presentee.
Et, s'il m'est permis de le suggerer, j'almerais que I'on agit
de la sorte dans I'avenlr.
Autant que je le comprends, II y a deux Conferences qui
travalllent en meme temps : la Conference des cinq Grandes
Puissances et la Conference plenlere. Je ne vols pas que,
jusqu'a present, II y ait eu une Conference quelconque des
cinq Grandes Puissances conformement a ce qui avalt ete
decide. II se peut qu'fl en solt ainsi; mals, neanmolns,
comme nous operons d'apres des regies etablies par les Rep-
resentants des cinq Grandes Puissances, II me parait haute-
ment desirable que nous nous y soumettlons. C'est pourquoi
je me permets de souhalter que, dans I'avenir, la procedure
s'Inspire de ces regies.
M. Trumbitch (Serbie) :
J'ai I'honneur de declarer, au nom. de la Delegation du
Royaume des Serbes, Croates et Slovenes, que nous appuyons
la proposition tout a fait justlfiee de I'honorable M. Hymans.
En meme temps, j'ai I'honneur de demander qu'il solt donne
a la Delegation a laquelle j'appartlens la meme representa-
tion qu'a la Delegation de Belgique.
II n*est pas necessaire que je retlenne longuement I'at-
tention de la Haute Assemblee pour justlfier le desir dont je
me fals I'interprete; les ralsons qu'invoqualt tout a I'heure
M. Hymans sont les memes a peu pres que celles qui justi-
)' V fient notre proposition.
^H. M. Veniselos (Grece) :
En ce qui concerne la Ligue des Nations, je m'associe a
la requete formulee par la Delegation beige, san toutefols
demander pour la Grece le meme traltement. Je reconnals
que tous les Petlts Pays sont des plus Interesses a P etude de
cette question; mals je dois admettre egalement que la situa-
tion de la Belgique est tout a fait speciale, en raison de son
DOCUMENT 231 ^ 127
voislnage avec TEmpire allemand qui a dechaine cette
guerre, et pour les autres raisons donnees par M. Hymans.
Je ne demande done pas une representation speciale pour
mon pays dans cette Commission et me borne a declarer que
je me tiens a la disposition de cette derniere, lorsqu'elle sera
constituee, pour faire connaitre mes idees a cet egard.
En ce qui concerne la reparation des dommages, je dois
remercier les Grandes Puissances pour la representation
qu'elles ont accordee a mon pays.
Quant a la responsabilite des auteurs de la guerre, je
demande que Ton donne egalement a la Grece un Repre-
sentant, eu egard a ce fait que nous avons a deplorer la perte
de 3 a 400,000 hommes de nationalite grecque dans I'Empire
ottoman. II serait done juste, semble-t-il, que nous soyons
representes, afin de pouvoir soumettre a cette Commission,
puis a la Conference, notre point de vue special sur cette
question.
Je ne demande pas que mon pays soit represente d'une
fagon speciale dans la Commission relative a la legislation
Internationale du travail, car d'autres nations sont peut-etre
plus interessees que la notre dans cette question.
II serait bon, enfin, de nous accorder un Representant
dans la Commission du controle internationale des ports, non
seulement en raison de I'importance maritime de mon pays
et de I'interet special que cette question offre pour lui, mais
encore en raison de ce fait que, meme dans le territoire actuel
de la Grece, certains points pourraient etre vises par cette
partie du programme de la Conference. II serait done juste
que la Grece put, a ce point de vue, etre autorisee a faire
connaitre ses desiderata.
Je ne crols pas inutile de rappeler, en terminant, que dans
des rapports que j'ai eu I'honneur de soumettre a la Confe-
rence touchant les reclamations territoriales de mon pays,
je me declarais pret a accepter que les pays riverains de la
mer puissent donner toutes les facilites possibles aux pays
qui, places derriere eux, n'ont pas un acces si facile a la mer.
Le Comte de Penha Garcia (Portugal) :
Vous me permettrez de presenter quelques observations
sur une question qui interesse egalement les Petites et les
Grandes Puissances. J'attire d'abord votre attention sur
un fait essentlel qui decoule d'ailleurs de tous les discours
si eleves qui viennent d'etre entendus par cette Assemblee.
128 DOCUMENT 23 1
II est certain que la Ligue des Nations, question d'une si
grande importance soulevee par les Grandes Puissances et
qui interesse a un si haut degre les pays moins forts, doit in-
spirer, surtout a ces derniers, une confiance absolue en ce
qui concerne I'avenir. II est certain egalement que le respect
de nos droits, que les decisions que nous aurons a prendre,
que la cordialite de nos rapports dans cette Assemblee con-
stitueront une sorte d'avant-gout de cette Societe des Nations
a laquelle nous venons d'etre invites. Je suis certain que cette
consideration presidera aux propositions des Grandes Puis-
sances et que nos decisions seront inspirees de la hauteur de
vues et de I'esprit d'equite siiperieur qui doivent presider a
la Ligue des Nations.
II ne faut cependant pas s'exagerer I'importance de la
question de la representation dans les Commissions, car il
ne s'agit au fond que d'une methode de travail, et les per-
sonnes qui ont propose cette methode ont cru bien faire en
la proposant, parce qu'elle presente des avantages incon-
testables.
Certes, les grandes Commissions sont plus difEciles a
dinger, leur travail est parfois un peu lent ; mais, II ne faut
pas I'oublier, les travaux de ces Commissions doivent etre
d'une telle importance pour chacun des pays interesses que,
peut-etre au fond, le danger que Ton veut eviter vaut la
peine d'etre couru. Peut-etre vaut-il mieux s'arranger de
telle maniere que, dans chaque Commission, tous les Interets
soient representes et puissent se faire connaitre, afin d'ob-
tenir, un peu plus lentement sans doute, un resultat plus cer-
tain et qui nous permettra de venir, avec des precisions plus
grandes et moins d'imprevu, en seance pleniere.
J'appelle tout particulierement I'attentlon de Monsieur
le President, dont les qualites de coeur et d'equite constituent
pour nous une double garantie, sur ce point dont I'importance,
en ce qui concerne mon pays, ne lui a certalnement pas
echappe.
Pour la Commission des reparations, la non-representa-
»'\f tion du Portugal est due certalnement a un oubll, etant donne
;^}a,v que les autres pays ayant des interets particullers a cet egard
y sont tous representes, ce dont je suis fort heureux d'all-
leurs. Je rends hommage aux souff ranees et a 1' endurance de
tant de pays victimes d'une agression dont la brutalite a
souleve I'indignation universelle.
Je demande toutef ols la permission de faire observer que
',11'':'
m-
DOCUMENT 231 129
la situation du Portugal est tout a fait analogue, que nous
avons verse notre sang en France pour la cause du Droit et
de la Justice, que nous avons eu des territoires envahis en
Afrique, que nous sommes a moitie, je pourrais meme dire
completement, mines par notre effort pour la guerre. Nous
ne le regrettons pas, mais pourquoi done ne serions-nous pas
entendus, pourquoi ne serions-nous pas representes, nous
aussi, dans une Commission chargee de I'etude des repara-
tions? Encore une fois, il s'agit la, il me semble, d'un simple
oubli.
En ce qui conceme les autres Commissions, celles rela-
tives au regime des ports, a la Societe des Nations, aux ques-
tions du travail, a la sanction des responsabilites de la
guerre, offrent egalement un interet indiscutable pour le
Portugal, Mais, d'une fagon generale, je demande que le
Bureau veuille bien faire droit aux desirs si legitimes de tous
les pays qui sont representes a la Conference, de pouvoir
faire entendre leur voix partout 011 ils ont un interet particu-
lier a defendre, d'etre representes aux Commissions, de bien
vouloir placer tous ces pays sur le meme pied que les autres
par rapport a leurs droits.
M. Benes (Tcheco-SIovaques) :
Sans entrer dans le detail de la question relative a la
nomination des Representants dans les Commissions, je de-
mande la permission de presenter a la Conference les con-
siderations suivantes :
La Delegation tcheco-slovaque demande a etre repre-
sentee dans la Commission chargee d'etudier la question des
reparations et dans celle de la responsabilite des Empires
centraux. Nous appuyons cette proposition pour la raison
suivante :
La Republique tchecho-slovaque est particulierement in-
teressee dans toutes les questions qui touchent a la liquidation
financiere et economique de I'ancien Empire austro-hongrois,
car son territoire en constituait les regions les plus indus-
trielles. II serait done impossible de traiter ces questions
sans nous permettre d'apporter les elements d'informations
dont nous disposons a cet egard.
Notre Delegation porte egalement un interet special a
la question des voies internationales, terrestres et fluviales.
Notre pays, en effet, n'a pas d'acces a la mer, et il est d'une
extreme importance, pour notre future situation interna-
I30 DOCUMENT 23 1
tionale, de savoir quel sera le regime de ces grandes voies de
communication et surtout de participer a la discussion rela-
tive au regime des chemins de fer intemationaux, des voies
fluviales et des ports. C'est pourquoi nous demandons a
etre representes dans la Commission chargee d'etudier ces
questions.
La question de la Ligue des Nations presentant egale-
ment un interet majeur pour les pays entoures de tous cotes
comme le notre par les Puissances qui nous etaient toujours
hostiles, nous demandons qu'un Representant nous soit ac-
corde dans la Commission competente.
En resume, nous prions la Conference de nous accorder
un Representant pour chacune des trois Commissions ap-
pelees a discuter des questions presentant pour notre Re-
publique un interet particulier.
M. Bratiano (Roumanie) :
Le Representant de la Belgique, quoique declarant ne
parler qu'au nom special des interets beiges, a souleve une
question de principe qui est trop sentie par la Roumanie pour
que ce pays puisse passer sous silence son adhesion a cette
maniere de voir.
Je veux, pour le moment, me borner a constater Tim-
portance que ces principes presentent pour des fitats tels que
la Roumanie, sans entrer dans le detail de chacune des ques-
tions qui, je I'espere, pourra etre precise dans une discussion
supplement aire. En passant cependant, je ferai remarquer
qu'en ce qui regarde au moins Tune de ces questions, celle des
voies intemationales, la Roumanie est aux bouches du Dan-
ube, d^un grand fleuve qui interesse les communications de
toute une partie de I'Europe et que, par consequent, elle y a
des interets tres particuliers.
Mais je ne veux pas perdre de vue qu'a I'heure actuelle il
s'agit de la Ligue des Nations et que ce serait mal manifester
I'interet que la Roumanie a pour Finstitution de cette Ligue
, ,, que de ne pas me joindre aux exposes qu*ont faits les De-
|)i legues des pays qui ont pris la parole avant moi. II est cer-
')'VJ^j tain que, dans la representation d'une telle Ligue, on a eu en
vue les proportions des forces de chaque fitat ; il serait juste
de considerer, en meme temps que ces forces, les interets qui
attachent chaque fitat a I'lnstitution de cette Ligue, et alors
trouverait-on peut-etre que les petits :£tats y ont plus d'in-
terets que les grands.
',M
M
.':-\v-
yi.iyi-]
DOCUMENT 231 131
II faudrait tenir compte pour la representation dans la
Ligue de ce double point de vue.
C'est pour exprimer I'interet que la Roumanie attache
aux principes de cette Ligue que ce pays demande a etre
represente dans cette Commission.
Phya Bibadh Kosha (Siam) ;
Permettez-moi de demander, au nom de la Delegation
siamoise, si les Representants des pays qui pourraient avoir
la malchance de ne voir compris dans le nombre des cinq
delegues a elire par les autres nations aucun de leurs propres
delegues auront le droit ou I'occasion d'assister aux travaux
des Commissions qui seront chargees de traiter les aifaires
interessant directement le pays qu'ils representent, telles que
celle de la Ligue des Nations et du controle international
des ports, des voies ferres et des voies d'eau.
M. Lou (Chine) :
Je desire egalement faire appel a I'esprit d'equite des
membres de la Conference pour que les Delegues techniques
puissent largement contribuer aux travaux des differentes
Commissions. On a exprime le desir, au point de vue de la
representation par des Delegues, que le principe de Tegallte
des fitats soit la base de la Ligue des Nations. J'exprime
egalement le desir de voir la Delegation de Chine repre-
sentee dans les Commissions de legislation du travail et des
voies de communication. La Chine a, en effet, envoye a peu
pres 156,000 ouvriers chinois en France pendant la guerre,
dont a peu pres 120,000 dans les camps anglais; tous ces
ouvriers ont, indirectement, contribue a I'heureuse issue de
la guerre actuelle.
D'autre part, la Chine possede une tres longue cote mari-
time et son reseau de chemins de fer, qui la met en communi-
cation avec trois Grandes Puissances voisines, aura un tres
grand essor apres la guerre. C'est pour ces raisons que je
demande que la Delegation chlnoise soit representee dans
les deux Commissions que je viens d'indiquer.
Peut-etre me sera-t-il permis de faire une suggestion. J'ai
entendu dire par notre honorable CoUegue qui represente le
Bresil: "La Conference a decide ceci, la Conference a de-
cide cela . . . ". J'ai personellement Texperience de deux Con-
ferences de la Paix, et, tout a I'heure, M. Leon Bourgeois a
bien voulu y faire allusion. J'espere que la presente Confe-
rence f era une oeuvre beaucoup plus interessante et beaucoup
132 DOCUMENT 231
I
plus humanitaire en consacrant les efforts des deux premieres,
dans lesquelles une liste des Delegues avait ete etablie dans
les bureaux et ou chaque Delegation s'interessant au travail
d'une Commission avait le droit de designer un ou deux
membres pour y sieger.
Voila la suggestion que je me permets de faire a la Con-
ference.
M. Dmowski (Pologne) :
En raison de I'etendue du territoire polonais, du chiffre
de sa population, et du developpement economique du pays,
■' en raison aussi de ses interets politiques et de la situation
geographique tres importante de ce pays, je me permets de
' penser que la Pologne devrait avoir le droit d'envoyer un
Delegue a toutes les Commissions ou elle le jugerait utile.
J'ais pris la parole pour m'associer aux membres de
I'Assemblee qui se sont opposes a la facon dont on propose
d'elire ces cinq Delegues des Puissances a interets particuliers.
1 La multitude des voix qui viennent de s'elever demontre que
la tache de la reunion des Delegues des Puissances secon-
daires serait tres difficile, que la discussion entre eux cause-
rait, d'abord, une grande perte de temps et, ensuite, ne con-
;■; ; i tribuerait pas a creer une harmonie entre eux. Je me per-
'; [t ] mettrai de proposer que chaque Delegation fasse une de-
j mande ecrite et motivee sur le nombre de Representants
' ! qu'elle desire envoyer a chaque Commission. Je propose
1 ,1 egalement qu'il y ait une Commission superieure a toutes
lii les autres pour statuer en dernier ressort sur la composition
■'; de chacune d'elles. Nous accepterions par avance ses de-
■ ; cisions, convaincus que les interets de toutes les Puissances,
, ; ' quelles qu'elles solent, seraient pris par elle en serieuse
i^i: consideration.
I ' Le President repond en ces termes aux observations et aux sug-
; * ' gestions des Delegues :
j,U Puisque personne ne demande plus la parole, je la pren-
.,!;:. drai a mon tour pour essayer de justifier le Bureau. II en
;|;p| a besoin, car s'il avait jamais pense qu'il put satisfaire tout
le monde, il serait aujourd'hui pleinement detrompe.
Sir Robert Borden nous a reproche tres amicalement
d'avoir decide. Oui, nous avons decide, en ce qui conceme
les Commissions, comme nous avons decide de con-
voquer la Conference actuelle. Avec votre assentiment, je
'I-
* ■
-i^m-
DOCUMENT 231 133
me permets de rappeler que c'est nous qui avons decide qu'il
se reunirait une Conference a Paris et que les Representants
des pays interesses y seraient convoques. Je n'en fais pas
mystere: il y a une Conference des Grandes Puissances qui
delibere dans une salle voisine. Sir Robert Borden peut
d'autant moins I'ignorer qu'il nous a fait hier le tres grand
honneur de venir deposer devant nous sur les questions in-
teressant les Colonies britanniques.
Les cinq Grandes Puissances, dont Taction doit etre
justifiee aujourd'hui devant vous, sont en mesure de le faire.
Tout a I'heure, le Premier Ministre de la Grande-Bretagne
me rappelait qu'au jour ou la guerre a cesse, les Allies
avaient sur les champs de bataille douze millions de soldats
combattants : c'est un titre.
Nous avons perdu des morts, nous avons des blesses qui
se comptent par millions, et si nous n'avions pas eu devant
nous la grande question de la Ligue des Nations, peut-etre
aurions-nous ete egoTstement conduits a ne consulter que
nous-memes. C'etait notre droit.
Nous n'avons pas voulu le faire et nous avons convoque
Tuniversalite des Nations interessees. Nous les avons con-
voquees, non pas pour leur imposer nos volontes, non pas
pour leur faire faire ce qu'elles ne veulent pas faire, mais
pour leur demander leur concours. Voila pourquoi nous les
avons invitees a venir ici. Mais encore faut-il savoir la
maniere de mettre en oeuvre ce concours.
M. Lloyd George a eu la cruaute de rappeler, il y a
quelques jours, que je n'etais plus tres jeune. Je suis entre
dans les Assembles parlementaires en 1871 pour le premiere
fois; j'ai vu beaucoup de comltes, beaucoup de commissions,
j'ai assiste a beaucoup de deliberations, et j'ai remarque,
comme la plupart d' entre vous ont pu le faire, que plus les
comites sont nombreux, moins il y a de chances d'ab^utir.
Or, Messieurs, permettez-moi de vous le dire : derriere
nous, il y a une chose tres grande, tres auguste, tres im-
perieuse a de certaines heures, qui s'appelle I'opinion pub-
lique. EUe ne nous demandera pas si tel ou tel fitat a
ete represente dans telle ou telle Commission; cela n'interesse
personne. Elle nous demandera si nous avons about! et ce
que nous avons fait pour la Ligue des Nations si eloquem-
ment revendiquee aujourd'hui par M. le President Wilson,
M. Lloyd George, M. Bourgeois et M. Orlando.
Quel crime avons-nous commis? Nous avons decide
que, pour nous, nous nommerions chacun deux Delegues a
) !
134 DOCUMENT 231
la Commission de la Ligue des Nations. Je demande a M.
Hymans et a tous ceux qui Tent suivi la permission de rester
dans la question. Aussitot que, par liberalisme, je lui ai
permls d'en sortir, aussitot que la porte fut ouverte, tout
le monde s'est precipite et on a tout discute, hormis ce qui
etait en discussion. Mon devoir est de conduire les travaux
de la Conference pour les faire aboutir a une fin.
Nous avons done decide de nommer chacun deux Dele-
gues, puis, qu'on me le pardonne, nous avons decide de vous
inviter a nommer en bloc cinq Delegues.
Si vous ne trouvez pas que ce soit assez, je ne prendrai
pas sur moi de decider entre vous tous, puisque chacun de-
mande un supplement; mais je ferai une proposition: c'est
de nous nommer tous, de sorte que chacun au moins aura
son droit.
Qu'est-ce a dire? est-ce qu'un droit a ete denie a une
Puissance queiconque? Vous connaissez tous le fonctionne-
ment des Comites, vous avez le droit d'aller devant tous les
Comites qu'il vous plaira. M. Bourgeois, qui est ici, n'est
pas un plenipotentiaire. II a pris la parole avec I'autorlte
qui lui appartient, et vous avez ete heureux de I'entendre.
J'ai entendu M. Veniselos et un grand nombre d'entre vous
dire: "Notre voix ne sera pas entendue." Comment pou-
vez-vous nous faire un pareil reproche? Votre voix sera
d'autant mieux entendue que nous constituons un organe
pour vous entendre. Vous pouvez etre entendus dans toutes
les Commissions et dans tous les Comites et, enfin, n'etes-
vous pas surs que votre voix aboutira a la Conference, puis-
que vous-memes y serez presents et pourrez y prendre la
parole?
Songez, Messieurs, aux consequences des propositions
qui nous sont faites. Comme le disait tout a I'heure M.
Dmowski, les demandes seront faites par ecrit; nous ras-
semblerons ces ecrits et nous passerons ensuite une ou deux
'',, -j ' heures dans notre Comite pour trouver la meilleure maniere
de sortir de ces embarras. Mais cela n'est rien encore; ce
qu'il faut, ce sont des resultats tangibles. L'armistice main-
dent encore un grande nombre de millions d'hommes sur
le front: il faut decider sur des questions, non de procedure,
mais de fond. Je demande que chacun d'entre vous re-
flechisse aux consequences des propositions qui nous viennent
de tous les points de I'Assemblee. Si nous abandonnons
aujourd'hui la question de fond pour nous livrer a des
debats sur la procedure, je crols pouvoir affirmer que dans
f '
li r;.
I
DOCUMENT 231 135
huit, quinze jours, rien ne sera resolu, et la question de fond
n'aura pas ete examinee.
Or, le public attend. Cette situation me parait impos-
sible. Je demande avec M. Dmowski que ceux d'entre vous
qui ont des observations a faire les renvoient au Bureau.
Mais je ne demande pas qu'un Comite special prononce.
Pourquoi ne dirais-je pas ce que je pense? . . . Je
ne reconnais pas au Comite le droit d'imposer sa volonte a
ces cinq Puissances. J'ai le merite de dire ma pensee: je
suis presse d'aboutir et je voudrais bien qu'aujourd'hui vous
prononciez.
Permettez-moi de faire une observation qui pourrait
provisoirement concilier tout le monde. Vous pourriez
voter les propositions que nous vous presentons aujourd'hui,
en reservant un droit d'amendement qui est dans la liberte
de toutes les Assemblees. Ne sortons pas d'ici, Messieurs,
sans avoir emis des votes positifs, et ce soir meme, M. le
President Wilson, M. Bourgeois, Lord Robert Cecil, tous
ces Messieurs se mettront a I'oeuvre et, des demain, les Com-
missions commenceront de fonctionner. Mon but, qui est
aussi celui de mes Collegues des autres Puissances, est d'or-
ganiser des Commissions le plus tot possible afin de leur
donner du travail. Tous ceux d'entre vous qui voudront
paraitre devant elles iront; celui qui aura des modifications
a presenter les demandera; suivant la proposition de M.
Dmowski, elles seront etudies et feront I'objet de rapports.
Nous aurons au molns I'avantage de commencer la besogne
immediatement.
Nous vous proposons de nommer un certain nombre de
Commissions. II y en aura deux a nommer a la prochaine
seance, Tune economlque, I'autre financiere; apres quoi,
toutes les Commissions seront au travail, I'ordre du jour
sera attaque de fa^on utile, la discussion efficace sera com-
mencee.
Je vous demande pardon. Messieurs, de parler si long-
temps, mais toutes ces observations m'ont paru necessaires.
Songez a la besogne immense qui nous attend; songez-y.
M. le President Wilson I'a dit tout a I'heure dans une
admirable phrase qui resume toute la question: nous pou-
vons dire qu'avec nos soldats nous n'avons pas voulu seule-
ment gagner la guerre, mais gagner une cause. Cette cause,
nous en avons le poids, la responsabilite, dans les mains.
Certes, les questions de procedure ont aussi leur importance :
elles seront reglees en cours de route. Si on ne trouve pas
;t ;
1:36 DOCUMENT 231
que le nombre des Commissions soit sufEsant, on I'aug-
mentera, — nous vous laissons plelne liberte pour cela; — mais
rappelez-vous, Messieurs, que plus les Commissions sont
nombreuses et moins on aboutit.
Messieurs, depuis que je suis dans ces discussions, j'ai
fait le sacrifice d'un certain nombre d'opinions personnelles.
Je I'ai fait gaiement, avec la sensation que je faisais quelque
chose de blen et d'utile a la cause commune. C'est la re-
flexion que je me faisais en entendant tout a I'heure les
nobles paroles de M. le President Wilson et de M. Lloyd
George.
Soyons tous, Messieurs, animes du meme esprit; le Bu-
reau n'a songe a nuire a qui que ce soit au monde: au con-
traire, il voudrait vous reunir tous dans le meme faisceau.
Commencons done immediatement le travail; pendant ce
temps, les reclamations seront presentees et votre Bureau
sera a meme de travailler.
M. Hymans (Belgique) declare ne rien vouloir dire de plus,
afin de ne point donner prise aux reproches du President de la Con-
ference, et se borne a la simple observation suivante:
Je propose purement et simplement que la Conference
vote les resolutions qui lui sont soumises. Le Bureau a en-
tendu les observations qui se sont produltes dans cette As-
semblee. Comme je I'ai dit tout a I'heure, j'ai confiance dans
son equite et je viens lui demander d'en tenir compte, de
ij: i revoir la composition des Commissions et d'arbltrer.
; i! : M. Klotz (France) depose sur le bureau de la Conference, pour
etre renvoye a la Commission qui vient d'etre instltuee, le projet
d'une section financiere de la Societe des Nations.
Le President soumet a la Conference les resolutions relatives
f,j i * a la constitution des quatre autres Commissions prevues a Tordre
du jour, et pour lesquelles les Puissances a interets particuliers ont
a nommer leurs Delegues.
II rappelle que la . deuxieme Commission est
Conmiissioii chargee d'etudler la responsabilite des auteurs de la
responsabilitfis. guerre et les sanctions (Annexe II) et que les Petites
Puissances ont a elire cinq Representants dans cette Commission,
r
a,-
ii-K;
DOCUMENT 231 137
Repondant a une observation de M. Calogeras (Bresil) au sujet
du nombre de Representants de son pays, le President fait remarquer
que le Bresil n'a pas a se plaindre du nombre de Delegues qui lui
ont ete accordes et que ce n'est pas parce que Ton ne fait pas
partie d'une Commission qu'on n'a pas les memes droits que ceux
qui la composent.
A la troisieme Commission, qui a pour objet la
K . reparation des dommages (Annexe III), la Beigique,
. des la Grece, la Pologne, la Roumanie et la Serbie sont
reparations.
Invitees a designer chacune deux Representants.
Sur le texte de la resolution relative a cette Commission, M.
Klotz (France) fait observer qu'il semble y avoir une lacune non
sans importance. II y est dit que cette Commission aura a examiner
diverses questions: i° le montant des reparations que les Puissances
ennemies devront payer; 2° leur capacite de payement; 3° la
methode, la forme et I'epoque a laquelle ce payement devra etre ef-
fectue. A ce dernier paragraphe, il conviendrait d'ajouter: "et les
garanties qui devront en assurer Texecution."
L'amendement propose par M. Klotz est renvoye a Texamen
du Bureau.
Pour la quatrieme (Legislation Internationale
4° et 5
Commissions du travail, — Annexe IV) et la cinquieme Commis-
du travail /t^, . ■ • 1 j • j»
et des ports. sion (Regime mternational des ports, voies d eau et
voies ferrees, — Annexe V), les Puissances a interets particuliers
auront a designer pour le moment cinq Delegues.
Le President propose que ces designations aient
Dateduscrutin.
lieu le 27 Janvier.
M. Hymans (Beigique) ayant demande que le Secretariat ex-
amine la question et prenne une decision quant au nombre de Repre-
sentants a designer, le President repond que c'est une question de
la competence du Bureau et non du Secretariat. II ajoute :
Je demande qu'on lalsse au Bureau sa liberte d'action.
Si vous ne voulez pas nommer vos Delegues maintenant, si
\i;-
1'
i
138 DOCUMENT 231
vous preferez attendre, solt; mals permettez-moi de vous
dire qu'il y a, en ce moment, des questions graves qui nous
absorbent: la question polonaise est au premier rang; lundi,
nous avons des Delegues a entendre. Si vous demandez
que I'election soit ajournee, elle le sera, mais je suis oblige
de vous dire que les Delegues des Grandes Puissances ne se
considereront pas comme ajournes eux-memes et il n'y aura
d'avantages pour personne.
Pour nous, nous croyons que la besogne presse et nous
demandons le concours de toute la Conference pour nous
aider a aboutir.
M. Hymans (Belgique) declare etre d'accord et demande I'ar-
bitrage du Bureau ; on se referera a sa decision.
M. Bratiano (Roumanie) reconnait que tout le monde est
d'accord pour accepter de se reunir le 27 Janvier a I'effet de nommer
des Delegues qui pourront se mettre tout de suite au travail, mainte-
nant qu'il est possible de faire examiner les principes.
Le President met aux voix la proposition du Bureau : que les
Delegues des Puissances a interets particuliers se reunissent le 27
Janvier, a 15 heures, pour elire leurs Representants.
Cette proposition mise aux voix est adoptee.
Voir, a I' Annexe FI, le proces-verbal de la seance du 27 Janvier,
et, a I* Annexe VII, la liste des memhres des dnq Commissions.
Le President demande a ceux des membres de la Conference qui
auraient des declarations a faire a propos des Delegues de vouloir
bien les presenter au Bureau.
La seance est levee a 18 heures 10.
Le President:
([\\ G. Clemenceau.
Le Secretaire general:
P. DUTASTA.
'pi Les Secretaires:
J. C. Grew,
M. P. A. Hankey,
Paul Gauthier,
Aldrovandi,
Sadao Saburi.
■\.\.
DOCUMENT 231 139
Annexes au Protocole No, 2.
ANNEXE I.
PROJET DE RESOLUTION
RELATIF
A LA SOCIETE DES NATIONS.
La Conference, ayant examine les propositions relatives a la cre-
ation d'une Societe des Nations, decide que :
a. II est essentiel, pour le maintien du statut mondial que les
Nations associees ont maintenant a etablir, de creer une Societe des
Nations, organe de cooperation internationale qui assurera I'accom-
plissement des obligations Internationales contractees et fournira
des sauvegardes contre la guerre.
b. Cette Societe, dont la creation ferait partie integrante du
Traite general de paix, devrait etre ouverte a toute Nation civilisee
a qui on pourrait se iier pour en favoriser les desseins.
c. Les membres de la Societe se reuniraient periodiquement en
Conference internationale; its auraient une organisation permanente
et un Secretariat pour suivre les affaires de la Societe dans I'intervalle
des Conferences.
La Conference nomme en consequence une Commission repre-
sentant les Gouvernements associes pour elaborer, dans le detail, la
constitution et les attributions de la Societe.
\ y.
y.
140 DOCUMENT 231
ANNEXE 11.
PROJET DE RESOLUTION
RELATIF
A LA RESPONSABILIT^ DES AUTEURS DE LA GUERRE
ET SANCTIONS.
Qu'une Commission, composee de deux Representants pour
chacune des cinq Grandes Puissances et de cinq Representants a elire
par les Petites Puissances, soit nommee pour faire une enquete et un
rapport sur les points sulvants :
1° Responsabilite des auteurs de la guerre;
2° Falts concernant les violations des lois et coutumes de la
guerre commlses par les forces de TEmpIre allemand et de ses allies
sur terre, sur mer et dans les airs au cours de la presente guerre ;
3° Degre de responsabilite pour ces crimes visant des membres,
pris en particulier, des forces ennemles, y comprls des membres des
£;tats-Majors generaux et d'autres Indlvidualites, si haut placees
qu'elles soient;
4° Constitution et procedure du Tribunal approprle pour mettre
en jugement ces crimes;
5° Toutes autres affaires analogues ou connexes aux points men-
tionnes ci-dessus qui pourraient apparattre au cours de 1' enquete et
que la Commission jugera utile et convenable de prendre en con-
sideration.
ANNEXE III.
PROJET DE RESOLUTION
RELATIF
A LA REPARATION DES DOMMAGES.
Qu'une Commission de trois Representants au plus pour chacune
des cinq Grandes Puissances et de deux Representants au plus par
Puissance, pour la Belgique, la Grece, la Pologne, la Roumanie et
la Serbie, soit nommee en vue d'etudier et de presenter un rapport :
U
DOCUMENT 231 141
1° Sur le montant des reparations que les Puissances ennemles
devront payer ;
2° Sur leurs capacites de payement;
3° Sur la methode, la forme et I'epoque a laquelle ce payement
devra etre effectue.
ANNEXE IV.
PROJET DE RESOLUTION
RELATIF
A LA LEGISLATION INTERNATIONALE DU TRAVAIL.
Qu'une Comn^ission, composee de deux Representants pour
chacune des cinq Grandes Puissances et de cinq Representants a elire
par les autres Puissances representees a la Conference de la Paix,
soit nommee pour faire une enquete sur les conditions del'emploi des
travailleurs, envisage au point de vue international, et examiner les
moyens internationaux necessaires pour assurer une action commune
sur les sujets touchant les conditions de I'emploi des travailleurs, et
pour proposer la forme d'une institution permanente destinee a
poursuivre lesdits enquete et examen en cooperation avec la Societe
des Nations et sous sa direction.
ANNEXE V.
PROJET DE RESOLUTION
RELATIF
AU REGIME INTERNATIONAL DES PORTS,
voiEs d'eau et VOIES FERREES.
Q'une Commission, composee de deux Representants pour
chacune des cinq Grandes Puissances et de cinq Representants a elire
par les autres Puissances, soit nommee pour faire une enquete et un
rapport sur :
Le regime international des ports, voies d'eau et voies ferrees.
142 DOCUMENT 23 1
ANNEXE VI.
PROCfeS-VERBAL DE LA REUNION
TENUE
PAR LES REPR^SENTANTS DES PUISSANCES A INTER^TS
PARTICULARS
LE 27 JANVIER 19 19.
La seance est ouverte, 315 heures, sous la presidence de M. Jules
Cambon, Delegue de France, President.
Sont presents :
Pour la Belgique :
M. Hymans;
M. van den Heuvel;
M. Vandervelde.
Pour la Bolivie :
M. Ismael Montes.
Pour le Bresil :
M. Olyntho de Magalhaes;
M. Pandia Calogeras.
Pour la Chine :
M. Lou Tseng Tsiang;
M. Suntchou Wei, Envoye extraordinaire et Ministre pleni-
potentiaire de Chine a Bruxelles.
Pour Cuba :
M. Rafael Martinez Ortiz.
Pour I'fiquateur:
M. Dorn y de Alsua.
Pour la Grece:
jfi M. Nicolas Politis;
M, Athos Romanos, Envoye extraordinaire et Ministre ple-
nipotentiaire de S. M. le Roi des Hellenes a Paris,
Delegue technique.
.if';!
If ll i :■
I ':
DOCUMENT 231 143
Pour Haiti :
M. Tertullien Guilbaud, Envoye extraordinaire et Ministre
plenipotentiaire d'Haiti a Paris.
Pour le Hedjaz :
M. Rustem Haidar.
Pour le Perou :
M. Francisco Garcia Calderon.
Pour la Pologne:
M. Roman Dmowski.
Pour le Portugal:
Le Docteur Egas Moniz ;
Le Comte de Penha Garcia.
Pour la Roumanie :
M. Jean J. C. Bratiano;
M. Nicolas Misu.
Pour la Serbie:
M. Pachitch;
M. Trumbitch;
M. Vesnitch.
Pour le Siam :
Le Prince Charoon ;
Phya Bibadh Kosha.
Pour la Republique tcheco-slovaque :
M. Charles Kramar;
M. fidouard Benes.
Pour rUruguay:
M. Juan Carlos Blanco.
Le President expose en ces termes Tobjet de la reunion :
Le President de la Conference m'a fait I'honneur de me
designer pour presider la reunion des Delegues des Puis-
sances a interets particuliers qui doivent arreter les noms de
leurs Representants dans les differentes Commissions, doht
la liste a deja ete fixee. D'autres Commissions seront nom-
mees posterieurement.
144 DOCUMENT 231
Pour aujourd'hui vous etes appeles a vous prononcer sur
la composition de quatre Commissions.
Je crois que tous les membres presents parlent ou com-
prennent le frangais; je vous propose done de decider qu'il
ne sera pas fait de traduction des paroles qui seront pro-
noncees ici.
{La Reunion^ consultee^ donne son assentiment a cette
proposition.)
En ce qui concerne la designation des Delegues dans les
Commissions, il me semble que le plus simple est de suspendre
la seance, afin de vous pemiettre de vous entendre entre vous.
Nous ouvririons le scrutin a la reprise de la seance.
M. Kramar (Tcheco-Slovaques) demande la parole a I'effet de
proposer un compromis :
Je comprends fort bien I'idee qui a guide M.Clemenceau,
a la derniere seance, lorsqu'il nous a dit qu'il serait inutile
d'avoir des Commissions composees d'un trop grand nombre
de membres. Tous ceux qui, comme lui, ont I'experience des
choses parlementaires en sont persuades.
Je suis d'avis, conformement a cette opinion, que les
Commissions devraient etre composees, en effet, de quinze
membres. Je demande cependant qu'il soit fait une excep-
tion pour I'une d'entre elles qui me parait d'une importance
particuliere. Je veux parler de la Commission de la Ligue
des Nations. Je sais bien que rien ne sera decide definitive-
ment en commission; mais nul de nous n'ignore que, quand
une mesure a ete admise en commission, il est difficile qu'une
decision en sens contraire soit prise en seance pleniere.
Or, aucun prejudice ne pourrait etre cause a I'idee de la
Ligue des Nations si les Petites Puissances etaient represen-
tees dans la Commission. Pour cette raison, et puisque M.
Clemenceau a declare publiquement que le nombre n'etait
;1 [il pas une chose sacro-sainte et devant laquelle il fallait s'in-
cliner, j'ai pense que nous pourrions modifier le nombre des
Delegues a cette importante Commission. II serait possible
de decider qu'elle serait composee de vingt-cinq membres:
quinze representant les Grandes Puissances et dix les Puis-
sances a interets particuliers. De la sorte, il ne pourrait
subsister aucune espece d'amertume dans I'esprit des Dele-
gues de ces dernieres.
Les autres Commissions resteraient composees de quinze
,\ t }.
Vi
I •
'(11-
,1 ■ ,^
DOCUMENT 231 145
membres: dix aux Grandes-Puissances et cinq aux Puissances
a interets particuliers.
Tel est le compromis que je desirais proposer.
Le President declare retenir les observations extremement inte-
ressantes presentees par M. Kramar. II ajoute:
Vous vous souvenez certainement qu'a la demlere seance
pleniere, M. le President de la Conference a eu soin de faire
remarquer que tous les Delegues qui voudraient faire en-
tendre leur voix dans les Commissions le pourraient comme
ils le voudraient.
A I'heure actuelle, je ne pense pas que nous, qui ne
sommes ici qu'une fraction de la Conference, nous puissions
modifier de notre propre autorite ce qui a ete decide par la
Conference dans sa derniere seance. La proposition qui
vient d'etre fait par M. Kramar pourra etre portee a la
prochaine seance pleniere. Aujourd'hul, nous ne pourrions
pas en deliberer sans sortlr du mandat que nous avons a
remplir. La seule chose a faire pour nous est de nous tenir
dans les regies qui nous ont ete tracees par la Conference et
de passer au vote.
Le mieux, a mon sentiment, seralt de suspendre la seance
pour que vous vous entendiez entre vous sur les choix que
vous desirez faire.
M. Calogeras (Bresll), demandant la parole, s'exprime ainsi:
Je desire, en premier lieu, feliclter cette Assemblee re-
streinte d'avoir a sa tete, comme President, I'homme d'fitat
illustre qu'est M. Jules Cambon. Qu'il me soit permis en-
suite de preclser certaines questions.
Si je ne me trompe, a la derniere reunion pleniere de la
Conference, il a ete dit, comme le rappelait M. Kramar, que
la composition des Commissions, au point de vue du nom-
bre, etait une chose acquise si et in quantum. II a ete dit
egalement que toutes les reclamations — ^justifiees naturelle-
ment — relatives a I'augmentation du nombre des membres
de ces Commissions seraient reservees pour une seance
ulterleure.
Je crois me souvenir que, deja, certaines reclamations se
sont fait entendre : il f audra au moins qu'elles soient etudiees.
II est evident que nous ne pouvons pas, en ce moment,
faire plus que ce qui a ete decide. Mais il dolt etre bien
entendu, il doit etre bien clair que c'est la une solution pro-
X46 DOCUMENT 23 1
visoire, jusqu'a ce qu'il ait ete statue sur raugmentation du
nombre des membres des Commissions.
Je vous demande pardon de m'etendre un peu longue-
ment: je tacherai de resumer mes observations.
J'ai une certaine experience des Conferences intema-
tionales, ayant siege a plusieurs reprises comme Representant
du Bresil dans les Conferences panamericaines. Or, mon
experience ne coincide pas tout a fait avec ce qui a
ete dit ici. Dans les grands debats parlementaires, on sait
que la majorite oblige, par son vote, la minorite et que, au
surplus, les Commissions ne sont pas toujours des modeles
de travail. Nous le savons tous; je suis moi-meme un parle-
mentaire. Mais, dans une Assemblee comme celle-ci, qui est
une Conference Internationale, oil il n'y a ni majorite ni
minorite, les votes dolvent etre acquis a I'unanimite, parce
que, comme sanction finale, il y a la signature des accords ou
s'etablit le droit conventionnel.
II est evident qu'il y a certaines difficultes qui se rapport-
ent a la publicite, a la tres grande publicite, necessaire d'ail-
leurs, de nos debats. En seance pleniere, il intervient une
question d'orgueil humain. Une Nation qui s'est exprimee
dans un certain sens ne pourra pas facilement se dedire ou
arriver a un compromis quelconque; tandis que, dans les
Commissions, ou I'intimite est beaucoup plus grande, oii
Ton discute avec plus de chaleur, mais aussi avec plus de
liberte, les accords sont beaucoup plus faciles et plus simples
que lorsqu'ils dependent d'un vote a obtenir devant la Con-
ference pleniere.
Par-dessus le marche, evidemment, on ne peut pas exiger
qu'entre tant de Representants des differents :£tats, entre tant
de mandataires porteurs de directives diplomatiques diverses,
on puisse obtenir d'emblee I'accord indispensable pour les
solutions necessaires. Par cela meme que la publicite est
I j '; beaucoup plus grande en seance pleniere, vous comprenez
' 'j ;j que toute divergence, meme des divergences qui peuvent
n'etre que de detail et sans grande importance reelle, des
qu'elles s'y font jour, acquierent tout de suite une importance
plus grande et produlsent une impression qui pourralt etre
desagreable et, pour ainsi dire, desastreuse pour les solutions
d'harmonie et de libre consentement de toutes les volontes
que nous desirons obtenir.
Voila pourquoi il me semblait et il me semble encore
., aujourd'hui — ^je parle au nom de ma petite experience comme
DOCUMENT 231 147
membre de plusieurs Conferences intemationales — qu*il y
aurait tout avantage, pour la rapidite meme de nos travaux,
et en vue de T accord indispensable qui devra etre sanctionne
par la Conference pleniere, a ce que le nombre, non pas de
toutes, mais de certaines Commissions fut un peu plus grand
que celui qui a ete fixe. J'ai fait moi-meme une reclamation.
D'autres Delegues ont fait entendre des paroles plus ou
moins dans le meme sens: il est evident qu'il y a quelque
chose a faire a ce point de vue.
Nous venons ici avec un grand ideal que tout le monde
defend : nous voulons instituer la Ligue des Nations, c*est-a-
dire un regime d'egalite entre toutes les Nations. Le prin-
cipe en a deja ete parfaitement etabli. II faut que Ton donne
a chaque Nation un vote : one nation, one vote.
C*est dans cet esprit que je me permets d'appeler votre
attention sur les arguments qui semblent militer en faveur
d'une augmentation du nombre des membres des Commis-
sions, car le mot de Ligue des Nations ne doit pas seulement
figurer dans les discours: le sentiment en doit regner dans
les cceurs.
Le President constate, avec Tassentiment de M. Calogeras, que
les observations qui viennent d'etre faites ne peuvent pas modifier
les propositions deja presentees a I'Assemblee; que, de plus, il ne
pent en etre tenu compte dans une reunion qui a pour seul objet la
designation des Representants des Puissances a interets particuliers.
Les observations du Delegue du Bresil seront cependant notees
dans le proces-verbal de la seance et le President en fera part au
Bureau de la Conference.
De plus, les Delegues des Puissances qui desirent voir augmenter
le nombre de leurs commissaires a la Commission de la Societe des
Nations pourront naturellement aller devant elle presenter leurs
observations. Cette Commission, qui sera certainement animee d'un
esprit tres liberal, pourra, si elle juge que le nombre primitivement
fixe des Representants des Nations est insuffisant, demander a la
Conference pleniere de I'augmenter.
M. Vesnitch (Serbie) presente une observation d'ordre tech-
nique en proposant que le vote a emettre porte sur le nom des fitats,
et non pas sur des noms de personnes.
.'ii \ ■ '
148 DOCUMENT 231
Cette proposition est adoptee.
La seance est suspendue a 15 heures 25 pour permettre aux
Delegues d'echanger, avant Touverture du scrutin, leurs vues sur
les Representants a designer.
Elle est reprise a 16 heurs 5.
A la reprise de la seance, M. Hymans (Belgique) expose ainsi
le resultat des echanges de vues des Delegues:
Nous avons essaye de nous mettre d'accord, dans des
conversations particulieres, sur la composition des quatre
Commissions suivantes: Commission de la Ligue des Na-
tions; Commission des ports; Commission de la legislation
Internationale du travail; Commission chargee d' examiner la
responsabilite des crimes commis pendant la guerre.
D'apres les conversations qui viennent de s'engager, il y
a deux Commissions sur la composition desquelles il serable
qu'on soit d'accord, et nous pouvons des lors eliminer de
nos deliberations ces deux questions: la Commission pour la
responsabilite des crimes commis pendant la guerre et la
Commission pour la legislation Internationale du travail.
S'il n'y avalt pas d'opposltion, nous pourrions considerer
que les Delegues sont nommes pour la Commission chargee
de rechercher les responsabllites des crimes commis pendant
la guerre et d'etudier les sanctions que ces crimes comportent,
cette Commission etant composee des Representants de la
Belgique, de la Serbie, de la Roumanie, de la Pologne et de
la Grece.
En ce qui concerne la composition de la Commission
chargee d'etudier la legislation Internationale du travail,
nous pensons inscrire les Puissances suivantes: la Belgique,
la Serbie, Cuba (pour le groupe Sud-Amerique), la Pologne
et la Republique tcheco-slovaque. Mais les Delegues de la
Serbie ont blen voulu declarer qu'ils consentaient a ceder
leur siege a la Belgique qui, etant donne le rang qu'elle
occupe dans le monde industriel et commercial, peut etre, a
ce point de vue, conslderee comme une Grande Puissance.
La Belgique aurait done deux sieges.
La question est plus delicate en ce qui concerne la com-
position de la Commission chargee d'etudier la constitution
de la Ligue des Nations et la composition de la Commission
pour le regime des ports et des voles de communication par
eau et par fer.
DOCUMENT 231 149
Dans les conversations qui viennent d'avoir lieu, on sem-
blait d'accord pour que la Belgique et la Serbie eussent cha-
cune un Representant dans les deux Commissions; mais il y
a, en dehors d'elles, des Puissances qui demandent a etre
egalement representees dans ces deux Commissions, et le
nombre de ces Puissances qui demandent a y sieger depasse
le nombre des sieges disponibles. Le Bresil, la Chine, la
Roumanie, la Pologne, la Republique tcheco-slovaque, la
Grece et le Portugal demandent a etre representes dans la
Commission chargee d'etudier la Ligue des Nations.
En ce qui concerne la Commission des ports, en dehors
de la Belgique et de la Serbie, I'Uruguay, representant le
groupe sud-americain, la Pologne, la Chine, la Grece, la
Roumanie, le Portugal demandent a etre representes dans
cette Commission.
Nous avons pense que le mieux serait, pour la composi-
tion de ces deux Commissions, de proceder a un scrutin ; nous
avons I'intention de vous demander, Monsieur le President,
quand le scrutin aura lieu et quand on aura designe les cinq
Delegues auxqueis on nous a dit que nous avions droit, de
vous faire I'interprete du desir de la reunion qui se tient
aujourd'hul en priant le Bureau de la Conference de vouloir
bien, pour ces deux Commissions, augmenter eventuellement
le nombre des sieges; nous indiquerions les Puissances pour
lesquelles ces sieges seraient demandes.
Les Delegues de la Grece se declarent d'accord avec M. Hymans
au sujet de la composition des deux premieres Commissions pour
lesquelles, en I'absence d'opposition, le vote doit etre considere
comme acquis; et, comme la Serbie, ils se deslstent en faveur d& la
Belgique pour la representation dans la Commission de la legislation
intemationale du travail.
Le President donne son assentiment a la maniere de proceder
qui vient d'etre exposee et il conclut qu'en resume on nommera cinq
Delegues et qu'on en designera quatre qui seraient proposes au Bu-
reau de la Conference pour completer la Delegation.
La discussion reprend sur la fagon de voter.
Le President declare qu'en ce qui concerne les Commissions de
la legislation Internationale du travail et de la responsabilite des
f]
!
150 DOCUMENT 231
crimes commis par rennemi, les Delegues s'etant mis d'accord, il n*y
a pas lieu de proceder au scrutin.
En consequence la representation des Puissances a interets par-
ticuliers dans la Commission de la legislation intemationale du
travail sera ainsi composee: la Belgique avec deux sieges; Cuba, la
Pologne et la Republique tcheco-slovaque avec chacune un siege.
En ce qui concerne la Commission chargee de rechercher la re-
sponsabilite des crimes commis pendant la guerre, la Belgique, la
Grece, la Pologne, la Roumanie et la Serbie auront chacune un
Representant dans cette Commission.
Pour les deux autres Commissions, celle de la Societe des Nations
et celle du regime international des ports, le President propose que
Ton procede par votes separes pour chaque Commission, — ce qui est
accepte: — et il declare entendu que les Delegues qui seront con-
sideres comme elus seront les cinq ayant reuni le plus grand nombre
de suffrages. Les quatre noms suivants seraient proposes a la Con-
ference, a titre de voeu, pour completer les Commissions.
Un echange de vues a lieu pour fixer le mode de vote. II est
decide, d'abord, que le vote aura lieu, au premier tour, a la majorite
absolue; au deuxieme tour, a la majorite relative; ensuite, que
chaque Delegation ne deposera qu'un seul bulletin de vote.
II est donne connaissance a la reunion de la liste des candidats
pour la Commission de la Societe des Nations. Ces candidats sont,
par ordre alphabetique : la Belgique, le Bresil, la Chine, I'fiquateur,
la Grece, Ha'iti, la Pologne, le Portugal, la Roumanie, la Serbie, la
Republique Tcheco-Slovaque.
Les votes sont recueillis et il est procede au depouillement du
scrutin.
Le President donne connaissance des resultats:
II y a 17 votants; les cinq Nations qui ont reuni la ma-
jorite absolue et le plus grand nombre de voix sont: la
Belgique, la Chine, le Bresil, la Serbie et le Portugal. Vien-
nent ensuite : la Roumanie, la Grece, la Pologne, les Tcheco-
Slovaques, Haiti, I'fiquateur.
i:'
DOCUMENT 231 151
Confonnement a la decision de I'Assemblee, le President pre-
sentcra au Bureau de la Conference les nams des quatre Nations qui,
apres les cinq Nations designees, ont obtenu le plus de voix et qui
sont: la Roumanie, la Pologne, la Grece et les Tcheco-Slovaques.
Le President propose ensuite de designer les membres de la
Commission des ports et voles de communication.
M. Benes (Tcheco-Slovaques) presente I'observation suivante:
Quand nous avons examine la question du nombre des
Delegues a admettre dans la Commission des voies ferrees,
des voies fluviales et de rintemationallsation des ports, j*ai
fait valoir aupres de mes Collegues de la Commission, cer-
taines raisons pour lesquelles nous tenions, nous, Tcheco-
Slovaques, a etre representes parmi les cinq Puissances qui
seraient designees. Ces raisons sont les suivantes: nous
sommes, au centre de I'Europe centrale, un pays entoure de
tous cotes par des Puissances ennemies, notamment I'Alle-
magne et les Magyars, et nous n'avons pas d'acces a la mer.
La question des chemins de fer internationaux est pour nous
une question vitale; d'autre part, notre fitat est riverain du
Danube et nous sommes particulierement interesses a la
question de I'Adriatlque; et, n'ayant pas de grands ports,
nous aurons, par consequent, interet a donner notre avis au
sujet du regime particulier des ports de la Baltique et de
I'Adriatlque. Ce sont ces raisons que nous avons fait valoir
pour que nous soyons comprls au nombre des cinq Puissances
qui devront etre representes au sein de la Commission; je
pose done la candidature des Tcheco-Slovaques parmi les
cinq Puissances que vous allez designer.
M. Hymans (Belgique) fait connaitre, sans ordre de priorite,
les noms des Puissances demandant a etre representees dans la Com-
mission: ce sont la Belgique, la Serble, I'Uruguay, la Pologne, la
Chine, la Roumanie, la Grece, les Tcheco-Slovaques et le Portugal.
Le President en fait connaitre les resultats :
scrutin.
Le President en fait connaitre les resultats:
Les cinq Puissances qui ont obtenu la majorite absolue
sont ; la Belgique, la Chine, la Grece, I'Uruguay et la Serbie.
■i i
\\4 -
I ' ■
:! ■
1 I .
ill
[hi
152 DOCUMENT 231
Oht obtenu ensuite la plus grand nombre de suffrages : la
Roumanie, le Portugal, la Pologne et les Tcheco-Slovaques.
En consequence, le voeu a presenter au Bureau porte
sur I'admission supplementaire de ces quatre dernieres
Puissances.
M. Calogeras (Bresil) fait la declaration suivante au sujet du
resultat du scrutin :
II me semble qu'une grande moralite, une grande legon,
decoulent des votes que cette Reunion vient d'emettre: c'est
le grand nombre, la presque unanimite des suffrages donnes
a la Belgique, dans toutes les Commissions. Cela n'est pas
etonnant. Nous sortons a peine d'une lutte qui, certaine-
ment, transformera d'une fagon complete la societe moderne :
or, si cette victoire a pu etre obtenue, si nous sommes reunis
autour de cette table de la Conference, c'est bien parce qu'il
y a eu une victlme expiatoire, un pays, petit comme surface,
mais grand par le coeur, qui s'est offert en holocauste, auquel
nous pouvons parfaitement appliquer la parole que Jeanne
d'Arc disait de sa banniere: "Elle a ete a la peine, elle est
maintenant a I'honneur."
M. Hymans (Belgique) remerde en ces termes:
Je remercie, du plus profond du coeur, le Representant
du noble Bresil des paroles par lesquelles il vient de saluer
mon pays. Nous avons fait, je pense, notre devoir; la vic-
toire a couronne les efforts communs des Allies et nous
n'aurons plus qu'un but, tous ensemble, ici, avec les grands
Allies a cote desquels nous siegions hier: etablir une juste
paix, organiser un ordre international fonde sur le droit et
I'egalite des Nations.
Le President ajoute ces mots :
Au nom de toutes les Nations representees autour de
cette table, je m'associe aux paroles qui viennent d'etre
prononcees par le Representant du Bresil; mais, en meme
temps, je tiens a associer a ces eloges la Serbia, la
jlj Roumanie et toutes les Nations qui ont souffert, comme nous
et comme la Belgique, pour la cause de la Civilisation et du
Droit.
II est bien entendu que les Delegues des pays qui vien-
jii nent d'etre designes seront en meme temps les Delegues de
toutes les Nations representees ici et pourront etre charges
I
DOCUMENT 231 153
de presenter les voeux des Puissances qui n*ont pas de na-
tionaux parmi les Delegues.
Le President prie, en terminant, les Delegations de faire con-
naitre, aussitot que possible, au Secretariat general les noms des
Representants des Nations designes par le vote auquel II vient d'etre
precede, car les Commissions doivent etre constituees le plus rapide-
ment possible.
Les membres du Secretariat recueillent ces noms. {Foir An-
nexe VII.)
La seance est levee a 16 heures 50.
Le President,
J. Cambon.
ANNEXE VIL
LISTE DES MEMBRES DES COMMISSIONS.
I.
Commission de la Societe des Nations.
£tats-Unis d*Amerique :
Le President des fitats-Unis;
Hon. Edward M. House.
Empire Britannique:
The Rt. Hon. the Lord Robert Cecil;
Lt.-General the Rt. Hon. J. C. Smuts.
France :
M. Leon Bourgeois;
M. Larnaude, Doyen de la Faculte de droit de Paris.
Italie :
M. Orlando;
M. Scialoja.
IV[
i!'i
i \'
M^^-
154
DOCUMENT 231
Japon
Le Baron Makino;
Le Vicomte Chinda.
Belgiq
ue:
M.
Hymans.
Bresil:
M.
Epitacio Pessoa, Senateur, Ancien Ministre de la Justice.
Chine :
M.
Wellington Koo, Envoye extraordinaire
plenipotentiaire de Chine a Washington.
et Ministre
Portugal :
M.
Jayme Batalha Reis.
Serbie
M.
Vesnitch.
2.
Commission des Responsahilites de la Guerre et Sanctions.
£tats-Unis d*Amerique :
Hon. Robert Lansing;
M. James Brown Scott.
Vsi Empire Britannlque:
j I The Rt. Hon. Sir Gordon Hewart, K. C, M. P., Attorney
general,
{avec faculte de remplacement par:
The Rt. Hon. Sir Ernest Pollock, K. B. E., K. C, M. P.,
Solicitor general) ;
The Rt. Hon. W. F. Massey.
France :
M. Andre Tardieu;
M. Lamaude.
DOCUMENT 231 155
Italic:
M. Scialoja;
M. Raimondo, Depute.
Japon :
M. Adatci, Envoye extraordinaire et Ministre plenipoten-
tiaire de S. M. TEmpereur du Japon a Bruxelles.
M. H. Nagaoka.
Belgique :
M. Rolin-Jaequemyns, Secretaire general de la Delegation
beige.
Grece :
M. Politis.
Pologne :
M. Constantin Skirmunt, Membre du Comite national
polonais, Representant du Comite a Rome.
Roumanie:
M, S. Rosental, Jurisconsulte.
Serbia :
M. Slobodan Yovanovitch, Recteur de I'Universite de Bel-
grade,
(avec faculte de remplacement par:
M. K. Koumanoudi, Professeur a TUniversite de Belgrade;
M. M. Novacovitch, Professeur a I'Universite de Bel-
grade) .
3-
Commission des Reparations des Dommages.
fitats-Unis d'Amerique:
M. Bernard M. Baruch, President du War Industries
Board;
M. Norman H. Davis, Commissaire financier ;
M. Vance McCormick, President du fVar Trade Board.
i
/ ■
•'}.
V]
^■V\
■I I .^
i.'
156 DOCUMENT 231
Empire Britannique:
The Rt. Hon. W. M. Hughes;
The Rt. Hon. the Lord Sumner of Ibstone, Lord of Appeal
in Ordinary;
The Rt. Hon. the Lord Cunliffe, ancien Gouvemeur de la
Banque d'Angleterre.
France :
M. L.-L. Klotz;
M. Loucheur, Ministre de la Reconstitution industrielle ;
M. Albert Lebrun, Ministre des Regions liberees.
Italie:
M. Salandra;
M. d'Amelio, Conseiller a la Cour de cassation;
M. E. Chiesa, Depute.
Japon :
M. Kengo-Mbri, Agent financier a I'Ambassade de Londres;
M. H. Nagaoka;
M. Tatsumi, Administrateur de la Specie Banque de Yoko-
hama.
Belgique:
M. van den Heuvel;
M. Despret, Avocat a la Cour de cassation, Administrateur
de la Banque de Bruxelles.
'M : Grece:
M. Romanes;
M. Michalakopoulos, Ministre d'£tat.
^H Pologne:
M. Sigismond Chamiec, Directeur de la Caisse nationale
des Prets;
M. Casimir Olszowski, Directeur du Departement des Dom-
mages de guerre au MInistere des Finances.
Roumanie :
M. Georges Danielopol, Envoye extraordinaire et Ministre
iili
DOCUMENT 231 " ' 157
de S. M. le Roi de Roumanie a Washington, ancien
Directeur de la Banque nationale de Roumanie;
M. P. Zahariade, Ingenieur-Inspecteur general, ancien Di-
recteur des Chemins de fer.
Serbie :
M. Miloch Savtchitch, ancien Ministre,
{avec faculte de remplacement par:
M. Dragoutine Protitch, Avocat;
Le Docteur Vel. Baikitch, Vice-Directeur de Banque) .
Commission de la Legislation Internationale du Travail,
]&tats-Unis d'Amerique:
Hon. E. N. Hurley, President du Shipping Board;
M. Samuel Gompers, President de ['American Federation
of Labor.
Empire Britannique:
The Rt. Hon. G. N. Barnes;
Sir Malcolm Delevingne, K. C. B., Sous-Secretaire d'fitat
adjoint a I'lnterieur.
France :
M. CoUiard, Ministre du Travail et de la Prevoyance so-
ciale J
M. Loucheur.
Italie :
Le Baron Mayor des Planches, Ambassadeur honoraire,
Commissaire general de I'fimigration;
M. Cabrini, Depute.
Japon :
M. Otchiai, Envoye extraordinaire et Ministre plenipoten-
tiaire de S. M. I'Empereur du Japon a la Haye;
I ■
!t i^
\> ;
lit t--
i^l
i:|
m
111
158 DOCUMENT 231
M. Oka, ancien Directeur des Affaires commerciales et in-
dustrielles au Ministere de PAgriculture et du Com-
merce.
Belgique :
M. Vandervelde;
M. Mahaim, Professeur a rUniversite de Liege, Secretaire
de la section beige de rAssociation Internationale pour
la protection legale des travailleurs.
Cuba :
M. de Bustamante.
Pologne :
Le Comte Jean Zoltowski, Membre du Comite national
polonais {Delegue provisoire) .
Republique tcheco-slovaque :
M. Benes.
Commission du Regime International des Ports,
Voies d'Eau et Votes Ferries.
£tats-Unis d'Amenque:
Hon. Henry White;
Hon. David Hunter Miller.
Empire Britannique:
The Hon. A. L. Sifton;
Sir Hubert Llewellyn-Smith, K. C. B., Secretaire permanent
du Board of Trade,
France :
M. ClaveiUe, Ministre des Travaux publics et des Trans-
ports;
M. Andre Weiss, Professeur a la Faculte de droit de Paris,
Jurisconsulte du Ministere des Affaires etrangeres.
DOCUMENT 231 159
Italic:
M. Crespl, Ministre du Ravitaillement ;
M. de Martino, Secretaire general du Ministere des Affaires
etrangeres.
Japon :
M- K. Matsui;
Le Colonel Sato.
Belgique :
M. Paul Segers, Ministre d'fetat.
Chine :
M. Chengting Thomas Wang.
Grece :
M. L. Coromilas, Envoye extraordinaire et Ministre pleni-
potentiaire de S. M. le Roi des Hellenes a Rome.
Serbie :
M. Trumbitch.
Uruguay:
M. Juan Carlos Blanco.
I '■
]
I:';
i6o
DOCUMENT 232
Telegram from Rome^
Rome,
Dated January 24th, 1919,
Rec'd 25th, 2:10 A. M.
American Mission, Paris.
Press here now showing considerable impatience at prospect of
protraction of the Peace Negotiations indicating dangers that will
arise from such protraction. There appears to me also a real dan-
ger should not some definite action be soon taken on the principal
points of the President's program. The Messaggero yesterday
morning had a serious editorial on reported decision of The Con-
ference not to recognize any party in Russia. It goes on to state
that President Wilson obtained confidence of the people of Italy and
of other countries by reason of fact that however deliberate he was
to act before he felt the United States was being seriously injured,
when he did act it was without hesitation and in a mode to inspire
complete confidence. The people will follow the Conference now
in any firm decision it may make.
The action of the Conference in accepting the President's pro-
gram for Russia published in midday paper approved warmly by
press. Meantime the press is keeping stirred up the aspirations of
the people for all that Sonnino is claiming.
There is a tremendous amount of political wire pulling and
propaganda. Some of it is of a very subtle character and the situa-
tion is difficult and delicate.
The consul at Florence reports that at meeting there of Cham-
li ;■ ber of Labor of the province, deputy Caroti who attempted to up-
hold government claim to Dalmatia, etc., was ejected amid cries of
"Down with the government long live the revolution."
Nelson Page.
a. See Diary, p. 92.
„.ss
:s:m
DOCUMENT 233
Cablegram Sent"
January 25, 1919.
To Secretary of State,
Washington.
"The governments now associated in conference to effect a last-
ing peace among the nations are deeply disturbed by the news which
comes to them of many instances in which armed force is being made
use of, in many parts of Europe and the East, to gain possession of
territory, the rightful claim to which the Peace Conference is to be
asked to determine. They deem it their duty to utter a solemn warn-
ing that possession gained by force will seriously prejudice the claims
of those who use such means. It will create the presumption that
those who employ force doubt the justice and validity of their claim
and purpose to substitute possession for proof of right and set up
sovereignty of coercion rather than by racial or national preference
and natural historical association. They thus put a cloud upon
every evidence of title they may afterwards allege and Indicate their
distrust of the Conference itself. Nothing but the most unfortunate
results can ensue. If they expect justice they must refrain from force
and place their claims in unclouded good faith in the hands of the
Conference of Peace." Lansing.
a. See Diary, p. 92.
■■ ) ■
i ^1 .'i
f i!'
162
DOCUMENT 234
R^solutian" Adapt^e par la Conference des Associations Alli^es
poor la Society des Nations
La Conference, reconnaissant la necessite d'une paix prochalne
et durable, couronnee par I'etablisseme'nt de la Societe des Nations,
invite les Gouvernements allies a concentrer leurs efforts vers ce but
en se rappelant que, jusqu'au jour ou la paix sera signee, la reprise
generale des conditions normales de la vie du monde, essentielles aux
interets superieurs et aux droits comme aux besoins de rhomme, sera
impossible.
a. January 26th. See Diary, pp. 92-93.
i6s
DOCUMENT 235
Notes*
It is highly desirable that the arrangement of the Covenant be
not changed at this time.
I agree, however, that questions of the arrangement of para-
graphs remain open as it seems obvious that some rearrangement is
contemplated.
I agree to delete words "jointly and severally," in the Preamble.
In order not to change the arrangement, I consider the various
subsections of Article i of Chapter I of the British Draft as sub-
stantive provisions and not as subsections of the Preamble.
Subsection (i) :
1 object to as unnecessary.
Subsection (ii) ;
Should be considered in connection with Article 2 of Chapter I
of the British Draft and Article III of the American Draft.
I agree that Article III of the American Draft may be rewrit-
ten in the form annexed.
Subsection (Hi) :
I object to as indefinite.
Subsection (iv) :
1 object to as indefinite and not stating the names of the coun-
tries.
a. This paper was gotten up by me on the evening of January 26th. It is
really a comment on the British suggestions contained in Document 224, and to be
understood must be examined not only in connection with that paper but also in
connection with the American and British Drafts at that time, which are respec-
tively Documents 211 and 225,
Document 236 should also be examined in this connection, for that paper shows,
on the basis of the American Draft (Document 211), the result of the changes
which these: notes (Document 235) accepted and also contains some comments on
the British suggestions in Document 224 regarding the so-called "supplementary
articles" of the Covenant (Document 211). See Diary, p. 93, note b.
This paper and Document 236 were gotten up as a basis for my discussions with
Cecil on January 27th.
164 DOCUMENT 235
i : New subsection (v) :
y \ Is really Article IV of the American Draft.
I ; I suggest that Article IV of the American Draft stand with the
i following changes :
]; In the second paragraph, in place of the words:
1 1 1 "Powers subscribing to the Treaty of Peace of which this
1 covenant constitutes a part," substitute the words: "High
Contracting Powers."
I H Fourth paragraph : Omit the words : "That munitions
|»| and implements of war shall not be manufactured by pri-
; ; I vate enterprise or for private profit and." (See the further
discussion of this in Article IV.)
New subsection (vi) :
Is Supplementary IX of the American Draft.
I agree to the language proposed by the British, substituting
the words : "The High Contracting Powers agree," for the words :
"They undertake."
Old subsection {v)y now (vii) of the British Draft:
I regard as unnecessary.
/ do not object to old subsection (vi), now (viii) as a sub-
stantive provision, but think it should be slightly revised in lan-
guage as follows:
; t ; !
t
"The Body of Delegates shall appoint Commissions to
study and report on economic, sanitary, and other similar
j'|';> problems of international concern, and the Body of Dele-
gates shall recommend to the High Contracting Powers
such action as these reports may show to be necessary or
desirable."
The language of subsection (ix) I accept in lieu of American
^ Supplementary V, with slight changes as follows :
Substitute: "High Contracting Powers" for "they;"
and commence the second sentence: "Also they will appoint
■ Commissions."
The rest of Article i of the British Draft I object to.
ii -!
DOCUMENT 235 165
Article s of the British Draft I object to.
American Article I as rewritten by the British I accept pro-
visionally; simply as properly showing the British view. It should
contain, however, a provision as to how the place of meeting is de-
termined.
For a similar reason I accept provisionally the first three para-
graphs of American Article II as rewritten by the British.
I object to the paragraph proposed by the British, commencing;
"The Council of the League," and ending: "the general peace."
The second sentence of this paragraph should be left as the second
paragraph of American Supplementary IV, leaving the language as
it is in the American Draft.
For the reasons stated above I provisionally accept the fourth
paragraph of American Article II as rewritten by the British, but
the present first sentence of the fourth paragraph of the American
Draft should be rewritten as a separate paragraph, omitting the
words: "shall appoint a permanent secretariat and staff and."
Similarly I accept the insertion of Articles 10 to 15, inclusive,
of Chapter I of the British Draft, with the following comments:
As to 10, who authorizes the expenditure?
As to 13, who determines the circumstances of meeting?
Article 16 of the British Draft might be similarly accepted if
in a different form. The Dominions should be specified, and my
understanding is that the representation will be for the Dominions
and not for the British Empire as such, following the precedent of
the Peace Conference.
Article IV:
I agree to the first two amendments proposed in the British
paper. The rest I disagree to except that the first paragraph of
American Supplementary IV, which is incorporated therein ver-
batim, should be retained.
i;.,;
1 66 DOCUMENT 235
Article V:
The first British amendment I accept.
The second British amendment I object to.
The third British amendment I accept.
I object to the deletion of paragraphs four and five.
The next British amendment I accept.
The next British amendment I accept.
The next British amendment I accept with the following
change :
Strike out the words: "compatible with their interests."
The next British amendment, substituting the word "Council"
for the word: "it," I accept.
The next British amendment I reject as it is not covered by
Article 6 of the British Draft.
The next British amendment I accept in part. The words:
"The Executive Council shall do everything in its power by way
of mediation or conciliation to bring about a peaceful settlement,"
should be retained.
I object to the deletion proposed by the next British amend-
ment, but I agree to the matter which they wish to insert, leaving
out all after the words: "which complies with its provisions."
The next British amendment I reject.
The next British amendment I reject.
I see no reason for any of the changes suggested in Article
VI.
I agree that so far as member Powers are concerned. Article
VII only duplicates Article VI. Article X, however, does not com-
pletely cover the case of a non-member Power, but with a change
in Article X, which is suggested, Article VII may be, as the British
suggest, omitted.
I see no reason for any change in Article VIII.
The change suggested in Article IX is accepted. Also there
DOCUMENT 235 167
is a printer's error In the last line of the first paragraph of Article
IX. Insert after the word "were" the words "a party."
In view of the omission in Article VII, Article X should be
amended by putting in in the fourth line, after the word "such," the
words "decision or." Also, in eighth line, strike out "that may be
necessary" and Insert "which may be agreed upon."
Article XI is agreed to.
There Is a printer's error in the second line, second paragraph
of Article XL The word "cause" should be changed to "course."
I see no reason for any change in Article XII.
Article XIII is agreed to.
The suggestion of the British for a new Article XIV presents
an important question, consideration of which may properly be de-
ferred.
Article III American {Revised)
The High Contracting Powers undertake to respect and pre-
serve the territorial integrity and existing political independence of
all States members of the League.
If at any time it should appear that any feature of the settle-
ment made by this Covenant and by the present treaties of peace
no longer conforms to the requirements of the situation, the League
shall take the matter under consideration and may recommend to
the parties any modification which it may think necessary. If such
recommendation is not accepted by the parties affected, the States,
members of the League, shall cease to be under any obligation in
respect of the subject matter of such recommendation.
In considering any such modification the League shall take into
account changes in the present conditions and aspirations of peoples
or present social and political relations, pursuant to the principle,
which the High Contracting Powers accept without reservation,
that Governments derive their just powers from the consent of the
governed.
i68
DOCUMENT 236
Covenant (with British Suggestions) <>
Preamble,
Strike out the words "jointly and severally."
Article I.
The action of the Signatory Powers under the terms of this
covenant shall be effected through the instrumentality of a Body of
Delegates and an Executive Council. The Body of Delegates shall
consist of Representatives of the Contracting Powers at the Capital
of the League. The Meetings of the Body of Delegates shall be
held at the Capital of the League or elsewhere as may be from
time to time determined. At Meetings held at the Capital of the
League, the Executive Council shall appoint the presiding officer of
the Body. At Meetings held elsewhere the representative of the
State in whose territories the Meeting is held shall be the presiding
officer.
It shall be the privilege of any of the Contracting Powers to
assist its representative in the Body of Delegates and Executive
Council by any method of conference, counsel, or advice that may
seem best to it, and also to substitute upon occasion a special repre-
sentative for its regular representative at the capital of the League.
Ill i The H. C. P. appoint the following States members of the
League to constitute the Council of the League: France, Great
Britain, Italy, Japan, and the United States of America. The
Council may at any time co-opt additional members. Except as
provided hereafter, no State shall be represented at any meeting of
the Council by more than two members.
fi Meetings of the Council shall be held from time to time as oc-
I
a. For an explanation of this paper which was prepared on the evening of
January 26th, in preparation for my conference with Cecil on January 27th, see the
note to Document 235 and the Documents and references therein mentioned.
DOCUMENT 236 169
casion may require, and in any case at Intervals of not more than
one year.
Article II,
The Body of Delegates and the Executive Council shall regu-
late their own procedure and shall have power to appoint such
committees as they may deem necessary to Inquire Into and report
upon any matters that lie within the field of their action. In all
matters covered by this paragraph the Body of Delegates and the
Executive Council may decide by a majority of the representatives
present at any Meeting.
It shall be the right of the Body of Delegates, upon the initia-
tive of any member, to discuss, either publicly or privately as It may
deem best, any matter lying within the jurisdiction of the League
of Nations as defined in this covenant, or any matter likely to affect
the peace of the world; but all resolutions passed or actions taken
by the Body of Delegates in the execution of the functions and
powers granted to them under this Covenant shall be passed or
taken either upon the initiative and recommendation of, or after
reference to and approval by, the Executive Council.
The Council shall invite any State Member of the League to
send representatives to any Meeting of the Council at which mat-
ters affecting that State will be under discussion and no decision on
any matter directly affecting the Interests of a State Member of
the League which is not represented on the Council will be binding
upon any such State unless Its representatives have been Invited to
the Meeting when the decisions In question were taken.
The Council may also invite any State Member of the League
to send representatives to any Meeting of the Council whenever
the Council shall consider that the work of the League would be
assisted thereby.
All resolutions passed or actions taken by the Executive Coun-
cil, or by the Body of Delegates upon the recommendation of the
Executive Council, except those adopted In execution of any direct
170 DOCUMENT 236
powers herein granted to the Body of Delegates themselves or the
Executive Council, shall have the effect of recommendations to the
several Governments of the League.
The Executive Council may appoint joint committees, chosen
from the Body of Delegates or consisting of specially qualified per-
sons outside of that Body, for the study and systematic considera-
tion of the international questions with which the Council may have
to deal, or of questions likely to lead to international complications
or disputes. It shall also take the necessary steps to establish and
maintain proper liaison both with the foreign offices of the signa-
tory powers and with any governments or agencies which may be
acting as mandatories of the League of Nations in any part of the
world.
The Executive Council shall appoint a permanent Secretariat
and Staff. The Secretariat shall be under the general control and
direction of the Chancellor of the League who shall hold office
during the pleasure of the Council. The first Chancellor of the
League shall be the person named in the Protocol hereto. Any suc-
cessor shall be appointed by the Council. The Executive Council
shall, through the Chancellor, take the necessary steps to establish
and maintain close and continuous relations with the Governments
of the signatory Powers, with any Governments which may be act-
ing as mandatories of the League of Nations In any part of the
|i i> world, and with any organs or agencies of international action,
if ' whether permanent or temporary, which may be established under
the general sanction of the League.
1,. (
Article II-A.
The Chancellor of the League shall be assisted by such number
of assistant secretaries as he may find it necessary to appoint and
such further staff as he may think necessary within the limits of the
expenditure which may be authorised.
The Chancellor shall act as the Secretary of the Conference
DOCUMENT 236 171
of the League and of the Council of the League, and will be re-
sponsible to them for such duties as may be entrusted to him.
Representatives of the States members of the League attending
meetings of the League, the representatives of the H. C. P. at the
capital of the League, the Chancellor and the members of the per-
manent secretariat of the League, and the members of any judicial
or administrative organ or of any commission of enquiry working
under the sanction of the League, shall enjoy diplomatic privileges
and immunities while they are engaged in the business of the
League.
All buildings occupied by the League, or by any organisation
placed under the control of the League, or by any of its officials,
or by the representatives of the H. C. P. at the capital of the
League shall enjoy the benefits of extra-territoriality.
The Secretariat of the League shall be established at
This City shall constitute the capital of the League.
The meetings of the Conference of the League and of the
Council of the League shall be held at the capital of the League,
or in such other place as may be determined.
Each of the H. C. P. may maintain a representative at the
capital of the League.
The expenses of the League, other than those occasioned by
meetings of the Council of the League, shall be borne by the States
members of the League, in accordance with the distribution among
the members of the Postal Union of the expenses of the Inter-
national Postal Bureau. The expenses occasioned by meetings of
the Council of the League shall be divided equally among the States
represented on the Council.
The British Dominions (Australia, Canada, South Africa, and
New Zealand) and India shall be represented.
Article II-B {New).
The Body of Delegates shall appoint Commissions to study and
report on economic, sanitary, and other similar problems of inter-
; 172 DOCUMENT 236
I national concern, and the Body of Delegates shall recommend to
the High Contracting Powers such action as these reports may
show to be necessary or desirable.
j Article III.
; The High Contracting Powers undertake to respect and pre-
\\. serve the territorial integrity and existing political independence of
all States members of the League.
|: If at any time it should appear that any feature of the settle-
[1 ment made by this Covenant and by the present treaties of peace no
I' , longer conforms to the requirements of the situation, the League
shall take the matter under consideration and may recommend to
I ^^ the parties any modification which it may think necessary. If such
I I recommendation is not accepted by the parties affected, the States,
j ; members of the League, shall cease to be under any obligation in
respect of the subject matter of such recommendation.
•'! ■ In considering any such modification the League shall take into
account changes in the present conditions and aspirations of peoples
or present social and political relations, pursuant to the principle,
which the High Contracting Powers accept without reservation,
that Governments derive their just powers from the consent of the
governed.
Article IV,
Insert Strike Out
J St Paragraph:
After the words, "formu-
late at once," in line 5, the
words "after expert inquiry."
At the end of the para-
graph: "but when so ap-
}l;
•il;
,;i* proved, it shall not be de-
parted from by any signatory
without the consent of all."
■^
DOCUMENT 236
173
2nd Paragraph:
"High Contracting Pow-
ers.
^rd Paragraph:
No change.
4th Paragraph:
"Powers subscribing to the
Treaty of Peace, of which
this Covenant forms a part"
No change,
"That munitions and im-
plements of war shall not be
manufactured by private en-
terprise or for private profit
and"
/irticle F.
Insert :
First paragraph:
In line 6, — "three months
after the"
Second paragraph:
No change.
Third paragraph:
After the word, "arbitra-
tion," in the first line:
"pending the creation of a
permanent court of interna-
tional justice and in the ab-
sence of provisions in any
agreement between the par-
ties to the dispute prescribing
the constitution of the court
to which the dispute shall be
submitted."
Fourth paragraph :
No change.
Strike out.
"there has been an"
'}
174 DOCUMENT 236
Fifth paragraph:
No change.
Sixth paragraph :
Will read as follows :
If there should arise between States members of the
League any dispute likely to lead to a rupture, which is not
submitted to arbitration under paragraphs two and three
of this article, they shall apply to the Executive Council to
take the matter under consideration for such mediatory ac-
tion or recommendation as it may deem wise In the cir-
cumstances. The Council shall immediately accept the ref-
erence and the Chancellor shall give notice to the parties
and shall make the necessary arrangements for a full hear-
ing, investigation, and consideration. The party upon
whose demand the matter has been referred to the League
shall file with the Chancellor of the League a statement of
its case with all the facts and papers relevant to the dispute.
The party against whom the complaint is made shall be In-
vited by the Chancellor to file a statement of its case with
all relevant facts and papers. The Chancellor shall forth-
with publish the statements of the parties. The H. C. P.
agree that, In the case of the reference of any dispute to the
League under this article, they will each, whether parties to
the dispute or not, place at the disposal of the Council to
the fullest possible extent all the information in their pos-
session which bears upon the questions under discussion.
The Council shall ascertain and as soon as possible make
public all the facts Involved in the dispute and shall make
such recommendations as It may deem wise and practicable,
based on the merits of the controversy and calculated to se-
cure a just and lasting settlement. The Executive Council
shall do everything In Its power by way of mediation or
conciliation to bring about a peaceful settlement. The de-
cisions of the Executive Council shall be addressed to the
disputants and shall not have the force of a binding verdict.
Should the Executive Council fail to arrive at any conclu-
sion, It shall be the privilege of the members of the Execu-
tive Council to publish their several conclusions or recom-
mendations; and such publications shall not be regarded as
an unfriendly act by either or any of the disputants. Where
the efforts of the Council have led to the settlement of the
DOCUMENT 236 175
dispute, a statement shall be prepared for publication indi-
cating the nature of the dispute and the terms of settlement,
together with such explanations as may be appropriate. If
the dispute has not been settled, the report of the Council to
the H.C.P. shall be published. This report shall set forth,
with all necessary facts and explanations, the recommenda-
tions which the Council or Conference think just and
proper for the settlement of the dispute. If the report is
unanimously agreed to by the members of the Council, other
than the parties to the dispute, the H. C. P. hereby agree
that none of them will go to war with any party which com-
plies with its provisions.
Seventh paragraph :
No change.
Article VL
Unchanged
Article VIL
Omit Entirely
Article Fill,
Unchanged
Article IX,
In the first paragraph, line 6, insert "the Council," in place of
the words, "the Delegates."
Note printer's error in last line of first paragraph. After the
word "were," should be the words "a party."
Article X,
Insert, in the fourth line, after the word "such," the words
"decision or."
In eighth line strike out "that may be necessary" and insert
"which may be agreed upon." (This change is to conform to
pencil change in margin of Article VII.)
176 DOCUMENT 236
'Article XL
Unchanged
Note printer's error In second line, second paragraph, the word
"cause" should be changed to "course."
Article XII ,
Unchanged
Article XIII .
Unchanged
Article XIV (New).
The provisions of this Convention shall come into effect so soon
as it has been ratified by Great Britain, the United States of Amer-
ica, France, Italy, and Japan.
Supplementary Articles I, II and III.
In lieu of these three articles, the British propose a draft con-
vention regarding mandataries, which requires detailed examina-
tion.
Generally speaking, it may be said that this draft convention
recognizes two classes of dependent peoples (a) Assisted States, and
(b) Vested Territories held upon trust.
In respect of the "Vested Territories," while adopting some
of the principles laid down in Supplementary Articles I, II and III,
the British Convention gives less control to the League and more
to the mandataries.
Supplementary Article IV.
Unchanged
Supplementary Article V.
The High Contracting Powers will work to establish and main-
tain fair hours and humane conditions of labour for all those with-
in their several jurisdictions who are engaged in manual labour and
they will exert their influence in favour of the adoption and main-
'^:i::3
DOCUMENT 236 177
tenance of a similar policy and like safeguards wherever their indus-
trial and commercial relations extend. Also they will appoint
Commissions to study conditions of industry and labour in their
international aspects and to make recommendations thereon, in-
cluding the extension and improvement of existing conventions.
Supplementary Article VI.
The British suggest the omission for the present of this Article
until the specific provisions to be contained in the territorial treaties
can be considered.
Supplementary Article VII.
Unchanged
Supplementary Article VIIL
It shall be the right of the League of Nations from time to
time and on special occasion to close the seas in whole or in part
against a particular Power or particular Powers for the purpose
of enforcing the international covenants here entered into.
Supplementary Article IX.
The High Contracting Powers agree that no treaty entered Into
between States members of the League shall be regarded as valid,
binding or operative, until it shall have been published and made
known to all other states members of the League.
Supplementary Article X.
In lieu of this article the British propose a draft convention
regarding equality of trade conditions, together with a draft con-
vention for freedom of transit, and an annex to these conventions.
Detailed analysis of these papers is required before they can
properly be compared with the principles of Supplementary Ar-
ticle X.
I?
178
DOCtTMENT 237
Telegram from Rome"
Rome,
Dated, January 25th, 1919,
Rec'd 26th, 4:50 A. M.
American Mission,
Paris.
To-day's local press gives prominence to Sazanoff and L. Wolfs'
interviews in Paris Matin expressing annoyance at President's ac-
tion In inducing Peace Conference to invite all factions of Russia,
"All Russians" Conference Prinkipo. Opinion here In which I con-
cur seems to be that Sazanoff is extremely pro-French and prob-
ably working with them. See my confidential telegram 76, January
16 and letter to Colonel House In regard to his out of date ideas
and failure to realize United States present position In World.
The cabinet yesterday authorized Minister of Posts and Tele-
graphs to grant all the demands of telephone postal and telegraph
employees thus end their agitation which threatened general strike.
I am sending by tonight's courier resume confidential report of
private interview by a member of my staff with Bissolati in which
latter frankly expresses his views on Italian aspirations and also
relations with official Socialists.
Following from Speranza agrees with the daily report :
"The Tribuna which is considered to have an especially good
correspondent at the Peace Conference expresses regret that the
French papers Including Temps publishes unconfirmed reports
about Italian war alms.
Socialist AvANTi always hostile to America is evidently trying
to create an impression of difference of opinion between the United
States and Allies at Peace Conference. Yesterday published ex-
a. See Diary, p. 93.
DOCUMENT 237 179
tract from article by Frank R. Kent in Baltimore Sun alleging
Pershing's unpopularity in French and British military circles.
This article was violently attacked in American press when it ap-
peared about the end of November.
Press publishes semi-official denial of report that Government
will withdraw its new state monopolies. This is however by no
means definite.
Clerical Corriere D'Italia denies report published yesterday
that Monsignor Cerratta is about to contract a loan of $5,000,000
in the United States for the Vatican. Press, however, believes he
has some financial mission there. Press reports collision between
Serbs and Slovenes at Lubichang^ in which several deaths caused.
Two battalions Italian troops brought from France are said to have
been sent to Transylvania.
Nelson Page.
a. sic. Read Lubiana.
i8o
DOCUMENT 238
Copy of Telegram Received by American Embassy, Parish
Washington, Dated January 23rd, 19 19,
Rec'd 26th, 2 P. M.
Following telegram received from Lewis Heck. American
Commissioner Constantinople. Dated January 19th. "Americans
and other reliable persons arriving from interior, report that con-
ditions are steadily growing worse in every way, that some officials
guilty of worst atrocities and deportations still retain their posts.
That Moslem population is as arrogant as ever, not realizing de-
feat, because of lack of show of force by Allies, that many political
prisoners have not been released in spite of general amnesty. That
nothing effective is being done to restore their former property to
returning deported (omission) and that with weakness of Govern-
ment and bad public order further local outrages are possible,
American relief parties traveling in interior should have Allied
Military protection, being accompanied by one or two more in uni-
form empowered to demand remedies from local Turkish author-
ities. Lack of officers familiar with country and uncertainty as to
future political destinies of Asia Minor make Allied leaders here
reluctant to adopt decisive measure without strong political and
military backing to establish order and to insure possibility of con-
structive measures. The relief work will be nothing but charity
doled out to persons who will be unable to resume their former oc-
cupations and become self supporting.
I am requesting Allied High Commissioners to consider these
questions before arrival Barton Commission.
Forward a copy to American Mission, Paris, and paraphrase to
Doctor James Barton, probably now in Paris.
Polk,
Acting.
a. See Diary, p. 93.
i8i
DOCUMENT 239
Covenant'
Incorporating Changes Agreed upon by Lord Robert Cecil
AND David Hunter Miller, 27 January, 19 19.
Preamble,
In order to secure international peace and security by the pre-
scription of open, just, and honorable relations between nations, by
the firm establishment of the understandings of international law
as the actual rule of conduct among governments, and by the main-
tenance of justice and a scrupulous respect for all treaty obligations
in the dealings of organized peoples with one another, and in order
to promote international cooperation, the Powers signatory to this
covenant and agreement adopt this constitution of the League of
Nations.
Article L
The action of the Signatory Powers under the terms of this
covenant shall be effected through the instrumentality of a Body
of Delegates and an Executive Council. The Body of Delegates
shall consist of Representatives of the Contracting Powers at the
Capital of the League. The Meetings of the Body of Delegates
shall be held at the Capital of the League or elsewhere as may be
from time to time determined by the Body of Delegates. At Meet-
ings held at the Capital of the League, the Executive Council shall
appoint the presiding officer of the Body, At Meetings held else-
where the representative of the State in whose territories the Meet-
ing is held shall be the presiding officer.
It shall be the privilege of any of the Contracting Powers to as-
a. See Diary, pp. 93, 94, and notes. Compare also the second Paris Draft
of President Wilson (Document 211), the paragraph numbering of which is the
same as in this paper. See also Document 240, which gives a summary view of the
changes from that Draft.
"i
182 DOCUMENT 239
sist its representatives in the Body of Delegates and Executive
Council by any method of conference, counsel, or advice that may
seem best to it, and also to substitute upon occasion a special repre-
sentative for its regular representative at the capital of the League.
The H. C. P. appoint the following states members of the
League to constitute the Council of the League: France, British
Empire, Italy, Japan, and the United States of America. The
Council may at any time co-opt additional members. Except as
provided hereafter, no State shall be represented at any meeting
of the Council by more than two members.
Meetings of the Council shall be held from time to time as
occasion may require, and In any case at intervals of not more than
one year.
Article II.
The Body of Delegates and the Executive Council shall regulate
their own procedure and shall have power to appoint such commit-
tees as they may deem necessary to inquire Into and report upon
any matters that lie within the field of their action. In all matters
covered by this paragraph the Body of Delegates and the Executive
Council may decide by a majority of the representatives present at
any meeting.
It shall be the right of the Body of Delegates, upon the initia-
tive of any member, to discuss, either publicly or privately as it may
deem best, any matter lying within the jurisdiction of the League
of Nations as defined In this covenant, or any matter likely to affect
the peace of the world.
The Council shall invite any State Member of the League to
send representatives to any Meeting of the Council at which mat-
ters affecting that State will be under discussion, and the State so
invited shall become ad hoc a member of the Council; and no de-
cision on any matter directly affecting the interests of a State Mem-
ber of the League which is not represented on the Council will be
■fii
DOCUMENT 239 183
binding upon any sucli State unless its representatives have been
invited to the Meeting when the decisions in question were taken.
The Council may also invite any State Member of the League
to send representatives to any Meeting of the Council whenever the
Council shall consider that the work of the League would be as-
sisted thereby.
Ail resolutions passed or actions taken by the Executive Coun-
cil, or by the Body of Delegates upon the recommendation of the
Executive Council, except those adopted in execution of any direct
powers herein granted to the Body of Delegates themselves or the
Executive Council, shall have the effect of recommendations to the
several Governments of the League.
The Executive Council may appoint joint committees, chosen
from the Body of Delegates or consisting of specially qualified per-
sons outside of that Body, for the study and systematic considera-
tion of the international questions with which the Council may have
to deal, or of questions likely to lead to international complications
or disputes.
The Executive Council shall appoint a permanent Secretariat
and Staff. The Secretariat shall be under the general control and
direction of the Chancellor of the League who shall hold office dur-
ing the pleasure of the Council. The first Chancellor of the League
shall be the person named In the Protocol hereto. Any successor
shall be appointed by the Council. The Executive Council shall,
through the Chancellor, take the necessary steps to establish and
maintain close and continuous relations with the Governments of
the signatory Powers, with any Governments which may be acting
as mandatories of the League of Nations in any part of the world,
and with any organs or agencies of international action, whether
permanent or temporary, which may be established under the gen-
eral sanction of the League.
; :
'l
184- DOCUMENT 239
Article II-A.
The Chanceflor of the League shall be assisted by such number
of assistant secretaries as he may find it necessary to appoint and
such further staflE as he may think necessary within the limits of
the expenditures which may be authorized by the Executive Council.
The Chancellor shall act as the Secretary of the Body of Dele-
gates and of the Executive Council, and will be responsible to them
for such duties as may be entrusted to him.
Representatives of the States members of the League attend-
ing meetings of the League, the representatives of the H. C. P. at
the capital of the League, the Chancellor and the members of the
permanent secretariat of the League, and the members of any judi-
cial or administrative organ or of any commission of enquiry work-
ing under the sanction of the League, shall enjoy diplomatic privi-
leges and immunities while they are engaged in the business of the
League.
All buildings occupied by the League, or by any organization
placed under the control of the League, or by any of its officials,
or by the representatives of the H. C. P. at the capital of the
League shall enjoy the benefits of extra-territoriality.
The Secretariat of the League shall be established at
This City shall constitute the capital of the League.
The meetings of the Body of Delegates and of the Council shall
be held at the capital of the League, or in such other place as may
be determined by them.
Each of the H. C. P. may maintain a representative at the
capital of the League.
The expenses of the League, other than those occasioned by
meetings of the Council of the League, shall be borne by the States
members of the League, in accordance with the distribution among
the members of the Postal Union of the expenses of the Interna-
tional Postal Bureau. The expenses occasioned by meetings of
DOCUMENT 239 185
the Council of the League shall be divided equally among the States
represented on the Council.
The British Dominions (Australia, Canada,
Tentative South Africa, and New Zealand) and India shall be
represented.
Article II-B,
The Body of Delegates shall appoint Commissions to study
and report on economic, sanitary, and other similar problems of
international concern, and the Body of Delegates shall recommend
to the High Contracting Powers such action as these reports may
show to be necessary or desirable.
Article III.
The High Contracting Powers undertake to respect and pre-
serve as against external aggression the territorial integrity and ex-
isting political independence of all States members of the League.
If at any time it should appear that any feature of the settle-
ment made by this covenant and by the present treaties of peace
no longer conforms to the requirements of the situation, the League
shall take the matter under consideration and may recommend to
the parties any modification which it may think necessary. If such
recommendation is not accepted by the parties affected, the States,
members of the League, shall cease to be under any obligation In
respect of the subject matter of such recommendation.
In considering any such modification the League shall take into
account changes in the present conditions and aspirations of peo-
ples or present social and political relations, pursuant to the prin-
ciple, which the High Contracting Powers accept without reserva-
tion, that Governments derive their just powers from the consent
of the governed.
Article IV.
The Contracting Powers recognize the principle that the estab-
1 86 DOCUMENT 239
lishment and maintenance of peace will require the reduction of
national armaments to the lowest point consistent with domestic
safety and the enforcement by common action of international obli-
gations ; and the Executive Council is directed to formulate at once
after expert inquiry plans by which such a reduction may be brought
about. The plan so formulated shall be binding when, and only
when, unanimously approved by the Governments signatory to this
Covenant, but when so approved, it shall not be departed from by
any signatory without the consent of all.
As the basis for such a reduction of armaments, all the High
Contracting Powers hereby agree to abolish conscription and all
other forms of compulsory military service, and also agree that their
future forces of defense and of international action shall consist of
militia or volunteers, whose numbers and methods of training shall
be fixed, after expert inquiry, by the agreements with regard to the
reduction of armaments referred to in the last preceding paragraph.
The Executive Council shall also determine for the considera-
tion and action of the several governments what direct military
equipment and armament is fair and reasonable in proportion to
the scale of forces laid down in the programme of disarmament;
and these limits, when adopted, shall not be exceeded without the
permission of the Body of Delegates.
The Contracting Powers further agree that there shall be full
and frank publicity as to all national armaments and military or
naval programmes.
Article V.
The Contracting Powers jointly and severally agree that should
disputes or difficulties arise between or among them which cannot
be satisfactorily settled or adjusted by the ordinary processes of
diplomacy, they will in no case resort to armed force without pre-
viously submitting the questions and matters involved either to ar-
bitration or to inquiry by the Executive Council of the Body of
Delegates or until three months after the award by the arbitra-
DOCUMENT 239 187
tors or a decision by the Executive Council ; and that they will not
even then resort to armed force as against a member of the League
of Nations who complies with the award of the arbitrators or the
decision of the Executive Council.
The Powers signatory to this Covenant undertake and agree
that whenever any dispute or difficulty shall arise between or among
them, which the parties to the dispute recognize to be with regard
to any question of the law of nations, with regard to the Interpreta-
ion of a treaty, as to any fact which would, if established, consti-
tute a breach of international obligation, or as to any alleged damage
and the nature and measure of the reparation to be made therefor,
if such dispute or difficulty cannot be satisfactorily settled by the
ordinary processes of negotiation, to submit the whole subject mat-
ter to arbitration and to carry out in full good faith any award
or decision that may be rendered.
In case of arbitration, pending the creation of a permanent
court of international justice and in the absence of provisions in
any agreement between the parties to the dispute prescribing the
constitution of the court to which the dispute shall be submitted,
the matter or matters at issue shall be referred to three arbitrators,
one of the three to be selected by each of the parties to the dispute,
from outside their own nations, when there are but two such parties,
and the third by the two thus selected. When there are more than
two parties to the dispute, one arbitrator shall be named by each of
the several parties and the arbitrators thus named shall add to their
number others of their own choice, the number thus added to be
limited to the number which will suffice to give a deciding voice
to the arbitrators thus added in case of a division among the arbi-
trators chosen by the contending parties. In case the arbitrators
chosen by the contending parties cannot agree upon an additional
arbitrator or arbitrators, the additional arbitrator or arbitrators
shall be chosen by the Executive Council.
Fourth Paragraph. — Reserved.
188 DOCUMENT 239
Fifth Paragraph. — Reserved.
If there should arise between States members of the League any
dispute likely to lead to a rupture, which is not submitted to arbi-
tration under paragraphs two and three of this article, they shall
apply to the Executive Council to take the matter under considera-
tion for such mediatory action or recommendation as it may deem
wise in the circumstances. The Council shall immediately accept
the reference and the Chancellor shall give notice to the parties
and shall make the necessary arrangements for a full hearing, in-
vestigation, and consideration. The party upon whose demand the
matter has been referred to the League shall file with the Chan-
cellor of the League a statement of its case, with all the facts
and papers relevant to the dispute. The party against whom the
complaint is made shall be invited by the Chancellor to file a state-
ment of its case, with all relevant facts and papers. The Chancel-
lor shall forthwith publish the statements of the parties. The
H.C.P. agree that, in the case of the reference of any dispute to
the League under this Article, they will each, whether parties to the
dispute or not, place at the disposal of the Council to the fullest
possible extent all the Information In their possession which bears
upon the questions under discussion. The Council shall ascertain
and as soon as possible make public all the facts Involved in the
dispute and shall make such recommendations as It may deem wise
and practicable, based on the merits of the controversy and calcu-
lated to secure a just and lasting settlement. The Executive Coun-
cil shall do everything in Its power by way of mediation or con-
ciliation to bring about a peaceful settlement. The decisions of
the Executive Council shall be addressed to the disputants and shall
not have the force of a binding verdict. Should the Executive Coun-
cil fail to arrive at any conclusion, it shall be the privilege of the
members of the Executive Council to publish their several conclu-
sions or recommendations; and such publications shall not be re-
garded as an unfriendly act by either or any of the disputants.
is '
DOCUMENT 239 189
Where the efforts of the Council have led to the settlement of the
dispute, a statement shall be prepared for publication indicating
the nature of the dispute and the terms of settlement, together with
such explanation as may be appropriate. If the dispute has not
been settled, the report of the Council to the H.C.P. shall be pub-
lished. This report shall set forth, with all necessary facts and ex-
planations, the recommendations which the Council think just and
proper for the settlement of the dispute. If the report is unani-
mously agreed to by the members of the Council, other than the par-
ties to the dispute, the H.C.P. hereby agree that none of them will
go to war with any party which complies with its provisions. If
no unanimous report can be made it shall be the duty of the ma-
jority to issue a report indicating what they believe to be the facts
and containing the recommendations which they consider just and
proper. In the event of any State represented on the Council or of
any party to the dispute notifying the Chancellor within a period
of 14 days after the demand for reference to the League that in
its opinion the dispute is one which should be referred to the Body
of Delegates, the Chancellor shall refer the matter to that Body.
In addition the Council may at any time in the course of its inves-
tigation of a dispute or within the period of three months after
the making of its report refer the consideration of the dispute to
the Body of Delegates. In such cases all the relevant provisions
of this Article regarding the action and powers of the Executive
Council shall apply to the action and powers of the Body of Dele-
gates.
Every award by arbitrators and every decision by the Execu-
tive Council upon a matter in dispute between States must be ren-
dered within six months after formal reference.
Article VI.
Should any contracting power break or disregard its covenants
under Article V, it shall thereby ipso facto be deemed to have
190 DOCUMENT 239
committed an act of war against all the members of the League,
which shall immediately subject it to a complete economic and finan-
cial boycott, including the severance of all trade or financial rela-
tions, the prohibition of all intercourse between their subjects and
the subjects of the covenant-breaking State, and the prevention, so
far as possible, of all financial, commercial, or personal intercourse
between the subjects of the covenant-breaking State and the sub-
jects of any other State, whether a member of the League of Nations
or not.
It shall be the duty of the Executive Council in such a case to
recommend what effective military or naval force the members of
the League of Nations shall severally contribute, and to advise, if
it should think best, that the smaller members of the League be
excused from making any contribution to the armed forces to be
used against the covenant-breaking State.
The H.C.P. agree, further, that they will mutually support
one another in the financial and economic measures which they are
bound to take under this Article in order to minimize the loss and
inconvenience resulting therefrom, and that they will mutually sup-
port one another in resisting any special measures aimed at one of
their number by the State with which relations have been broken
off, and that they will afford passage through their territory to the
armed forces of any of the H.C.P. who are co-operating to resist
the breach of the preceding Article.
The covenant-breaking State shall, after the restoration of peace,
be subject to the regulations with regard to a peace establishment
provided for new States under the terms of Supplementary Arti-
cle IV,
Article VIL
Omitted.
Article VIII.
Any war or threat of war, whether immediately affecting any
DOCUMENT 239 191
of the Contracting Powers or not, is hereby declared a matter of
concern to the League of Nations and to all the Powers signatory
hereto, and those Powers hereby reserve the right to take any ac-
tion that may be deemed wise and effectual to safeguard the peace
of nations.
It is hereby also declared and agreed to be the friendly right
of each of the nations signatory or adherent to this Covenant to
draw the attention of the Body of Delegates or of the Executive
Council to any circumstances anywhere which threaten to disturb
international peace or the good understanding between nations upon
which peace depends.
Article IX.
In the event of a dispute arising between one of the Contract-
ing Powers and a Power not a party to this Covenant, the Contract-
ing Power involved hereby binds itself to endeavor to obtain the
submission of the dispute to arbitration. If the other Power will
not agree to submit the dispute to arbitration, the Contracting Power
shall bring the matter to the attention of the Executive Council.
The Council shall in such a case, in the name of the League of
Nations, invite the Power not a party to this Covenant to become
ad hoc a party, and if that Power consents it is hereby agreed that
the provisions hereinbefore contained and applicable to the submis-
sion of disputes to arbitration or discussion shall be in all respects
applicable to the dispute both in favor of and against such Power
as if it were a party to this Covenant.
In case the Power not a party to this Covenant shall not ac-
cept the invitation of the Executive Council to become ad hoc a
party, it shall be the duty of the Executive Council immediately to
institute an inquiry Into the circumstances and merits of the dispute
Involved and to recommend such joint action by the Contracting
Powers as may seem best and most effectual in the circumstances
disclosed.
192 DOCUMENT 239
Article X,
If hostilities should be begun or any hostile action taken against
the Contracting Power by the Power not a party to this Covenant
before a decision of the dispute by arbitrators or before investiga-
tion, report and recommendation by the Executive Council in regard
to the dispute, or contrary to such decision or recommendation, the
Contracting Powers engage thereupon to cease all commerce and
communication with that Power and also to unite in blockading and
closing the frontiers of that Power to all commerce or intercourse
with any part of the world, and to employ jointly any force which
may be agreed upon in accordance with Article VI to accomplish
that object. The Contracting Powers also undertake to unite in
coming to the assistance of the Contracting Power against which
hostile action has been taken, and to combine their armed forces
in its behalf.
Article XL
In case of a dispute between States not parties to this Covenant,
any Contracting Power may bring the matter to the attention of the
Delegates or the Executive Council, who shall thereupon tender the
good offices of the League of Nations with a view to the peace-
able settlement of the dispute.
If one of the States, a party to the dispute, shall offer and
agree to submit its interests and course of action wholly to the
control and decision of the League of Nations, that State shall
ad hoc be deemed a Contracting Power. If no one of the States,
parties to the dispute, shall so offer and agree, the Delegates shall,
through the Executive Council, of their own motion take such ac-
tion and make such recommendation to their governments as will
prevent hostilities and result in the settlement of the dispute.
Article XII.
Any Power not a party to this Covenant may apply to the Body
DOCUMENT 239 193
of Delegates for leave to become a party. If the Delegates shall
regard the granting thereof as likely to promote the peace, order,
and security of the World, they shall act favorably on the applica-
tion, and their favorable action shall operate to constitute the Power
so applying in all respects a full signatory party to this Covenant.
This action shall require the affirmative vote of two-thirds of the
Delegates.
Article XIII.
The Contracting Powers severally agree that the present Cove-
nant and Convention is accepted as abrogating all treaty obligations
inter se which are inconsistent with the terms hereof, and solemnly
engage that they will not enter into any engagements inconsistent
with the terms hereof.
In case any of the Powers signatory hereto or subsequently ad-
mitted to the League of Nations shall, before becoming a party
to this Covenant, have undertaken any treaty obligations which are
inconsistent with the terms of this Covenant, it shall be the duty
of such Power to take immediate steps to procure its release from
such obligations.
Supplementary Agreements.
I, II, III.
Reserved.
IV.
No new State shall be recognized by the League or admitted
into its membership except on condition that its military and naval
forces and armaments shall conform to standards prescribed by the
League in respect of it from time to time.
The League of Nations is empowered, directly and without
right of delegation, to watch over the relations inter se oi all new
independent States arising or created and shall assume and fulfil the
duty of conciliating and composing difiFerences between them with a
view to the maintenance of settled order and the general peace.
194 DOCUMENT 239
V,
The High Contracting Powers will work to establish and main-
tain fair hours and humane conditions of labour for all those within
their several jurisdictions and they will exert their influence in favour
of the adoption and maintenance of a similar policy and like safe-
guards wherever their industrial and commercial relations extend.
Also they will appoint Commissions to study conditions of industry
and labour in their international aspects and to make recommenda-
tions thereon, including the extension and improvement of existing
conventions.
VI.
Reserved.
VII.
Recognizing religious persecution and intolerance as fertile
sources of war, the Powers signatory hereto agree, and the League
of Nations shall exact from all new States and all States seeking
admission to it the promise, that they will make no law prohibiting
or interfering with the free exercise of religion, and that they will in
no way discriminate, either in law or in fact, against those who
practise any particular creed, religion, or belief whose practices are
not inconsistent with public order or public morals.
VIII.
i ; Reserved.
V: . . IX.
The High Contracting Powers agree that any treaty or Inter-
national engagement entered into between States members of the
League, shall be forthwith registered with the Chancellor and as
soon as possible published by him.
X.
Reserved.
^ If ■
195
DOCUMENT 240
Memorandum on the Draft Incorporating: Changes in Covenant*^ 1
Preamble. \
The words "jointly and severally" are omitted, as some of the
agreements are several. This is the only change.
Articles I and IL
These articles should really be considered together. While
incorporating various former provisions, they have been rewritten
by the British.
The changes are Intended
1. To provide for representatives, so as to permit the repre-
sentation of the dominions.
2. To limit the Council to the representatives of the Great
Powers.
3. To dignify the office of the Secretary, called Chancellor.
In addition, the provision which limited the action of the Body
of Delegates to approval of recommendations of the Council is
omitted, as the effect of any action of the Body of Delegates, not
specifically authorized, is very carefully limited.
Article II-J,
This Article is new. Its provisions are important but relate
chiefly to matters of detail.
The final paragraph of this Article, regarding representation of
the Dominions, Is tentative, so far as its language is concerned.
Article II'B. J
This Article is new but not important.
a. Author, D. H. M. A summary view of the changes in Document 239 from
ssident Wilson's second Paris Draft (Document 211). See Diary, p. 94.
President
196 DOCUMENT 240
Article III.
This Article has been recast, but incorporates generally, it Is be-
lieved, the spirit of the former draft.
Article IF.
Most of the changes are slight.
In the first paragraph, a few words have been inserted and added.
In the second paragraph, there is a verbal change.
In the fourth paragraph, the words regarding private manufac-
ture of munitions have been omitted.
Article V.
In the first paragraph the words "three months after the" are
substituted for the words "there has been an".
In the second paragraph are inserted the words "which the par-
ties to the dispute recognize to be".
In the third paragraph are inserted the words "pending the
creation of a permanent court of international justice and in the
absence of provisions in any agreement between the parties to the
dispute prescribing the constitution of the court to which the dispute
shall be submitted". Also in the third paragraph the words "tie
vote" are changed to "division" as there might be an uneven number
of original arbitrators appointed.
The fourth paragraph and the fifth paragraph are reserved as
no agreement was reached regarding their provisions.
The sixth paragraph has been somewhat recast but contains the
substance and to a large extent the language of the former draft.
The real change is a provision to the effect that either one of the
parties or the Council itself may refer the investigation to the
Body of Delegates.
In the seventh paragraph the period of twelve months Is changed
to six months.
DOCUMENT 240 197
Article VL
A few words have been deleted from the second paragraph.
The present third paragraph is new.
Article VII.
Former Article VII has been omitted entirely without substitu-
tion in the present draft. It is believed that the effect of the provi-
sions is accomplished by those of Article VI and Article X.
Article VIIL
The third and fourth paragraphs in the former draft have been
omitted.
Article IX.
In the first paragraph the following words have been deleted:
"to judicial decision or" (occurring twice) ; and also "and to submit
its case to judicial decision or to arbitration".
The words "Delegates" In this paragraph has been changed to
"Council".
A printer's error in the last line of the first paragraph has been
corrected by inserting the words "a party".
Article X.
The words "decision or" have been inserted in the fourth line
of the former draft.
In the eighth line of the former draft the words "that may be
necessary" have been changed to "which may be agreed upon in
accordance with Article VI".
Article XL
In the second paragraph the word "cause" has been changed to
"course".
Article XII .
The following words have been deleted: "whose government
IS based upon the principle of popular self-government".
198 DOCUMENT 240
Article XIIL
This Article is unchanged.
Supplementary Agreements.
I, II, and III.
These three Articles are reserved.
In lieu of these three articles, the British propose a draft con-
vention regarding mandataries, which requires detailed examination.
Generally speaking, it may be said that this draft convention
recognizes two classes of dependent peoples (a) Assisted States, and
(b) Vested Territories held upon trust.
In respect of the "Vested Territories," while adopting some of
the principles laid down in Supplementary Articles I, II, and III,
the British Convention gives less control to the League and more to
the mandataries.
IV.
This Article is unchanged.
V.
This Article has been slightly changed in language and expanded.
VI.
This Article is reserved.
The British suggest the omission for the present of this Article
until the specific provisions to be contained in the territorial treaties
can be considered.
VII.
This Article is unchanged.
VIII.
This Article is reserved.
IX.
This Article has been somewhat recast.
DOCUMENT 240 199
X.
This Article is reserved.
In lieu of this Article the British propose a draft convention
regarding equality of trade conditions, together with a draft con-
vention for freedom of transit and an annex to these conventions.
Detailed analysis of these papers is required before they can
properly be compared with the principles of Supplementary Article
X.
27 January, 19 19.
200
DOCUMENT 241
Peruvian Nate*
Communication from Peruvian Legation, Paris, to French
Minister of Foreign Affairs, on the subject of
Tacna and Arica.
(Received through the Secretary General of the Peace Conference.)
{Translation.)
I j PERUVIAN legation Paris, 27 Jan '19
in FRANCE.
M To His Excellency,
, The Minister of Foreign Affairs,
, I ; Paris,
'] Sir:
I have the honor to transmit to your Excellency a communica-
; tion which my Government charged me to make known to you,
I, r I which it plans to present before the Peace Conference or the
! ! League of Nations, and which is as follows :
I, i i "In the solemn moment when the Great Powers, after a heroic
1: struggle and superhuman efforts to destroy in Europe the domina-
t i tion of Force, have united to inaugurate the Peace Conference and
' I to reconstruct the world on a basis of justice and respect for in-
, I I ternational rights, even toward the conquered nations, Peru feels
r- 1 I I certain that injustice and violence will be prosecuted wherever they
; j,j ; I exist, and that it will be entirely possible to do away with all causes
)4 ' of future wars between the Republics of Peru and Chili.
) ;' S ■ "For about 2 5 years, serious problems have existed, which have
|) / 1^ kept South American nations in a state of constant agitation, and
which more than once have betrayed the peace of this continent.
i "Peru, attacked by Chili in 1879, was stripped of the rich de-
partment of Tarapaca with its deposits of saltpeter, as a result of
a. See Diary, p. 94.
ml
iiiii ;
DOCUMENT 241 201
the treaty signed in 1883. Peru was moreover obliged to agree to
the occupation of the two provinces of Tacna and Arica for a
period of 10 years, at the expiration of which their inhabitants
should decide by plebiscite the future nationality of these territories.
"After four years of stubborn resistance, this treaty imposed
on Peru has been violated by Chili, who refuses to restore the
provinces after the lapse of the period stipulated, and under dif-
ferent pretexts opposes carrying out the plebiscite.
*'This state of affairs, created contrary to all justice by force
of arms, has lasted since 1883, and to-day is becoming a most seri-
ous crisis. Indeed, the persecutions systematically carried out
against the inhabitants of the provinces of Tarapaca, Tacna, and
Arica, their bad treatment, and the humiliations of which they are
victims, has given rise throughout all Peru to a feeling of indigna-
tion which is growing from day to day, and threatens to erect a
barrier of hatred between the two countries which will be insur-
mountable unless an immediate remedy is brought to this situation
by bringing these questions to a solution based on the principles of
international morality established thanks to the recent war.
"The aim of the great powers is to assure peace throughout the
world; this will not be obtained in South America, but on the con-
trary discord will increase, and fighting will break out again, if the
great nations who direct the present movement with all the weight
of their moral force, do not come and apply to this conflict between
Peru and Chili the necessity of respecting the laws of justice and
civilization, and the duties of humanity."
202
DOCUMENT 242
Letter to Colonel House*"
27 January, 19 19.
My dear Colonel House :
I have the honor to report that at the conference which I held
today with Lord Robert Cecil pursuant to your instructions, tentative
agreement was reached between us In respect of the changes pro-
posed in the Covenant except in regard to those matters which were
mentioned to you by Lord Robert Cecil at the conference which
you held with him and Sir William Wiseman and myself this after-
noon.
The changes proposed by Lord Robert Cecil were extremely
numerous, and I trust that it will be found satisfactory that those
which I found it necessary to accept are quite limited in number.
It may be said, indeed, that these changes are chiefly connected
with the first two articles of the paper. The British wish to make
these changes with three ends in view:
(a) The representation of the Dominions, which requires
special representatives of the members of the League, the
Dominions having no ambassadors or ministers.
(b) The limitation of the membership of the Council to the
Great Powers and those Powers, if any, which the Great
Powers shall subsequently choose to add.
(c) Increased importance of the office of Secretary of the
League, who is called Chancellor.
I thought it consistent with your instructions to accept these
f(^ (<\ ' changes in order to reach agreement, as the two of them first named
jj'' : are regarded by the British as very important, and the third as highly
I j I ; desirable.
ml '
a. In explanation of the differences between Documents 211 and 239. See Diary,
p. 95.
/;
DOCUMENT 242 203
While Article III, which is highly important, has been recast,
the spirit of the American Draft has, I think, been preserved.
The change in the sixth paragraph of Article V is in substance
only an elaboration of procedure.
I think it may fairly be said that the other changes are either
verbal or relatively unimportant; for example. Article VII was
omitted because its provisions appear to be included in those of
Articles VI and X.
Submitted herewith are the following papers:
( 1 ) The American Draft which you handed to me."
(2) The new Draft which incorporates the changes agreed
upon.^
(3) A memorandum stating the changes by paragraphs.®
Very sincerely yours,
David Hunter Miller.
Colonel E. M. House,
Hotel de Crillon,
Paris.
a. Document 203.
b. Document 240.
c. Document 241.
} I
Pii
i
204
DOCUMENT 243
Letter to Lord Robert Cecil"
January 27, 19 19.
My dear Lord Robert : —
Herewith I beg to hand you a copy of the draft of the Cove-
nant,** which, I believe, incorporates the changes agreed upon by us
at our conference today.
Yours faithfully,
David Hunter Miller.
Lord Robert Cecil,
Hotel Majestic,
Paris.
a. See Diary, p. 95.
b. Document 239.
■ tn^'-
205
DOCUMENT 244
Letter to Calonei House"
AMERICAN COMMISSION TO NEGOTIATE PEACE
OFFICE OF TECHNICAL ADVISORS
4 FjiiACB OB liA COirCOBDB
PARIS
28 January, 19 19.
My dear Colonel House :
If you have not already seen it you may be interested m looking
at a copy of the Draft Convention'' regarding mandataries, pre-
pared by Lord Robert Cecil.
Sincerely yours,
David Hunter Miller.
Colonel E. M. House,
Hotel de Crillon.
a. See Diary, p. 95. I reproduce the letter heading to show the style used.
b. Documents 227 and 228, combined.
V
'J ■
I:
( 1 :
,ii] !■
i f
i P ■
206
DOCUMENT 245
Notes" on Draft Convention for "Equality of Trade Conditions"
The general purpose of the attached draft'' is similar to that
of the proposals already submitted to the American plenipoten-
tiaries. But there are some important conditions :
1. The draft attached speaks in terms of the "High Contract-
ing Parties" and seems to relate only to trade between sovereign
states and not to trade with colonies and protectorates.
2. There is a short provision of Freedom of Transit, which
is supplementary to a more elaborate draft of a separate Con-
vention dealing with Freedom of Transit.
3. Equality of treatment is stipulated with respect to tariffs
and import and export restrictions. National treatment is stipu-
lated for vessels, an exception being made for the coasting trade
and a special reservation being made in behalf of the principle that
the British dominions may confine their coasting trade to British
vessels.
4. There is a general provision against the use of unfair forms
of competition, but it is not proposed to take over any existing Con-
ventions relating to this subject.
5. Export bounties are not prohibited, but each of the con-
tracting parties is left free to protect itself against direct and in-
direct bounties including dumping.
6. Differential tariff treatment of trade between dominions
and colonies and their home countries is legalized.
7. A most-favored-nation clause, in its European form, is in-
cluded. This creates unnecessary difficulties and is objectionable.
8. There is no provision for a permanent commercial com-
mission, but it has provided for special commissions of inquiry, of
three members each, to which complaints shall be referred. The
a. Author, A. A. Young. See Diary, p. 95.
b. Document 221.
DOCUMENT 245 207
findings of the commission, it is suggested, may be communicated
to each of the states concerned for approval or disapproval, and
in case of disapproval the matter may be taken on appeal to an in-
ternational court.
9. The only sanction specifically provided is that any state
which is in default may not claim the privilege of equality of trade
conditions or of freedom of transit.
10. There is no provision for customs union, although I am
informed that those who drafted this proposed Convention have
considered the problem and are not adverse to permitting customs
unions in specified areas, composed of states with continuous ter-
ritory.
.\'
iVii'
. I ■
If!.
! 1 .
f 1
■■i i
ir^
209
DOCUMENT 246
Outline of Tentative Report and Recommendations Prepared by the
Intelligence Section, in Accordance with Instructions,
:^ ^ for the President and the Plenipotentiaries .
January 21, 1919«
INTRODUCTION.
The following report covers three groups of questions :
Pages
A. Territorial 5-84
B. Economic 85-92
C. Labor 93-98
A. Territorial.
The territorial section includes compact recommendations, dis-
cussions, and maps covering the following problem areas :
Pages
1 Alsace-Lorraine 5-8
2 Belgium 9-1 1
3 Luxemburg 12
4 Schleswig 13-14
5 Russia 15-17
6 Finland 18-19
7 Esthoaia 20
8 Lettonia 21
9 Poland and Lithuania 22-26
10 The Ukraine 27-28
1 1 Transcaucasia 29-30 ,
12 Czecho-Slovakia 31-34
*I3 Rumania 35-38 *2
14 Jugo-Slavia 39*45
15 Italy 46-50
16 German Austria 5 1-53
17 Hungary 54-55
a. See Diary, p. 95.
*
2
V
m
my
210 DOCUMENT 246
18 Albania 5^-58
19 Greece 59-60
20 Bulgaria 61-64
21 Constantinople and the Straits 65-68
22 Turkey 69-70
23 Armenia 7 1-73
24 Mesopotamia 74~75
25 Syria 76-77
26 Palestine 78-80
27 Arabia 8 1-84
The small maps interleaved with the text of the report are sup-
plemented by a general assembly map^ of Europe and western Asia
showing the ethnic lines, the recommended boundaries, and also the
boundaries of 19 14.
A subsequent report will deal with the remaining problem areas
to be considered by the conference,
B. Economic.
;|j; The economic section of the report includes recommendations
on the following topics :
sjifl i) No tariflf discriminations 87
ill '
Ij j'l 2) National treatment of vessels 88
3 ) Equal treatment of goods imported or
exported by different routes 88
*4) Exceptions to the above recommenda-
*3 tions 88-89
5 ) Freedom of transit 90
6) No export bounties 90
1^1^ \ 7) Suppression of unfair competition. ... 90
8) A state engaged in international trade
should be bound by the law 91
9) An international Trade Comnilssion 91-92
a. I have no copy of this map.
*
3
DOCUMENT 246 211
C. Labor.
The labor section of the report deals with the following topics :
I. Existing International Agreements . . 94
1 ) Child labor.
2) Labor of women and young
persons.
3 ) Migratory labor.
IL Relation to the League of Nations. . 95
i) A Periodic Conference upon
the International Aspect of
Labor Legislation in general.
2) A Bureau to serve these Peri-
odic Conferences.
Our instructions were, in presenting recommendations, to be
definite and set forth the best judgment we could attain at the
moment. Naturally *our confidence in the conclusions pre- *4
sented varies greatly. Our understanding is that the recommenda-
tions presented are to serve as points of departure for the Com-
mission.
Supporting these brief and simple discussions are manuscript
reports and much documentary material; and the specialists are
prepared to submit full memoranda on the request of the Com-
missioners.
*4
.U '
!
m
212 DOCUMENT 246
*5 *i. ALSACE-LORRAINE.
It is recommended:
i) That the provinces of Alsace and Lorraine with their
boundaries as of 1870 be restored to France.
2) That in addition territory in the basin of the Saar forming
a part of Lorraine in 18 14 be also restored to France, equitable
compensation being made to those Germans who wish to sell their
property to repatriate themselves.
3) That within the territory west of the Rhine which shall
continue to form a part of Germany:
a) All fortifications be destroyed.
b) The erection of new fortifications be forbidden.
c) The levy or presence of armed forces other than
those strictly necessary for police purposes be for-
bidden.
4) (Alternative recommendation to the preceding) — That, if
the proposal for disarmament of the left bank of the Rhine be un-
^1^1': *6 acceptable, the fullest ^consideration be given to the pro-
s'. ::r
posal that the French frontier be extended northward to include
most of the basin of the Saar, as shown by the purple line on map i,
and that there be added to Alsace the territory between the Lauter
and the Queich, so that the new French frontier in those regions
may correspond to the frontier of 18 14.
DISCUSSION.
i) It is recommended that the provinces of Alsace and Lor-
raine with their boundaries as of 1870 be restored to France.
This recommendation need not be discussed, since it is a
matter of common agreement that "the wrong done to
France by Prussia in 1871 in the matter of Alsace-Lorraine,
which has unsettled the peace of the world for nearly fifty
years, should be righted."
DOCUMENT 246 213
2) It is recommended that in addition territory in the basin of
the Saar forming a part of Lorraine in 18 14 be also restored to
France, equitable compensation being made to those Germans who
wish to sell their property to repatriate themselves.
This recommendation is made because the change from
the 18 14 to the 18 15 line was the first of the series of
Prussian encroachments on French territory, in a region
where it produced a maximum disturbance of the economic
life of France.
*The restoration of the line of 18 14 in Lorraine *7
may also be viewed as an indemnity for the damage
inflicted by Germany to the French coal mines of Lens and
Valenciennes.
The additional cession would transfer to France a Ger-
man-speaking population of about 355,000 people, who
have shown no desire for union with France. But the pres-
ent desires of these people should not prevent a just dis-
position of this important coal deposit in favor of a country
whose limited coal supplies have been much reduced by
unlicensed German exploitation and destruction in the pres-
ent war.
It is, of course, necessary to make liberal arrangements
for compensating those inhabitants who wish to remove to
Germany, and this is a part of the recommendation.
As to larger cessions to France in the region, they would
be contrary to the desires of the inhabitants, and have, we
are sure, no sufficient historic, strategic, or economic bases.
3) It is recommended that within the territory west of the
Rhine which shall continue to form a part of Germany: a) All
fortifications be destroyed; b) The erection of new fortifications
be forbidden; and c) The levy or presence of armed forces other
than those strictly necessary for police purposes be forbidden.
The concentration of a major part of the French
iron and coal resources in this neigh*borhood ren- *8
ders her peculiarly vulnerable to a sudden attack
launched by Germany from the region west of the Rhine.
Recommendation 3) is justified as a means of withdrawing
this perilous advantage from Germany.
♦8
214 DOCUMENT 246
Germany's industrial region to the east of the Rhine is,
it is thought, sufficiently guarded by that river as a major
military obstacle.
4) (Alternative recommendation to the preceding) — It is rec-
ommended that, if the proposal for disarmament of the left bank
of the Rhine be unacceptable, the fullest consideration be given to
the proposal that the French frontier be extended northward to
include most of the basin of the Saar, as shown by the purple line
on map i, and that there be added to Alsace the territory between
the Lauter and the Queich, so that the new French frontier in those
regions may correspond to the frontier of 18 14.
If the disarmament of the German territory on the left
bank of the Rhine is disapproved, the protection to France
■ .|; that this was intended to effect may have to be secured by
r['i pushing her frontier in the valley of the Saar beyond the
line of 1 8 14 so as to include most of the remainder of the
lljj basin of the Saar as shown on map i, and by adding to
'i;i|i Alsace the territory between the Lauter and the Queich so
;j|iif;; that the new French frontier in this latter region may cor-
)^ ;• respond to the frontier of 18 14.
Hill;
m
W
:m
■<■•:.
*8
DOCUMENT 246
215
*2. BELGIUM. *9
It is recommended:
i) That the treaty imposed on Belgium in 1839 be revised.
2) That the neutral status of Belgium be abolished.
3) Thaj: »the restriction be removed that "Antwerp shall be
solely a port of commerce," and that Holland's exclusive rights
over the lower Scheldt be abolished.
4) That the eastern frontier of Belgium be rectified in the
Malmedy and Maastricht regions, as shown on map 2.
DISCUSSION.
1 ) It is recommended that the treaty imposed on Belgium in
1839 ^^ revised.
The treaty of 1839 was imposed upon Belgium by the
five Powers, and certain of its provisions were accepted by
Belgium under protest. Of the five Powers of 1839 o"ly
France and England are now in a position to act, while
Holland, another signatory vitally interested, is not
a member of *the present peace conference. Further- *io
more, Germany definitely violated the neutrality of
Belgium. Under these circumstances a revision of the
treaty is essential.
2) It is recommended that the neutral status of Belgium be
abolished.
Belgium asks for the abolition of her neutral status be-
cause she lost in 19 14 whatever advantage she might have
had by a guaranteed neutrality, and therefore she has no
correlative obligation to observe neutrality toward others.
There is common agreement that confidence in inter-
national law would be gravely impaired among the nations
if any attempt were made to limit the sovereignty which
Belgium should enjoy in common with all other free peoples
(see President Wilson's seventh point).
3) It is recommended that the restriction be removed that
"Antwerp shall be solely a port of commerce," and that Holland's
exclusive rights over the lower Scheldt be abolished.
The freedom of the Scheldt is a matter of vital interest
to Belgium. The Scheldt is the chief commercial highway
of that country, and her main means of communication with
*10
i 2l6 DOCUMENT 246
j the outside world. Yet the sovereignty of the lower course
! of the river for 45 miles is exercised by Holland in such a
;'; way as to limit Belgium in time of peace and to close the
river to all navigation in time of war. Holland's policy has
I been essentially negative and selfish, injuring Antwerp for
' the benefit of Rotterdam; and her exclusive rights should
be abolished.
*ii *This could be accomplished by the cession to
Belgium of the territory on the southern bank of the
I - Scheldt, whose natural relations are with Belgium. The
jji area of this territory is 275 square miles, with only 79,000
ij inhabitants. The cession of it would give Belgium her nat-
i'h ural frontiei" of defence and the commercial and military
■.\\\' freedom which she requires.
I 4) It is recommended that the eastern frontier of Belgium be
' jii'l rectified in the Malmedy and Maastricht regions, as shown on
map 2.
The necessity for the rectification of Belgium's eastern
frontier can be understood only by examining a map. The
eastern frontier of Belgium is reduced by the long narrow
extension of Holland's territory between Limburg and
Maastricht. The neutrality of both Holland and Luxem-
burg was violated by Germany on the ground of so-called
military necessity.
Moreover, the frontier between Belgium and Prussia
fixed in 18 1 5 by the annexations of Prussia now stands in
such relation to the city of I^iege that this great industrial
and military center is within range of German guns. The
whole of southern Belgium is open to easy invasion. In
addition to this, Germany's action was notorious in the
years before the war in building strategic railways along the
Belgian frontier, railways which constitute a permanent
menace to Belgium unless they are destroyed or the frontier
extended beyond them.
The people of most of the territory thus added speak
a German dialect, but about Malmedy the language is still
Walloon, and the relations with Belgium are especially
close.
It should be observed, however, that no readjustment
of the eastern frontier would be so advantageous to Bel-
gium as the complete and effective disarmament of the left
bank of the Rhine, recommended in the report on Alsace-
Lorraine, page 7.
1=1
DOCUMENT 246 217
*3. LUXEMBURG. *i2
It is recommended:
I ) That the grand duchy of Luxemburg be joined to Belgium
or be given an independent status, as its people may prefer.
DISCUSSION.
The grand duchy of Luxemburg was separated from
Belgium in 1839, and constituted the German-speaking por-
tion of the province of Luxemburg in Belgium. Belgium
has always resented this separation, and is now asking for
the reunion of the grand duchy with Belgium. Opinion in
the grand duchy has not yet crystallized.
There is an active propaganda now going on in favor
of union with France, although the French government has
declared that it has no designs upon Luxemburg. The
annexation of Luxemburg by France would be a serious dis-
advantage to Belgium. It would partially enclose her south-
ernmost province and would add still more to the iron re-
sources of France, thus making Belgium absolutely depen-
dent upon France for her supply.
*4. SCHLESWIG. *i3
It is recommended:
i) That the northern districts of Schleswig be ceded to Den-
mark, if a plebiscite shows that the people wish to be united to
Denmark.
DISCUSSION.
This recommendation is based upon a provision of the
treaty of Prague, 1866, Article V, a provision which was
never carried out by Prussia. A popular vote on the sub-
ject was promised by President Wilson in his letter pub-
lished November 23, 19 18.
Care must be exercised in the holding of a plebiscite lest
the will of the Danish-speaking people of the north be
frustrated by the German majorities to the south, and by
German manipulation.
*i3
f i
Hi
2l8 DOCUMENT 246
The North Schleswig Voters Association has provided
a just and safe plan. They propose that a vote be taken
throughout North Schleswig as a whole by all men and
women aged twenty years or over who were either born in
Schleswig or have resided there for ten years. An analysis
of all available data indicates that the blue line on map 3
delimits the Danish-speaking districts of North Schleswig,
which would have an area of 15,040 square miles (Rhode
Island 10,067 square miles) and a population of 165,000.
South of the blue line on the map is the territory
*I4 of Middle Schleswig, which includes *the cities of
Schleswig and Husum and is delimited on the south
by the red line. This region should also have an oppor-
tunity to vote upon the question of union with Denmark, but
the vote should be taken separately from that of North
Schleswig and preferably by small administrative districts
and islands, because it is a region of mixed population where
the Danish speaking element is much smaller than in the
north and the relations with Denmark less close.
A plebiscite should also be taken In south Schleswig if
desired, but it Is in the main a German-speaking region and
should vote separately.
It should be noted that the discussion of the problem
of a plebiscite has nothing to do with the internationaliza-
tion of the Kiel Canal and a proposed neutral belt on its
northern border, nor with the future of the island of Heligo-
land which in the past has been united for administrative
purposes to the province of Schleswig-Holstein.
^^^s
*I4
^■-.v;;;2&•
Inquiry- 6^6
DOCUMENT 246 219
*5. RUSSIA. *i5
It is recommended:
1 ) That encouragement be given, at opportune times, to the
reunion with Russia of those border regions of the south and west
which have broken away and set up their own national governments,
particularly the Baltic Provinces and the Ukraine, if reunion can be
accomplished within a federalized or genuinely democratic Russia.
2) That there be excepted from the general application of the
principle above mentioned Finland, Poland, the Armenians in
Transcaucasia, and probably Lithuania. See map 4.
DISCUSSION.
i) It is recommended that encouragement be given, at oppor-
tune times, to the reunion with Russia of those border regions of
the south and west which have broken away and set up their own
national governments, particularly the Baltic Provinces and the
Ukraine, if *reunion can be accomplished within a federal- *i6
ized or genuinely democratic Russia.
Russia may be divided into great natural regions, each
with its own distinctive economic life. No one region is
self-sufficient enough to form a strong state. The economic
welfare of all would be served by reunion on a federal basis,
which would, of course, also have other evident advantages.
On the other hand, if the Bolshevist government is in
power and is continuing its present course at the time when
Russian territorial questions are settled at the peace con-
ference, there seems to be no alternative to accepting the
independence and tracing the frontiers of all the non-Rus-
sian nationalities under discussion.
It may, however, be advisable to make recognition of
such countries as the Ukraine or the Esth or Lettish repub-
lics conditional upon the holding of a referendum some
years later upon the question of reunion with Russia.
2) It is recommended that there be excepted from the general
*i6
j I • i '
:; 1
220 DOCUMENT 246
application of the principle above mentioned Finland, Poland, the
Armenians of Transcaucasia, and probably Lithuania.
With reference to the exceptions to the first recommen-
dation, it may be noted that they represent nationalities
whose severance from the Russian Empire would not de-
stroy the Russian economic fabric, and would at the same
time liberate peoples who, because of historic Dp-
*I7 pressions and geographical position, would *prob-
ably develop a stronger political and economic life if
permitted to separate from the rest of the former Russian
Empire.
Among these exceptions the case of Lithuania is much
less clear-cut than the others. If she unites with Poland, as
now seems quite possible, she will naturally share Poland's
independence. If not, she will be in the position of the
Esths and Letts rather than of the Finns and Poles.
*'7.
PROPOSEDBOUNDARIfiS IK RUSSIA ^
IncLUiry 662
LinguiBtio Boun4ary
DOCUMENT 246 221
*6. FINLAND. *i8
It is recommended:
1 ) That there be established the state of Finland, with bound-
aries as outlined on map 5.
2) That the Aland Islands, formerly a part of Russia, be trans-
ferred to Sweden.
DISCUSSION,
i) It is recommended that there be established the state of
Finland, with boundaries as outlined on map 5.
The contest between the Finns and the Russians was
marked in later years by growing intolerance of Finnish as-
pirations. The separatist movement gained new impetus
under these conditions, and in the past two years has de-
veloped rapidly. Racially dissimilar, the Finns have
widened the differences between themselves and the Rus-
sians by their progressiveness and by an economic and po-
litical independence which calls for the establishment of a
new state.
The boundaries of the proposed state are extended
northward so as to include an outlet upon the Arctic Ocean.
This would work no detriment to Russia, since Finland ac-
quires only a narrow and almost uninhabited strip of ter-
ritory about 150 miles long and 40 miles wide, which in-
cludes, however, the excellent ice-free harbor of
Pachenga.
*Otherwise the proposed boundary follows nat- *I9
ural features and lines of ethnic demarcation and,
as on the northwest, an established historic frontier.
2) It is recommended that the Aland Islands, formerly a part
of Russia, be transferred to Sweden.
♦19
1 I r. .
222 DOCUMENT 246
The Aland Islands should be transferred to Sweden
because: a) Their population is almost purely Swedish in
race and language; and b) Their inhabitants have repeated-
ly expressed, in the last year, a strong desire to be united
to Sweden.
As defined on the map Finland would have an area of
about 400,000 square kilometers and a population of
3,250,000.
;•-•%;
*i9
Inquiry 658
i& ie
Linguistic Boundary
DOCUMENT 246 223
*7. ESTHONIA. *2o
It is recommended:
I ) That there be established the state of Esthonia, with bound-
aries as shown on map 5.
DISCUSSION.
The limits of the proposed state practically coincide with
the limits of the Esth ethnic area, and on the east with the
administrative frontier between the Baltic Provinces and
Russia proper. Only on the southeast does it encroach on
historically Russian territory to take in the Pechory district,
inhabited predominantly by Esths.
Within the indicated frontiers Esthonia would have an
area of 44,000 square kilometers (twice the size of Massa-
chusetts), and a population of 1,175,000.
*8. LETTONIA. *2i
It is recommended:
I ) That there be established the state of Lettonia, with bound-
aries as indicated on map 5.
DISCUSSION.
The proposed state of Lettonia is limited by boundaries
which follow remarkably clean-cut and long-standing Lettish
ethnic frontiers, and cannot be defined in terms of natural
features because there is a striking absence of topographic
relief. As drawn upon the map the line corresponds nearly
everywhere to the boundaries of existing administrative di-
visions.
The state would include 61,000 square kilometers
(about three times the size of Massachusetts) and a popu-
lation of about 2,600,000.
•^21
224 DOCUMENT 246
*22 *9. POLAND AND LITHUANIA.
It is recommended :
i) That a) an Independent Polish state be established which
b) shall Include Indisputably Polish populations. See map 6.
2) That a union of Poland and Lithuania be effected, if pos-
sible, with boundaries as shown on map 6.
3) That, If this union is not effected, Poland and Lithuania be
established as mutually Independent states, with boundaries not as
shown on map 6, but adjusted to the ethnic facts in the Vllna-
Grodno-Minsk district.
4) That Poland be given a secure and unhampered access to
the Baltic.
DISCUSSION.
i) It is recommended: That a) an Independent Polish state
be established which b) shall include Indisputably Polish popula-
tions.
i-a The world has agreed that a Polish state shall be
*23 established which shall be politI*cally, and, as far as
possible, economically Independent.
l-b If a new Polish state Is formed It follows that the fron-
tiers should be drawn so as to Include all of the Polish ma-
jorities contiguous to the main group. In order not to leave
^ - upon the outside Polish districts that may form the center
/^^ of irredentist movements.
The eastern frontier assigned on the map to the Polish-
Lithuanian-Catholic White Russian complex ought to stand,
; i because It Is based primarily on the line of religious division
U = between Catholics and Orthodox.
c The proposed Poland might include on the southeast the
hotly disputed and very puzzling territory and population
1 of eastern Gallcia, Included between the solid and the dotted
lines on the map. The region should be assigned to Poland
only if the Ukraine Is In Its present state of chaos, and then
only as a self-governing province, guaranteed by the League
of Nations the right to decide Its own allegiance at a later
date.
*23
DOCUMENT 246 225
If at the time of decision by the peace conference the
Ukraine should give evidences of vitality, the disputed belt
should be assigned to it, because in that region the Ukraini-
ans (although very backward in culture) outnumber the
Poles two to one.
In the duchy of Teschen the boundary follows the Po-
lish-Czech linguistic line, disregarding Czech claims to the
whole of this rich little territory on a weak basis of "historic
rights."
To the west, in Germany, the boundary has been drawn
so as to include only unmistakably Polish territory, in so far
as the sinuosities of the linguistic frontier permit.
*2) It is recommended that a union of Poland and *24
Lithuania be effected, if possible, with boundaries as shown on
map 6.
Poland and Lithuania are bound together by so many
historic ties and common economic interests that their
former political union, lasting for many centuries, should be
restored. Lithuania is not strong enough to stand alone.
The suggested union is universally desired by the Poles,
and the Lithuanians could probably be brought to accept it
if the terms of the union guaranteed full equality between
their state and Poland, and if they were favored in the
settlement of the chief dispute between them and Poland.
This dispute relates to the governments of Vilna, Grodno,
and Minsk, which were historically and ethnically Lithu-
anian, but which have long since been denationalized and
more and more polonized. If the union depended upon
it the Poles would probably concede these territories to
Lithuania,
3) It is recommended that, if this union is not effected, Poland
and Lithuania be estaWished as mutually independent states, with
boundaries not as shown on map 6, but adjusted to the ethnic facts
in the Vilna-Grodno-Minsk district.
If a union of Poland and Lithuania cannot be brought
about an acrimonious dispute as to the three governments
mentioned above will be developed between the two states.
*24
5:ivV
226 DOCUMENT 246
These governments lie in a region where statistics are more
defective than in any other part of the Russian Empire in
Europe. Only a careful census conducted by an im-
^ *25 partial commission could supply *the facts. Only a
very tentative boundary line between the two inde-
pendent states is given on map 6.
As outlined on the map the state of Lithuania would
have an area of about 132,000 square kilometers and a
population of about 6,100,000.
4) It is recommended that Poland be given a secure and un-
hampered access to the Baltic.
The problem of Polish access to the sea is very difficult.
If such access is accorded through continuous Polish terri-
tory the province of East Prussia, with a population of
1,600,000 Germans, will be cut off from the rest of Ger-
many. If Poland does not thus secure access to the sea,
600,000 Poles in West Prussia will remain under German
rule and 20,000,000 Poles in Poland proper will probably
have but a hampered and precarious commercial outlet, sub-
ject to alien and, for a time at least, hostile (cf. Posen)
decision.
It is believed that the lesser of these evils Is preferable,
- and that the "Corridor" and Danzig should be ceded to
Poland, as shown on map 6. East Prussia, though terri-
torially cut off from the rest of Germany, could easily be
assured railroad transit across the Polish corridor (a simple
matter as compared with assuring port facilities to Poland) ,
i- and has, in addition, excellent communication via Konigs-
t berg and the Baltic.
In either case a people is asked to entrust large Interests
to the League of Nations. In the case of Poland they are
vital Interests; in the case of Germany, aside from Prussian
sentiment, they are quite secondary. The line of separation
of Eastern Prussia from Poland is a very sharply defined
linguistic line, and leaves relatively small Polish
*26 populations subject to *Germany and small German
,; populations subject to Poland. The map, 6, shows
;■ ; an alternative line, however, which leaves all but the south-
eastern corner of West Prussia to Germany.
*26
v^'i'
DOCUMENT 246 227
*io. THE UKRAINE. ^27
It is recommended :
1 ) That there be established a Ukrainian state, provided
Ukrainian nationalism is strong enough to justify that decision.
See maps 4 and 7.
2 ) That Eastern Galicia be included in the Ukrainian state, if
the state is strong; otherwise, in Poland as a self-governing
province, guaranteed the right to determine its allegiance at a later
date.
3 ) That the Crimea be given to the Ukraine.
DISCUSSION,
i) It is recommended that there be established a Ukrainian
state, provided Ukrainian nationalism is strong enough to justify
that decision.
The Ukraine to-day is in a state of chaos, and it is still
uncertain which will gain the upper hand, the Russian
sympathies of the upper classes or the Bolshevist or
anarchist tendencies of the masses.
If the population can be pulled together and a state
established as outlined on maps 4 and 7, the Ukraine
would have an area *of nearly 600,000 square kilo- *28
meters, or somewhat larger than the German Em-
pire, and a population of nearly 37,000,000.
2) It is recommended that Eastern Galicia be included in the
Ukrainian state, if the state is strong; otherwise, in Poland as a
self-governing province, guaranteed the right to determine its al-
legiance at a later date.
The boundaries of the proposed Polish state might In-
clude on the southeast the hotly disputed and very puzzling
territory and population of Eastern Galicia, included be-
tween the solid and the dotted lines on the map. The region
should be assigned to Poland only if the Ukraine is in its
present state of chaos, and then only as a self-governing
*28
228
DOCUMENT 246
province, guaranteed by the League of Nations the right to
decide its own allegiance at a later date.
If at the time of decision by the peace conference the
Ukraine should give evidences of vitality, the disputed belt
should be assigned to it, because in that region the Ukrai-
nians (although very backward in culture) outnumber the
Poles two to one.
3) It is recommended that the Crimea be given to the Ukraine.
The population of the Crimea is predominantly Tatar
and Great Russian. It seems best, however, to attach the
Crimea to the Ukraine, since: a) it is cut off from Russia
proper by a belt of unmistakably Ukrainian territory; b)
the creation of a small Crimean state seems inexpedient;
c) the Ukraine has at best but a restricted outlet upon the
Black Sea.
*28
U3
•H
CO
o
<
o
CO
P
<:
M
s ' J. » < »
s
^/^l:^■«^.v-^^^'t'^W'^\^ I ^
\
^^.ai^^^'''c^r''^^^n''^ivf ^ \ aDi^ \
\
2
r-^-S? k^ \ •i.S^^^^^''^ \L \»^ \ ' fl U \ \, I
/\ \
W^^^ fFn ''^:x,-.--4-— ^^^ ^^^ \ /-
JmZ
{
^v ^!!lt==:=^^ — \ ^ %»• \ -^-"^
w^^^
v^Vl-^^
o
to
' 1 i 1 '^ f^ ■
^
^
^
o^^^^i^4-^--'^^
_j^^^^
'"^ — sr\zri^^M
^5*^ ii^'^n'
i?.. \ A^V^D^fi^iSfiBiS/?
^x^^^^^
^
K
%
*
M^^ ^T 1 ■ s?l 1
,/jJi^k]
3^0
^^^
*
14^^
^^&3/h,|
^»^
1
i
1
*
^ ;
« t 1 fciv. t^=rr^ fl .
/C^^^^
M
iC i -^
^
?
T^^
i Vi*i \ 1/ /^
^/h^^^^M
<
«
?
IK
pW^ '
r|!o| ! , #fi>,
' ^'^ {{wF
^^C{^9
«
1 / Vi^^i
-1— — -1 P "^
'v
i
Wy
n
STo^J
^^^V^T?
%
<fl
^J^^t^*
%
Wm
^^
«&\'\
/ £ ^"^l*
~^ ^
"■^ft
*v^
^^A^
4
n
'^Wp^
5^-^^^^
^iv /^m55l 1 M^
/d^^
jj^^
n
ffp^P^^^'^^^l^^ — ^
^
^^
n
^^^r^^WSIj^^^S
B
^P
4
o
^^^Oj^r^^ /"^ r^^
^^
^ -"^
l\'%K ixh^^^^^^ j ^ 1 s^
^o3
^S^T
rt
8
^:iM£^^^^^^W^^^---j|
ra
^p
/"^"sW^^^^^^^^'^^^^ '-^vll
^^^
i^^>^r^
■J
a
m
H
3J
*
ffi
^s
s ••. ^••' ? 5f 5 »
?
>1
o
W
o
•H
-P
(»
•H
•H
DOCUMENT 246 229
*n. TRANSCAUCASIA. H9
It is recommended :
i) That the Armenians of Transcaucasia be given permanent
Independence as a part of the new Armenian state. See maps 7
and 20.
2) That the Georgians receive provisional independence.
3) That the Azerbaijan Tatars receive provisional indepen-
dence.
DISCUSSION.
i) It is recommended that the Armenians of Transcaucasia be
given permanent independence as a part of the new Armenian state.
The Armenians of Transcaucasia form a compact group
of people near the historic homeland of the Armenoid race.
Though they were under the Russian flag in 19 14 they rep-
resent one of the peripheral groups absorbed in relatively
late years by the slowly expanding empire of the Czars.
No local differences set them apart from their kinsmen in
Turkey, and they should be reunited with the rest of the
Armenian population in that region in order i ) to give the
new state every reasonable element of strength; 2) to fol-
low the principle of grouping in a common domain people
of like religion, political sympathies and speech.
*2) It is recommended that the Georgians receive pro- ^30
visional independence.
The proposed state of Georgia would have an ample
outlet upon the Black Sea from Batum northward, would
have an excellent northern frontier in the snowy heights of
the Caucasus Mountains, would be limited on the east by
a fairly clear-cut ethnic line, and on the south by the borders
of the Armenian highlands.
Such a state would have an area of 67,000 square kilo-
meters and a population of 2,550,000.
Possibly the Georgians would wish to join Armenia in
some federal scheme, and if this could be accomplished it
might well be to their mutual advantage. There has de-
veloped between them a certain amount of political dif-
*30
230 DOCUMENT 246
ference, and for this reason a provisional independence is
recommended. If this tension can be diminished a future
union would be desirable.
3) It is recommended that the Azerbaijan Tatars receive pro-
visional independence.
The Azerbaijan Tatars are a distinct ethnic group re-
i quiring separate consideration on account of marked dif-
ferences of race and religion. Were this group to be in-
cluded in a Georgian or Armenian state it would constitute
a disturbing element. Hence provisional independence is
recommended, pending the stabilizing of the states In this
region, and a possible union with Georgia and Armenia.
If the independence of the state is realized on the lines
laid down on map 7, it would have an area of 90,000 square
kilometers and a population of 2,400,000.
*3i *i2. CZECHO-SLOVAKIA.
It Is recommended :
i) That there be established a Czecho-Slovak state, with
boundaries as shown on maps 8 and 16.
2) That the red cross-lined Ruthenian area shown on map 16
be either:
a) placed as a separate state under the protection of
Czecho-Slovakia as a mandatory of the League of
Nations; or
b) incorporated in the Czecho-Slovak state.
3) That under strong international guarantees the Czecho-
slovak state have a secure outlet to the sea, and that neighboring
states have the right of transit across the Czecho-Slovak territory.
DISCUSSION,
i) It Is recommended that there be established a Czecho-
slovak state, with boundaries as shown on maps 8 and 16.
The establishment of a Czecho-Slovak state is now a
fait accompli. Its governmental machinery has been or-
*3i
DOCUMENT 246 231
ganized, and it only remains to fix the conditions of Its ex-
istence and of its frontiers.
*In Austria the boundary follows the historical *32
frontiers of the Bohemian crownlands, with slight
rectifications to conform with the Polish frontier in Ger-
man Silesia and to exclude the Polish district around
Teschen.
Such a frontier would include more than 2,500,000
Germans, but the economic interests of these Germans
bind them to the Czecho-Slovak state. Their own senti-
ment is reported to be chiefly in favor of the proposed
union, provided they are guaranteed minority rights and
economic equality.
In Hungary the recommended frontier runs south of
the linguistic border and includes more than 500,000
Magyars. There is thus afforded, along a short strip of
the Danube, a commercial outlet of great importance to a
landlocked state. Moreover, were the ethnic lines to be
followed it would cross at right angles the main northern
tributary valleys of the Danube in this region, and serious-
ly derange the economic relations of the people.
The state of Czecho-Slovakia would have about the
area and roughly the dimensions of New York state, and
would have a population not greatly in excess.
2) It is recommended that the red cross-lined Ruthenian area
shown on map 16 be either:
a) placed as a separate state under the protection of
Czecho-Slovakia as a mandatory of the League of
Nations; or
b) incorporated in the Czecho-Slovak state.
It is undesirable that the Ruthenians of eastern Hun-
gary should continue under Hungarian rule. They
have suffered particularly from *Magyar oppression, *33
which has led to intense hatred of Hungarian gov-
ernment and to a strong movement of emigration. It is
undesirable that a Hungarian wedge be thrust between the
Rumanians and the Czecho-Slovaks.
The union of the Ruthenians of eastern Hungary with
Poland or with a Ukrainian state seems undesirable. The
Poles are unwilling to incorporate these territories, and
their rule would be hateful to the Ruthenians. Union with
the Ukraine, which might lead to incorporation within a
*33
232 DOCUMENT 246
future Russia, is opposed by many Ruthenians, It is cer-
}tainly undesirable that Russia should ever extend across the
Carpathians, down to the Hungarian plain.
The physical weakness of Ruthenia and the political
incapacity of its inhabitants seem to forbid the possibility
of its becoming a completely independent state.
The political control of Czecho-Slovakia over Ruthenia
has been advocated by Ruthenian representatives. Slovaks
' and Ruthenians live under the same social and economic
conditions, and their interests are closely allied. Czecho-
slovakia would give these backward people greater oppor-
tunities for development than any other political regime.
2-b This solution is simpler than Recommendation 2a)
above, and better unless the extreme and very narrow elon-
gation of the Czecho-Slovak state eastward should be con-
sidered unacceptable.
Within the boundaries of red-cross-lined Ruthenia as
shown on map 16, there is a population of rather less than
400,000, which corresponds to the population of Rhode
Island (540,000).
*34 . *3) I* ^s recommended that under strong international
guarantees the Czecho-Slovak state have a secure outlet to the sea,
and that neighboring states have the right of transit across the
Czecho-Slovak territory.
The southern border of the Czecho-Slovak state is 200
miles from Trieste and its northern boundary 250 miles
from Hamburg. It constitutes the heart of Central Europe,
' and the need for an adequate outlet to the sea (in addition
to the long loop of the Danube-Aegean route) is obvious.
'The form which the guarantee will take involves questions
' in economics and international law, and therefore is not
discussed specifically in this report. For a statement of the
principles involved see the economic section of this report,
page 85.
No less imperative is it that the peoples in adjacent
territories, who depend upon the through routes which cross
Czecho-Slovakia, should be guaranteed adequate passage of
,],-;.v men and goods for the purposes of commercial intercourse.
The two matters should be studied together, in order that
special privileges should not be granted to, or withheld
from,. Czecho-Slovakia, and tend to cause economic Wars,
and even military struggles.
*34
<■.:. ^v )..
8
DOCUMENT 246 233
^13. RUMANIA. *35
It is recommended:
i) That the following additions be made to the Rumanian
state, with boundaries as shown on map 9:
a) The whole of Bessarabia;
b) The ethnographically Rumanian part of Bukowina;
c) All of Transjdvania;
d) The ethnic Rumanian zone in Hungary proper;
e) About two-thirds of the Banat.
2) That in the case of the Dobrudja the Rumanian-Bulgarian
frontier which existed before 19 13 be restored, with slight rectifi-
cations.
DISCUSSION.
i-a) It is recommended that the whole of Bessarabia be added
to the Rumanian state.
Bessarabia was once a part of Rumania (14th Century
to 1812; 1856 to 1878), and is quite predominantly Ru-
manian in character. The idea of detaching the
northern and southeastern cor*ners (Khotin and *36
Akkerman respectively) and giving them to the
Ukraine is unwise, since it would break up an historic prov-
ince and abandon a good natural frontier, the river
Dniester, on account of relatively small Ukrainian colonies.
i-b) It is recommended that the ethnographical Rumanian
part of Bukowina be added to the Rumanian state.
Bukowina is divided into two main ethnographic re-
gions. It is composed chiefly of Ruthenian and Rumanian
populations with a fairly well defined line of division, which
is rather closely followed in maps 9 and 10. Its area is
10,000 square kilometers and its population numbers
800,000.
i-c) It is recommended that all of Transylvania be added to
the Rumanian state.
The union of the Rumanians of Transylvania with the
*36
234 DOCUMENT 246
Rumanian state is desirable in order that they should be
'freed from Hungary, by whom they have been harshly
treated- iti the past, and in order that people of like sym-
pathies and speech should be segregated within a common
frontier.
If this recommendation is carried out provision should
be made for the minority rights of the people in the Magyar
(Szekler) area of eastern Transylvania.
i-d) It is recommended that the ethnic Rumanian zone in
Hungary proper be added to the Rumanian state.
There should be united with Rumania contiguous masses
of Rumanian peoples in eastern Hungary outside the bor-
ders of Transylvania. It is essential, however, that
■'''■■■■ ''^':'^'^ 37 there be careful delimita*tion of the Rumanian-
Hungarian frontier so as to do full justice to delicate
questions of commercial outlets that affect dense groups of
both Rumanian and Magyar populations. The western
frontier of Rumania as shown on map 10 is so drawn in
,, Hungary proper as to dislocate by the smallest amount the
former commercial relations of the people.
i-e) It is recommended that about two-thirds of the Banat be
added to the Rumanian state.
In the Banat there is an intermixture of Serbs, Rumani-
ans, and Germans. Of the three counties composing the
region two, Krasso and Temes, are chiefly Rumanian, while
the third, Torontal, is predominantly Serb. It is recom-
mended that the two former be assigned to Rumania,
that the latter be assigned to Jugo-Slavia, and that the line
■ of division follow the administrative boundaries, because
>^^r the Hungarian counties are essentially historic entities, cor-
responding roughly to the Swiss cantons. The utilization
of these long-established limits in the running of a new
frontier would prevent local administrative confusion.
2) It is recommended that in the case of the Dobrudja the
Rumanian-Bulgarian frontier which existed before 19 13 be re-
stored, with slight rectifications.
The Rumanian-Bulgarian frontier established by the
*37
W'h
ROUMANIA
Inquiry 659
^^Sw«^
E^iai''?J5!^fc"«'^sd.lUJ IW
^'^^m^- ['
3^^^^^^
bunr' "^f^^^iK^Kp /7^3S^^Si/jBl
^^
iJ^^^^i^
"w^l^^^^^MpK
G
®|
1
^^^L
anbor
? J^
^»)j^^&s
V^^gr^il ■
^^^^ffiJSl^fi
R^r^S^^-
K
^^s
Si
^^•i^i^^TlJo^
3
-^^^^W|[mifc
p *-^ ^n^MwrniJ*
^^fvSnrBJiMo^ua d
irW^
'°°'**"'^i^^^^l^^'^%^^R^^^l^'^^^^^
^^^t/J^-i
^
■ I^TBJJIM Bom
V 1
CO
m
y>CKIUOO
BIS
^gl^l
"^ A
\i
* >.W&
.A
JuatRPAT
^„g^
^ r
10
CO
M
<
p
o
w
{21
o
DOCUMENT 246 235
treaty which closed the Second Balkan War took from Bul-
garia a strip of territory almost exclusively Bulgarian in
population, which numbered about 260,000. In the
course of more than a generation the population on
*either side of the boundary of 1878 had become *38
adjusted to it. It is now recommended that the old
frontier be restored, with slight rectifications (see maps 9
and 10).
Moreover, to place the boundary farther south, to meet
Rumania's desire for better harbor facilities, would violate
the principle of self-determination and hurt Bulgaria far
more seriously than it would help Rumania.
Rumania could not well object, in view of her very gen-
erous gains elsewhere.
*i4. JUGO-SLAVIA. ^39
It is recommended:
1 ) That an independent federated Jugo-Slav state be estab-
lished, to consist of Serbia, Montenegro, and the Serbo-Croat-
Slovene territory within former Austria-Hungary.
2) That the boundaries of the new state within the former
Austro-Hungarian Empire be drawn as on maps 11, 16 and 18,
so as to coincide roughly with the language boundary except in two
regions — the Banat of Temesvar and the Istria-Ispnzo region.
3) That the Serbo- Rumanian, Serbo-Bulgarian, Serbo-Greek,
and Serbo-Albanian boundaries fixed in 19 13 be confirmed for
Jugo-Slavia.
4) That the tentative suggestion be considered of uniting the
"High Albanians" in Northern Albania with their own kin in
western Serbia and southeastern Montenegro, and placing this
homogeneous group of tribes as a self-governing unit under Jugo-
slavia as the mandatory of the League of Nations, with the explicit
*right reserved to it of appeal to the League of Nations in *40
case of oppression; and of altering the former Serbian and Monte-
negrin boundaries, as fixed in 1913, according to map 18.
*40
236 DOCUMENT 246
DISCUSSION.
i) It is recommended that an independent Jugo-Slav state be
established, to consist of Serbia, Montenegro, and the Serbo-Croat-
Slovene territory within former Austria-Hungary.
The political and linguistic affiliations of the peoples
whom it is proposed to unite in a single state are so well
known that a detailed argument is unnecessary. It is from
every standpoint desirable that the proposed state should
not be broken up into its individual fragments along the
lines of minor distinctions, as between the Slovenes and the
rest of Jugo-Slavia or between Montenegro and Serbia. It
is our conclusion that the Adriatic interests of these peoples
and the size and strength of their immediate neighbors
make it desirable that strong efforts be made to amalga-
mate the political and economic interests of the group.
But the state should be a federation, with autonomous
parts, to accommodate the religious, historic, and minor
racial differences of the Serbs, Montenegrins, Croats and
Slovenes.
2) It is recommended that the boundaries of the new state
*4i within the former Austro-Hungarian * Empire be drawn
as on maps 11, 16, and 18, so as to coincide roughly with the
language boundary except in two regions — the Banat of Temesvar
and the Istria-Isonzo region.
The boundary questions of Jugo-Slavia, within what
was Austria-Hungary, are focussed in two regions — the
Banat of Temesvar and the Istria-Isonzo region. In the
Banat it is impossible to establish a practical frontier
which approaches the linguistic frontier closely, be-
cause of the intermixture of Rumanians, Serbs and Ger-
mans. But the line as drawn on map 1 1 follows with
reasonable fidelity the line of language division and at the
same time corresponds fairly closely to the line of adminis-
trative division. It places two counties, Krasso and Temes,
which are inhabited chiefly by Rumanians, in Rumania, and
a third, Torontal, in Jugo-Slavia. The Hungarian counties
are essentially historical entities, and for this reason local
administration would be faciliated by following a recog-
•41
DOCUMENT 246 237
nized administrative division. The boundary as drawn on
the map leaves to the Rumanians uninterrupted railway
communication between Temesvar and the Danube.
By giving Torontal to the Jugo-Slavs they would have
added to their domain a region noted for its surplus of
cereals, a highly important matter since in the main Jugo-
slavia would be marked by a deficiency of cereals.
The Jugo-Slav boundary in the Istria-Isonzo region is
the subject of hot dispute because both the Jugo-Slavs and
the Italians are eager for the possession of the eastern
Adriatic littoral and its ports. The commercial and strategic
advantages accruing to the possessor are obvious.
*The proposed boundary coincides in general *42
with the main watershed of the Carnic and Julian
Alps, and follows the crest of the high ridges forming the
backbone of the Istrlan peninsula. It gives to Italy all of
that portion of the Isonzo basin and of the eastern Adriatic
coast to which she has any valid claim, together with as
much of the hinterland, peopled by Slavs, as is vitally
needed on economic grounds. It gives to the Jugo-Slavs
part of the Istrlan coast and all of the Dalmatian coast and
archipelago claimed by Italy, with a fine series of harbors
from Fiume southward.
The proposed division would add 6,680 square kilo-
meters to Italy and a population of 715,000, consisting of
345,000 Italians and 370,000 Jugo-Slavs. In Jugo-Slav
territory there would be left 75,000 Italians, a very small
number as compared with the number of Jugo-Slavs in Italy.
The Jugo-Slavs would be left in undisturbed possession of
a stretch of coast upon which their hopes have centered for
years, and where the Italian claim to majorities is unsub-
stantiated, except in the case of several of the coast towns,
such as Fiume and Zara — there Is a small Italian majority
in Fiume proper, but a small Croat majority if the suburb
of Susak, in fact a part of Fiume, be added.
The retention of Fiume by Jugo-Slavia is vital to the
interests of the latter, and likewise assures to the more re-
mote hinterland, including Austria and Hungary, the ad-
vantages of two competing ports under the control of dif-
ferent nations.
Italy is accorded on the east as much natural protection
as can be permitted without giving undue weight to strategic
considerations. As defined the line affords reasonable pro-
•42
■Mi
238 DOCUMENT 246
tection for Trieste and Pola and their connecting
*43 railway, and in fact would leave the Jugo-Slavs in *a
position of military inferiority if they did not have
a protective mountainous terrain and one of the best coasts
in the world for defensive naval operations. For almost
its entire length the boundary follows watersheds on high
and sparsely settled plateaus. It is not without at least
remote historical basis, since it follows the frontier between
Italy and the Provinces as it existed for several centuries
during the Roman period.
3) It is recommended that the Serbo-Rumanian, Serbo-Bul-
garian, Serbo-Greek, and Serbo-Albanian boundaries fixed in 19 13
be confirmed for Jugo-Slavia.
There is no sufficient justification, and there would be
less wisdom, in disturbing the Serbo-Rumanian, Serbo-Bul-
garian, or the Serbo-Greek frontiers established in 19 13.
To do so would precipitate acrimonious and unmanageable
difficulties, especially in Macedonia. The same is probably
true of all but a minute, extreme northern part of the Serbo-
Albanian boundary, although, as we elsewhere point out,
when Albania is approached doubt enters and lingers.
4) It is recommended that the tentative suggestion be con-
sidered of uniting the "High Albanians" of Northern Albania with
their own kin in western Serbia and southeastern Montenegro, and
placing this homogeneous group of tribes as a self-governing unit
under Jugo-Slavia as a mandatory of the League of Nations, with
*44 the explicit *right reserved to it of appeal to the League of
Nations in case of oppression; and of altering the former Serbian
and Montenegrin boundaries, as fixed in 19 13, according to map 18.
This would open to the Albanian mountaineers the
markets, the grain fields, and the winter pastures on which
they have relied in the past; it would give to Jugo-Slavia
the use of the waterways and harbor which form the mari-
time outlet for the basin of Lake Scutari. The Albanians
Involved would be insured a recognized status bordering on
independence and an opportunity to be heard in case of
oppression.
*44
0>
1
o
M
QQ
i
DOCUMENT 246 239
On the other hand it appears unwise to grant Jugo-
slavia complete sovereignty in Northern Albania, since
Serbs and Albanians at present dislike and distrust each
other. Doubtless in time the process of absorption of the
Albanian population would follow the course it is now run-
ning, but the process should not be violently stimulated, and
the Albanians should certainly be protected against abuse.
In view of the very primitive societal organization of
the Albanian tribes, the separation of the Northern from
Central Albania might prove harmless, and even beneficial.
By no other device, apparently, can the "High Albanians"
be reunited with their brethren in Montenegro and Serbia,
for only if Jugo-Slavia is their assigned protector can this
be accomplished, and that state cannot, at least cannot at
present, be given control of Central Albania.
The area of the Northern Albanian district is 9,800
square kilometers, and the population numbers
275,000. About one-third of this area *and nearly *45
half of the population are from Serbia and Monte-
negro as they existed before 19 14. The people live mostly
in the valley floors tributary to the Lake Scutari drainage
system, and about the Lake itself, with bands of population
along the major mountain valleys.
*i5. ITALY. *46
It is recommended :
1 ) That Italy be given a northern frontier midway between
the linguistic line and the line of the treaty of London, 19 15. The
proposed line is delimited on maps 12 to 15 inclusive.
2) That Italy's eastern frontier be rectified as shown on map
15-
3) That consideration be given the doubtful claim of Italy to
a sphere of influence at Avlona.
4) That Rhodes and the Dodecanese be assigned to Greece.
5) That Libya be given a hinterland adequate for access to
the Sudan and its trade, but so limited as not to hamper the French
colonial domain or the Anglo-Egyptian Sudan.
♦46
240 DOCUMENT 246
DISCUSSION.
I ) It is recommended that Italy be given a northern frontier
*47 midway between the linguistic *line and the line of the treaty
of London, 19 15. The proposed line is delimited on maps 12 to
15 inclusive.
This recommendation would give Italy all that part of
the Tyrol to which she has any just claim on linguistic, cul-
tural or historical grounds. It would leave no rational
basis for future irredentist agitation in this direction. It
transfers to Italy over io,ooo square kilometers of terri-
tory and a population consisting of 373,000 Italians and
Ladins, i6i,ooo Germans and 3,000 others.
The recommended line does not meet those claims of
: ' : Italy which are based on strategic grounds alone, for the
line of 1915, following as it does the main watershed, gives
incomparably the best strategic frontier. On the other
hand, the proposed line does ameliorate the intentionally
bad frontier imposed upon Italy by Austria, and some such
amelioration seems essential If the Italians are to enter a
League of Nations with confidence in its ability to render
their peaceful existence reasonably sure. The weight of
this argument would be augmented If Italy were confronted
by a united and potentially powerful German state on the
north. The task of the League of Nations will be rendered
easier and its success made more certain by the adjustment
H of Italy's northern frontier at least in part along lines which
would discourage armed aggression by a powerful German
state.
■ As laid down upon the map the proposed boundary Is
a good line from the geographical standpoint, since it fol-
lows natural lines of demarcation and coincides with the
marked topographical barrier between regions climatically
dissimilar- Its position Is easily recognizable on the ground,
it is capable of clear and accurate delimitation, and is not
subject to change from natural causes. Since throughout
its entire length it traverses regions of little or no popu-
lation it does not interfere with the activities of the
*48 local popu*latIon, and the small number of practi-
cable passes makes the administration of customs
and other frontier regulations simple.
Finally, it is so drawn as to throw into Austria about
*48
/!■
DOCUMENT 246 241
71,000 Germans, with a minority of 10,000 Italians and
Ladins, forming properly a part of the Austrian realm.
Were the hne of 19 15 to be followed (red line on map 13),
it would simply throw the irredentist problem into Aus-
trian territory and would not lead to a lasting peace.
2) It is recommended that Italy's eastern frontier be rectified
as shown on map 15.
The Jugo-Slav boundary in the Istria-Isonzo region is
the subject of hot dispute because both the Jugo-Slavs and
the Italians are eager for the possession of the eastern
Adriatic littoral and its ports. The commercial and stra-
tegic advantages accruing to the possessor are obvious.
The proposed boundary coincides in general with the
main watershed of the Carnic and Julian Alps, and follows
the crest of the high ridge forming the backbone of the
Istrian peninsula. It gives to Italy all that portion of the
Isonzo basin and of the eastern Adriatic to which she has
any valid claim, together with as much of the hinterland,
peopled by Slavs, as is vitally needed on economic grounds.
It gives to the Jugo-Slavs part of the Istrian coast and
all of the Dalmatian coast and archipelago claimed by Italy,
with a fine series of harbors from Fiume southward.
The proposed division would add 6,680 square kilo-
meters to Italy and a population of 715,000 consist-
ing of 345,000 Italians and 370,000 Jugo-*Slavs. *49
In Jugo-Slav territory there would be left 75,000
Italians, a very small number as compared with the number
of Jugo-Slavs in Italy. The Jugo-Slavs would be left in
undisturbed possession of a stretch of coast upon which
their hopes have centered for years, and where the Italian
claim to majorities is unsubstantiated, except in the case of
several of the coast towns, such as Fiume and Zara — there
is a small Italian majority in Fiume proper, but a small
Croat majority if the suburb of Susak, in fact a part of
Fiume, be added.
The retention of Fiume by Jugo-Slavla is vital to the
interests of the latter, and likewise assures to the more
remote hinterland, including Austria and Hungary, the ad-
vantages of two competing ports under the control of dif-
ferent nations.
Italy is accorded on the east as much natural protection
*49
242 DOCUMENT 246
as can be permitted without giving undue weight to stra-
tegic considerations. As defined the line affords reasonable
* protection for Trieste and Pola and their connecting rail-
way, and in fact would leave the Jugo-Slavs in a position of
military inferiority If they did not have a protective moun-
tainous terrain and one of the best coasts in the world for
defensive naval operations. For almost its entire length
the boundary follows watersheds on high and sparsely set-
tled plateaus. It is not without at least remote historical
basis, since it follows the frontier between Italy and the
Provinces as It existed for several centuries during the
Roman period.
3) It is recommended that consideration be given to the doubt-
ful claim of Italy to a sphere of influence at Avlona.
Probably Italy must be left in Avlona and its im-
*50 mediately adjacent territory, not how*ever, as the
final possessor of the region, but as a mandatory of
the League of Nations. In this manner any alleged propa-
gandist movements may be reviewed and restrictions im-
posed in harmony with the spirit of the time in which they
^ arise. Otherwise there will be left in both the northern and
southern ends of Jugo-Slavia regions of conflict between
two neighboring peoples, the Jugo-Slavs and the Italians,
" from which there could result only continued discord and
possible war.
4) It is recommended that Rhodes and the Dodecanese be
assigned to Greece.
Over 80% of the population of Rhodes and the Dodec-
anese are Greek Orthodox. They are bitterly opposed to
the present Italian occupation, and should be assigned to
the mother country.
5) It is recommended that Libya be given a hinterland ade-
quate for access to the Sudan and its trade, but so limited as not to
hamper the French colonial domain or the Anglo-Egyptian Sudan.
The need for such a hinterland is evident, and with the
limitations mentioned it is fair to satisfy this need. The
proposed action would no doubt be agreeable to France and
Great Britain.
*5o
Mr
12
ID
•H
c
c
si
«
c
k
c
ja
u
9
i
^
o
o
«
o
KMM>e>»^>-t&i..i^»nK .
^EZIA
Plate *IV. Map showing coincidence of proposed new frontier with northern limit
of the Adige geographic basin (shaded blue). While the upper Eisack basin
drains in.to the Adige through a long, narrow gorge below Klausen, the upper baa in
is in reality more open toward the German areas north and east.
M..i_» Divide between Adige system of connecting trenches on the south, and
the Inn and Drave systems. 'on the north; also the proposed new front.lftj?:^
« Hydrographic divide, the 1915 Treaty of Loiidon line, and the beet
strategic front ier,
••••#•••• present Austro- Italian frontier. .
r
Plata III
Important Corridors of Central Alps Inquiry 642b 1 1+3
tJote how present J^ustro- Italian frontier breaches entire eystem of parallel
oaat-weat valley trenches (shaded green) and intervening laountaitL barriers
(unshaded), and controle the north-south connecting trench,
*"^™"^^*^ Recoffimended neir frontier, — #— • Present A ustro- Italian frontier.
1915 Treaty of London line, (the best strategic frontier
Linguistic line, separating areas of Latia and Xeutonic speech*
-I. is N Z - r S T ,R I A R B G I N
Inquiry 653 .15
The proposed boujndary
^ — •i— The alternative bToundary
PLftTE ir
DOCUMENT 246 243
*i6. GERMAN AUSTRIA. *5i
It is recommended :
i) That German Austria if established as an independent
state be given boundaries as shown on map 16.
2) That Austria's frontier in the Tyrol be rectified to put
Italy in a position of less disadvantage than formerly.
3) That the German Austrians receive' the assurance of an
outlet for their trade, either at Trieste or Fiume, or both.
DISCUSSION,
i) It is recommended that German Austria if established as
an independent state be given boundaries as shown on map 16.
The frontiers of the future state of Austria, if Austria
chooses the path of independence, are drawn on the map so
as to correspond roughly to the central block of Germans
living in the crownlands of Upper and Lower Austria, Salz-
burg, Carinthia, the Vorarlberg, German Tyrol, and Styria.
Except upon the Italian and Jugo-Slav frontier the
historic boundaries separating German Austria
*from Bavaria, Bohemia, Moravia, and Hungary *52
have been preserved. These historic boundaries
leave about 2,500,000 Germans in western Hungary, but
the adjustment of the frontier to include them would result
in a disturbance of long-established institutions, and until
it becomes clear that it is sincerely desired by the people in
question it seems unwise to include them.
A similar block of 250,000 Germans is left In Bohemia
and Moravia to form part of the state of Czecho-Slovakla.
But the people seem rather to prefer union with the new
Czecho-Slovak state, though their sentiments have not yet
been clearly enough expressed to form the basis of a posi-
tive conclusion. It should likewise be noted once more that
there is everywhere a decided disadvantage In disturbing
such historic entitles as Bohemia and Moravia.
Along the Jugo-Slav frontier the proposed boundary
departs from the language line only so far as is necessary
to avoid derangements of economic relations.
2) That Austria's frontier in the Tyrol be rectified to put Italy
in a position of less disadvantage than formerly (see map 14).
*S2
244 DOCUMENT 246
':' This recommendation would give Italy all that part of
the Tyrol to which she has any just claim on linguistic,
cultural, or historical grounds. It would leave no rational
>■;■ basis for future irredentist agitation in this direction. It
transfers to Italy over 10,000 square kilometers of terri-
tory and a population consisting of 373,000 Italians and
Ladins, 161,000 Germans, and 3,000 others.
The recommended line does not meet those claims of
Italy which are based on strategic grounds alone, for
*52a the line of 1915, follow*ing as it does the main
watershed, gives incomparably the best strategic
- frontier. On the other hand, the proposed line does
ameliorate the intentionally bad frontier imposed upon
Italy by Austria, and some such amelioration seems essen-
tial if the Italians are to enter a League of Nations with
confidence in its ability to render their peaceful existence
reasonably sure. The weight of this argument would be
augmented if Italy were confronted by a united and po-
tentially powerful German state on the north. The task
of the League of Nations will be rendered easier and its
success made more certain by the adjustment of Italy's
'northern frontier at least in part along lines which would
V discourage armed aggression by a powerful German state.
As laid down upon the map the proposed boundary is a
good line from the geographical standpoint, since it follows
' ;n lines of demarcation and coincides with the marked
■ ?■■ topographical barrier between regions climatically dissimi-
lar. Its position is easily recognizable on the ground, it is
capable of clear and accurate delimitation, and is not subject
to change from natural causes. Since throughout its entire
length it traverses regions of little or no population it does
not interfere with the activities of the local population, and
the small number of practicable passes makes the adminis-
; tration of customs and other frontier regulations simple.
Finally, it is so drawn as to throw into Austria about
71,000 Germans, with a minority of 10,000 Italians and
Ladins, forming properly a part of the Austrian realm.
' Were the line of 191 5 to be followed (red line on map 13),
it would simply throw the irredentist problem into Austrian
territory and would not lead to a lasting peace.
*53 *3) I^ ^s recommended that the German Austrians re-
ceive the assurance of an outlet for their trade, either at Trieste
or Fiume, or both.
*53
y
DOCUMENT 246 245
There is no doubt that the principle of adequate com^
raercial outlets will be universally recognized. It forms the
subject of that part of this report which deals with trade
agreements as those should stand in the new text of inter-
national law (see ^the economic section of this report,
page 90). .
*i7. HUNGARY. *54
It is recommended :
1 ) That the boundaries of Hungary be established as on map
16, so as to release to their respective nationals those elements of
the populations which desire to be freed from Hungarian rule.
2) That the citizens of the new Hungarian state receive the
assurance of an outlet for their trade, either at Trieste or Fiume,
as well as rights of unrestricted commerce on the lower Danube.
DISCUSSION.
I ) It is recommended that the boundaries of Hungary be es-
tablished as on map 16, so as to release to their respective nationals
those elements of the populations which desire to be freed from
Hungarian rule.
The boundaries of the proposed Hungary do not follow
historic lines, and the new state would have but half the
area and population that Hungary had before the war.
Except along the Czecho-Slovak frontier and in Transyl-
vania no large compact masses of Magyars would be placed
under alien political control. Wherever they are
placed under other flags it is *because of the geo- *55
graphical separation from the central mass of
Magyars or to satisfy vital economic needs of neighboring
states.
Further reduction of Hungary along the lines of Czech
and Rumanian claims seems eminently undesirable. It
would be unwise to give Rumania the mouth of the Maros.
Likewise undesirable is the existence of a corridor between
Czecho-Slovakia and Jugo-Slavia, since the region of the
corridor is preeminently Magyar in character.
The recommended boundary still leaves to the Magyars
the larger part of the coal fields of northern Hungary,
*S5
246 DOCUMENT 246
2) It is recommended that the citizens of the new Hungarian
state receive the assurance of an outlet for their trade, either at
Trieste or Fiume, as well as rights of unrestricted commerce on
the lower Danube.
For a discussion of the principle of adequate commer-
cial outlets, see the economic section of this report, page
85. It may be mentioned specifically, however, that the
Danube in Hungary (and its navigable course generally)
should be placed under international control, and the
through railways of Hungary subjected to a supervision
similar to that imposed on Czecho-Slovakia's through rail-
ways, in order to insure fair transit and unrestricted outlets
for interior regions-
"55
DOCUMENT 246 247
*i8. ALBANIA. *s6
The Albanian region presents problems so complicated in de-
tail, and the proposed settlements are so experimental in form,
and so many interests are involved, both near and remote, that
definite recommendations are felt to be unsafe at this time. We
merely present the following considerations as of possible aid to
the plenipotentiaries :
The boundary of the proposed state of Albania as
drawn in 19 13 was highly artificial, cutting not only lines
of economic intercourse and national affiliations, but even
tribal ties, the strongest bond in a society based on kinship.
In fact, the project of a united Albania appears imprac-
ticable. The weakness of national feeling among the
people, the disruptive forces which spring from backward
political institutions, the difficulties of communication, the
intrigues of neighboring states — all these are obstacles
which can be faced only under the protection of a great
Power like England or the United States, and then only
by a Power sufficiently imbued with the missionary spirit to
be willing to spend its efforts unselfishly. Such a course is
no doubt out of the question.
Therefore we suggest that, in Northern Albania,
a compact group of Albanians might be ^segregated, *57
united with their own kin in southeastern Monte-
negro and western Serbia, and placed under the supervision
of Jugo-Slavia (see map 17) as the mandatory of the
League of Nations, but with the exphcit right of appeal to
the League in case of oppression.
This would open to the Albanian mountaineers the
markets, the grain fields, and the winter pastures on which
they have relied in the past; it would give to Jugo-Slavia
the use of the waterways and harbor which form the mari-
time outlet for the basin of Lake Scutari. The Albanians
involved would be insured a recognized status bordering on
independence and an opportunity to be heard In case of
oppression.
On the other hand it appears unwise to grant Jugo-
Slavia complete sovereignty in Northern Albania, since
*S7
■■'■ :'''l '
248 DOCUMENT 246
Serbs and Albanians at present dislike and distrust each
other. Doubtless in time the process of absorption of the
Albanian population would follow the course it is now run-
ning, but the process should not be violently stimulated, and
the Albanians should certainly be protected against abuse.
In view of the very primitive societal organization of
the Albanian tribes, the separation of Northern from Cen-
tral Albania might prove harmless, and even beneficial. By
no other device, apparently, can the "High Albanians" be
reunited with their brethren in Montenegro and Serbia, for
only if Jugo-Slavia is their assigned protector can this be
accomplished, and that state cannot, at least cannot at pres-
ent, be given control of Central Albania.
The area of the Northern Albanian district is 9,800
square kilometers, and the population numbers 275,000.
About one-third of this area and nearly half of the popu-
lation are from Serbia and Montenegro as they ex-
*58 isted before 19 14. The *people live mostly in the
valley floors tributary to the Lake Scutari drainage
system, and about the lake itself, with bands of population
along the major mountain valleys.
The central block of Albanian territory presents a most
difficult problem. It should probably be granted nominal
independence under some disinterested Power as mandatory
of the League of Nations. Italy would be the natural man-
datory for many reasons. But it is precisely because of
the outside interference of interested Powers that there
have been such unhappy developments in Balkan affairs in
the past, and Italy therefore seems to be excluded because
of the sharp feeling against her in both Greece and Jugo-
Slavia.
Probably Italy must be left in Avlona and its immedi-
ately adjacent territory, not, however, as the final possessor
of the region, but as a mandatory of the League of Nations.
In this manner any alleged propagandist movements may
be reviewed and restrictions imposed in harmony with the
spirit of the time in which they arise. Otherwise there will
be left in both the northern and southern ends of Jugo-
Slavia regions of conflict between two neighboring peoples,
the Jugo-Slavs and the Italians, from which there could re-
sult only continued discord and possible war.
*58
A L B A W I A
Inquiry 648
m - Mi iiii I I 1 1 I i M H I
17
DOCUMENT 246 249
*i9. GREECE. *59
It is recommended:
1 ) That the frontiers of Greece in the north and the northeast
shall remain as they were in 19 14 and as established at the close
of the Second Balkan War.
2) That on the northwest the frontier of Greece be established
as shown on map 18.
3) That Rhodes and the Dodecanese be assigned to Greece.
DISCUSSION.
1 ) It is recommended that the frontiers of Greece in the north
and the northeast shall remain as they were in 1914, and as estab-
lished at the close of the Second Balkan War.
No change is recommended in the northern frontier of
Greece. The claims of the Greeks to the territory along
the whole northern coast of the Aegean appear inadmis-
sible because they would block Bulgaria from direct access
to the Aegean for the sake of a shallow fringe of Greeks
along the shore.
In accepting the present boundaries a settlement
of the Macedonian question on the lines *laid down *6o
in 1 9 13 is recommended. It is believed that the
population of central Macedonia, which is mixed and still
unsettled in nationality, will adapt itself to the rule of
Jugo-Slavia; and that that Power will be contented with
its ports on the upper Adriatic and will resign its former
ambition to hold Saloniki.
2) It is recommended that on the northwest the frontier of
Greece be established as shown on map 18.
The extension of the Greek frontier into Southern
Albania is based upon ethnic considerations. About Koritsa
there is a strong native Moslem (Albanian) element, but
exclusion of this portion would be economically injurious,
and would block the Greeks from the only good road unit-
*6o
250 DOCUMENT 246
ing the northern territories and running from Kastoria to
Jannina.
Only on the basis of a united Albania (which we do not
recommend) should southern Albania be withheld from
Greece. Southern Albania's strong Hellenic inclinations
and culture, and the success with which Greece has in the
past assimilated Albanian elements, indicate that this terri-
tory should be ceded to Greece with full sovereignty.
The area in question is estimated to include 2,400 square
miles and about 250,000 inhabitants, of whom approxi-
mately one-half are Christians.
3) It is recommended that Rhodes and the Dodecanese be
assigned to Greece.
Over 80% of the population of Rhodes and the Dodec-
anese are Greek Orthodox. They are bitterly opposed to
the present Italian occupation, and should be assigned to
the mother country.
■'•';;■.■
*6o
THE BALKANS
18
Inquiry 655
1
Linguistic Bounary
DOCUMENT 246 251
*2o. BULGARIA. Hi
It is recommended:
i) That Bulgaria be confirmed in her possession of the strip
of territory on the Aegean allotted to her at Bucharest in 19 13, as
indicated on map 18.
2) That Bulgaria receive guarantees for the freedom of her
transit trade through the ports of Kavala and Saloniki.
3) That the Adrianople frontier be extended towards Con-
stantinople on a modified Enos-Midia line as indicated on map 18.
4) That the Rumanian-Bulgarian frontier in the Dobrudja
which existed before 19 13 be restored, with slight rectifications.
DISCUSSION.
i) It is recommended that Bulgaria be confirmed in her pos-
session of the strip of territory on the Aegean allotted to her at
Bucharest in 19 13.
The coastal belt assigned to Bulgaria by the treaty which
closed the Second Balkan War is much less than that de-
sired by Bulgaria, and deprives her of the harbor of
Kavala which she *claims as an essential outlet for *62
her western commerce. It is recommended that the
coastal belt be maintained as in 19 14 in order to prevent
the roundabout routing of Bulgaria's trade by way of the
Black Sea and the Bosphorus.
The Greeks lay claim to the whole littoral to the east
of Kavala through Thrace to the shores of the Black Sea.
True, they formed the largest element of the population
next to the Turks, but to grant them this strip would bar
the direct access of Bulgaria to the sea, and would engender
great bitterness that might even lead to war.
2) It is recommended that Bulgaria receive guarantees for the
freedom of her transit trade through the ports of Kavala and
Saloniki.
♦62
252 DOCUMENT 246
Map 18 shows the main topographic outlines of western
Bulgaria and the extent to which that region, which in-
cludes the capital and the densest population, depends upon
direct access to the Aegean through the Greek ports of
Kavala and Saloniki.
The Bulgarian harbor of Dedeagatch at the mouth of
the Maritza river is too remote from the region to serve
as an outlet, and its facilities are far inferior to those of
the Greek ports.
It is almost as essential to Bulgaria to have freedom of
access to these ports as if she were a landlocked state; and
such access should be protected by guarantees established
by the League of Nations and in conformity with the prin-
ciple of unrestricted commercial intercourse as described on
page 90 of the economic section of this report.
*63 *3) It is recommended that the Adrianople frontier be
extended towards Constantinople on a modified Enos-Midia line as
indicated on map 18.
The extension of the Bulgarian territory on a modified
Enos-Midia line is based less on Bulgaria's claim to the ad-
ditional territory than on the desire to set the boundaries of
the internationalized state in the Constantinople region
within limits as narrow as possible; this because it is un-
desirable to extend that territory beyond the point needed
for the safeguarding of the milk, vegetable and water supply
of the city of Constantinople. Expansion beyond that point
would involve new problems that would inevitably embar-
rass the administration of the new state.
There is also the point that Bulgaria dealt the Turk a
master-blow in the capture of Adrianople in the First Balkan
War, lost the flower of her manhood in the attempt to drive
the Turk from Europe, and would probably forget the
wrongs done her by the treaty which closed the Second Bal-
kan War and which drove her into the arms of the Central
Empires, if a gain in this direction could now be accom-
plished.
4) It is recommended that the Rumanian-Bulgarian frontier in
the Dobrudja which existed before 1913 be restored, with slight
rectifications.
*63
THE DOBRUDJA
Inquiry 649
18a
DOCUMENT 246 253
The Rumanian-Bulgarian frontier established by the
treaty which closed the Second Balkan War took fj-om Bul-
garia a strip of territory almost exclusively Turkish and Bul-
garian in population, which numbered about 260,000
(Turks 122,000, Bulgars 112,000, Tatars 10,000, Ruma-
nians 7,000) . In the course of more than a genera-
tion the population on either side of the *boundary *64
of 1878 had become adjusted to it. It is now recom-
mended that the old frontier be restored, with slight rectifi-
cations (see map i8a).
Moreover, to place the boundary farther south, to meet
Rumania's desire for better harbor facilities, would violate
the principle of self-determination and hurt Bulgaria far
more seriously than it would help Rumania.
Rumania could not well object, in view of her very gen-
erous gains elsewhere.
^64
u
254
DOCUMENT 246
im. "
w
I
*6s *2i. CONSTANTINOPLE AND THE STRAITS.
It is recommended :
i) That there be established in the Constantinople region an
internationalized state.
2) That the new state be given such a governmental organiza-
tion by the appointment of a power as a mandatory of the League
of Nations or otherwise, as may seem most expedient to the peace
conference.
3) That the boundaries of the proposed state :
a) Include the entire littoral of the Straits and of the
Sea of Marmora ;
b) On the European side follow the general direction of
the Enos-Midia line, adapted to the physical and
economic features of the country;
c) On the Asiatic side follow in part the line of the
Sakaria river, include within the new state the towns
of Brussa and Panderma, and emerge on the Aegean
at a point north of Ineh, as shown on map 19.
4) That the Bosphorus, Sea of Marmora, and Dardanelles be
permanently opened as a free passageway to the ships and com-
merce of all nations, under international guarantees.
♦66
*DISCUSSION.
i) It is recommended that there be established in the Con-
stantinople region an internationalized state.
An internationalized state will, it is thought, be most
likely to do impartial justice to the various interests of the
many states concerned in the commerce that will pass the
Straits, and to diminish the keen historic jealousies that have
obstructed the flow of trade. We understand that such a
proposal is generally accepted.
2) It is recommended that the new state be given such a gov-
ernmental organization by the appointment of a Power as a manda-
♦66
DOCUMENT 246 255
tory of the League of Nations or otherwise, as may seem most ex-
pedient to the peace conference.
The state about Constantinople is instituted for special
purposes and in order to serve the needs and interests, often
conflicting, of many nations, strong and weak, varying great-
ly in location and necessities.
This state should bear a special relation to the nations
which are to associate themselves in a world League, and it
should be made the business of some organ of such a League
to see that the purposes for which the state is instituted are
fulfilled.
Whether this can best be accomplished by the se-
lection of a governor or of a single power to *act as *67
the mandatory of the League, or otherwise, can be
better determined after the main features of the League
have been decided upon, and in accordance with the greater
experience of that time.
3a) It is recommended that the boundaries of the proposed
state include the entire littoral of the Straits and of the Sea of
Marmora.
We are informed by the technical advisors in interna-
tional law that the assignment of any portion of the littoral
of the Sea of Marmora or of the Straits to an independent
sovereign power would result in many embarrassments, rais-
ing questions of commerce, of territorial waters, of possible
naval rights, etc., etc., and would render more difficult the
prime object in this region as set forth in Recommendation
Adjacent states would of course enjoy adequate rights of
I access to the waters of the internationalized area.
I It is recommended that the boundaries of the proposed state :
j^ 3b) On the European side follow the general direction of the
Enos-Midia line, adapted to the physical and economic features of
the country.
3c) On the Asiatic side follow in part the line of the Sakaria
*67
:i
256
DOCUMENT 246
river, include within the new state the towns of Brussa and Pan-
derma, and emerge on the Aegean at a point north of Ineh, as
shown on map 19.
*68 *The new state should include the land that may
be needed to serve such immediate material wants of
the capital as garden and dairy products, water supply, etc.,
but it should be sufficiently restricted in area to reduce to
the lowest terms the task of administration.
3b The Enos-Midia line offers the best frontier on the Eu-
ropean side if Recommendation 3a) is accepted, since it
rests upon the best historic, topographic, and ethnic basis.
3c The line on the Asiatic side is drawn so as not to sepa-
rate the valley floors and the hill pastures, and follows the
stream courses and watersheds as on the European side.
Brussa, a former Turkish capital with a population of
75,000, located about 16 miles from the Sea of Marmora, is
included in the new state in order to prevent the Turks from
making it their capital. As such it might easily became the
center of international intrigues, disturbing the large Turk-
ish population in and about Constantinople and, therefore,
the stability and smooth administration of the new inter-
national state.
4) It is recommended that the Bosphorus, Sea of Marmora,
and Dardanelles be permanently opened as a free passageway to
the ships and commerce of all nations, under international guar-
antees.
This declaration is in such full harmony with the spirit
of the new world order, and is so nearly axiomatic from the
standpoint of international justice, as to require no elucida-
tion.
'^68
CONSTANTINOPLE AREA AND GREEK ASIA
19
Inquiry 650
.Linguistic Boundary
DOCUMENT 246 257
*22. TURKEY. *69
It is recommended :
1 ) That there be established a Turkish Anatolian state, with
boundaries as indicated on map 20.
2) That there be applied to the Turkish Anatolian state the
mandatory principle, but no recommendation is made as to the
Power to be selected to carry out this principle.
DISCUSSION.
i) It is recommended that there be established a Turkish
Anatolian state, with boundaries as indicated on map 20.
An outstanding feature is the presence, in Asia Minor,
west of the Anti-Taurus Mountains, of a solid block of
Turkish Moslems. They constitute a sound Anatolian
peasantry whose chance of independent development de-
serves every consideration. The fact is patent, and with
fresh opportunities of development the proposed state may
in time have both stability and power. Not the least of
its assets would be freedom from the burden of governing
alien peoples of different faith, whose oppression by the
Turk has reacted upon him morally and politically, with
well-known evil effects.
The new state is delimited on the west by a line
roughly parallel to the Bosphorus-Dardan*elles *70
thoroughfare and would form the frontier between
the Turkish state and the internationalized Constantinople
region. The line has been drawn so as to separate Brussa
from Turkey, because it is the ancient capital from which,
if it were left in the possession of Turkey, there might be
launched successive projects of international intrigue that
would defeat the purposes for which the Constantinople
state is established. It would be far better, from an inter-
national standpoint and also from the standpoint of the
physical development of the Turkish folk, if their capital
were established well within their new borders, say at Konia,
at which center both ethnic and historic sentiment. It was
once the capital of the Moslems.
*70
m.
258 DOCUMENT 246
Although an alternative Greek area is shown in the
Smyrna region, it is not part of this recommendation that it
be assigned to Greece. The arguments for such assignment
have been scrutinized with great care, and it is felt to be
unsafe from every standpoint, commercial, strategic, and
political, to give Greece a foothold upon the mainland of
Asia Minor. The possession of the Dodecanese puts Greek
people, Greek ships and Greek merchants, at the very doors
of the new state. To give her a foothold upon the main-
land would be to invite immediate trouble. Greece would
press her claims for more territory; Turkey would feel that
her new boundaries were run so as to give her a great handi-
cap at the very start. The harbor of Smyrna has been for
centuries an outlet for the products of the central Anatolian
valleys and upland.
The recommended state of Turkey would be one-sixth
i , larger than Italy, and would have a population of about
5,700,000.
"70
20
DOCUMENT 246 259
*23. ARMENIA. . *7i
It is recommended:
1) That there be established an Armenian state as delimited
upon map 20.
2) That this state be placed under the supervision of a manda-
tory of the League of Nations.
DISCUSSION.
i) It is recomfnended that there be established an Armenian
state as delimited on map 20.
The Armenian problem is a singularly difficult one from
the standpoint of the establishment of new states, because,
except for a small area north of Lake Van and in Kars and
Erivan, the Armenians are everywhere in the minority.
They constitute not more than thirty or thirty-five per cent,
of the population.
It is held that the principle of majorities should not
apply in this case, because of the conditions under which
the Armenian people have lived in the past. They have
suffered from every handicap of nature and man ; they have
been massacred and deported by hundreds of thousands;
they have been the subject of international political intrigue;
and at this moment, helpless and weak as they are, they are
being pressed for the unfavorable settlement of their af-
fairs by big Powers seeking to define spheres of future po-
litical and commercial interests. It would be a de-
parture from the principle of fair dealing *if at this *72
time their every claim were not heard with patience,
and their new state established under conditions that would
in some manner right historic wrongs.
As for the non-Armenian elements included within the
proposed state, they could be adequately protected by in-
ternational guarantees, according to the principle invoked
in so many other cases of mixed nationalities in highly dis-
puted and critical zones.
The singular configuration of the new state, as defined
on the map, is fixed by nature. The Anti-Taurus and
*72
26o DOCUMENT 246
Taurus mountains are topographical features of the first
:-, vrank. They are natural barriers. The boundaries would
run for the most part through thinly populated regions.
Although remote from the main currents of the world's
trade, Armenia's two outlets on the Black Sea and the
Mediterranean would ensure that vitalizing contact needed
for economic security. Topographically and commercially
the Cilician region of Adana belongs to the Armenian high-
». lands, and not to Turkish Anatolia or Syria on either side.
The inclusion of the former Russian provinces of Kars
and Erivan, with the sub-districts of Akhalkalki and Ak-
haltsikh, is determined by the fact that they contain the
largest block of Armenian peoples. The delimitation on
the map is both ethnographic and topographic in character,
and is based upon the expressed desire of the leaders of the
present Armenian Republic in the Caucasus.
To Armenia has been assigned a good harbor at Trebi-
zond, which has the additional advantage of uniting with
the Armenians about one-half of the strong minority of
Greeks in this area.
*73 *2) It is recommended that the Armenian state be
placed under the supervision of a mandatory of the League of
Nations.
This recommendation is all but axiomatic, because of
the inexperience and defects of the population, its mixed
character, and its weakness.
*74 *24. MESOPOTAMIA.
It is recommended:
1 ) That there be established a Mesopotamian state.
2) That there be applied to the Mesopotamian state the man-
datory principle, but no recommendation is made as to the Power
to be selected to carry out this principle.
3) That no solution be adopted which would preclude the in-
corporation of this state in an Arab confederation, if a desire for
such incorporation should take actual form in Mesopotamia.
*74
DOCUMENT 246 261
DISCUSSION.
i) It is recommended that there be established a Mesopo-
tamian state.
The Mesopotamian area, as defined on map 20, is a
racial unit. There is Arab linguistic unity south of a line
drawn from Alexandretta to the Persian border. Above
this line live Arabs, Armenians, Turks, Kurds and Assyri-
ans, each group speaking a distinct language. Below this
line there is comparatively a much higher degree of unity.
It is essential to the development of the great irrigation
projects below Baghdad that the headwaters of the
Tigris River, *and as much of the Euphrates as *75
possible, should be under a single administration.
The welfare of the foothills of Kurdistan and of the great
steppe region of Mesopotamia is bound up with the ir-
rigable lowlands of the Tigris and Euphrates basin.
To separate the headwater area of the Tigris and
Euphrates drainage basins from the irrigated valley floors
and lowlands further down-stream would be to create
sources of dispute and render doubly difficult the task of
establishing a suitable government.
The southern border of the area lies at the edge of the
Arabian desert, where new relationships come in and differ-
ent political treatment.
2) It is recommended that there be applied to the Mesopo-
tamian state the mandatory principle, but no recommendation is
made as to the Power to be selected to carry out this principle,
3) It is recommended that no solution be adopted which would
preclude the Incorporation of this state in an Arab confederation,
if a desire for such incorporation should take actual form in Meso-
potamia,
Nothing should be done to preclude the possibility of
the future development of an Arab confederation, including
Mesopotamia, as an alternate solution which would be
desirable.
*75
262 DOCUMENT 246
*76 *25 SYRIA.
It is recommended:
i) That there be established a Syrian state. See map 20.
2) That there be applied to the Syrian state the mandatory
principle, but no recommendation is made as to the Power to be
selected to carry out this principle,
3) That no obstacle be interposed against the final incorpora-
tion of the Syrian state in an Arab confederation, if the tendency
toward this solution should develop in the country.
DISCUSSION.
i) It is recommended that there be established a Syrian state.
While Syria belongs to the Arab-speaking world, it has
an unusually large European population, close commercial
V „. and cultural relations with Europe, a strong Christian ele-
ment and a sedentary mode of life. It should therefore be
separated at the outset from the nomad Arab area.
Its eastern boundary has been drawn with these
*77 considerations in mind, and runs just *beyond the
border of the sown land, so as to Include all of the
• grain-growing regions, of which the Hauran, below Damas-
cus, is the richest. The northern boundary of Syria is
quite artificial, and indeed this boundary could not be drawn
on racial lines.
The new state would have a population of about
.400,000, and would about equal in area the state of
Bulgaria.
2) It is recommended that there be applied to the Syrian state
the mandatory principle, but no recommendation is made as to the
Power to be selected to carry out this principle.
3) It is recommended that no obstacle be interposed against
the final incorporation of the Syrian state in an Arab confederation,
if the tendency toward this solution should develop in the country.
There is a possibility of the future development of an
Arab confederation which will include all of the Arab-
speaking portions of the former Turkish Empire. The
present strength of this Arab movement Is hard to gauge.
It would be the best solution from the standpoint of the
welfare and development of the Arab states.
*77
DOCUMENT 246 263
♦26. PALESTINE. *78
It is recommended:
1 ) That there be established a separate state of Palestine.
2) That this state be placed under Great Britain as a manda-
tory of the League of Nations.
3) That the Jews be invited to return to Palestine and settle
there, being assured by the Conference of all proper assistance in
so doing that may be consistent with the protection of the personal
(especially the religious) and the property rights of the non- Jew-
ish population, and being further assured that it will be the policy
of the League of Nations to recognize Palestine as a Jewish state
as soon as it is a Jewish state in fact.
4) That the holy places and religious rights of all creeds In
Palestine be placed under the protection of the League of Nations
and its mandatory.
DISCUSSION.
i) It is recommended that there be established a separate state
of Palestine.
*The separation of the Palestinian area from *79
Syria finds justification in the religious experience of
mankind. The Jewish and Christian churches were born in
Palestine, and Jerusalem was for long years, at different
periods, the capital of each. And while the relation of the
Mohammedans to Palestine is not so intimate, from the
beginning they have regarded Jerusalem as a holy place.
Only by establishing Palestine as a separate state can jus-
tice be done to these great facts.
As drawn upon the map, the new state would control
its own source of water power and irrigation, on Mount
Hermon in the east to the Jordan; a feature of great im-
portance since the success of the new state would depend
upon the possibilities of agricultural development.
2) It is recommended that this state be placed under Great
Britain as a mandatory of the League of Nations.
♦79
264 DOCUMENT 246
Palestine would obviously need wise and firm guidance.
Its population is without political experience, is racially
composite, and could easily become distracted by fanaticism
- and bitter religious differences.
The success of Great Britain in dealing with similar sit-
uations, her relation to Egypt, and her administrative
achievements since General Allenby freed Palestine from
the Turk, all indicate her as the logical mandatory.
3) It is recommended that the Jews be invited to return to
Palestine and settle there, being assured by the Conference of all
proper assistance in so doing that may be consistent with the pro-
*8o tection *of the personal (especially the religious) and the
property rights of the non-Jewish population, and being further
assured that it will be the policy of the League of Nations to recog-
nize Palestine as a Jewish state as soon as it is a Jewish state in fact.
It is right that Palestine should become a Jewish state,
if the Jews, being given the full opportunity, make it such.
It was the cradle and home of their vital race, which has
made large spiritual contributions to mankind, and is the
* only land in which they can hope to find a home of their
own; they being in this last respect unique among significant
peoples.
At present, however, the Jews form barely a sixth of
the total population of 700,000 in Palestine, and whether
, they are to form a majority, or even a plurality, of the
population in the future state remains uncertain. Palestine,
in short, is far from being a Jewish country now. Eng-
land, as mandatory, can be relied on to give the Jews the
■ privileged position they should have without sacrificing the
rights of non-Jews.
4) It is recommended that the holy places and religious rights
of all creeds in Palestine be placed under the protection of the
League of Nations and its mandatory.
The basis for this recommendation is self-evident.
^80
DOCUMENT 246 265
*27. ARABIA. *8i
It is recommended:
1 ) That the desert portion of the Arabian peninsula, exclusive
of the agricultural areas of Syria and of the Euphrates and Tigris
valleys, be treated as a separate block. See map 21.
2) That in regard to the present tribal states, numbering over
twenty, which exist in the peninsula, no definite action be taken.
3) That the area with regard to which no definite action shall
be taken be that bounded on the north by the Euphrates river from
the bend where it turns southeast to a point just below the town
of Hit, and from that point onward by a line which stretches out
into the desert, ending at the Persian Gulf below Koweit ; and on
the west by the Red Sea, the eastern boundary of Palestine, and a
line through the desert delimiting the agricultural portions of Syria.
4) That the policing of the Red Sea, Indian Ocean, and Per-
sian Gulf coasts of Arabia, and the border lands behind these, be
left to the British Empire.
*5) That in spite of the political prominence of the *82
King of the Hedjaz, he be not aided to establish an artificial and
unwelcomed dominion over tribes unwilling to accept his rule.
DISCUSSION.
i) It is recommended that the desert portion of the Arabian
peninsula, exclusive of the agricultural areas of Syria and of the
Euphrates and Tigris valleys, be treated as a separate block.
In regard to this large desert area of Arabia, it is un-
wise to take decisive action at present. The Kingdom of
Hedjaz under the Cherif of Mecca is at the present time
the strongest in the group of Arabian tribal states ; never-
theless it is not so powerful that a successful single Arab
confederation can be built around it. It is only this week
that the Hedjaz forces have been able to recapture their
own city of Medina.
2) It is recommended that in regard to the present tribal
*82
266 DOCUMENT 246
States, numbering over twenty, which exist in the peninsula, no
definite action be taken.
The chieftains of the inner desert tribes, especially Ibn
Saud, are absolutely opposed to extension on the part of the
king of Hedjaz. The sheikhs of Asir and Yemen would
look with equal hostility on the consolidation of his power.
3) It is recommended that the area with regard to which no
*83 definite action shall be taken be that ^bounded on the north
by the Euphrates River from the bend where it turns southeast to
a point just below the town of Hit, and from that point onward by
a line which stretches out into the desert, ending at the Persian
Gulf below Koweit; and on the west by the Red Sea, the eastern
boundary of Palestine, and a line through the desert delimiting
the agricultural portions of Syria.
The boundaries of this Arab block, in which no definite
action can be taken, are so drawn as to distinguish the
desert tribal civilization from the civilization of the seden-
tary Arabs of the irrigable lands of the Tigris and
Euphrates valleys, below Baghdad, and of the fertile and
very productive lands of the Syrian Arabs, from Aleppo
down to a point below Damascus. In the north the desert
tribes must be given access to the Euphrates river from Hit
to the northward bend of the river, for the purpose of
watering their flocks.
4) It is recommended that the policing of the Red Sea, Indian
Ocean, and Persian Gulf Coasts of Arabia, and the border lands
behind these, be left to the British Empire.
The Power which understands best how to handle the
Arabs is the British Empire. By controlling the coastal
areas and the markets along the edge of the desert at which
the desert tribes must trade, the British Indian Office has
been able to exercise some influence over the inland tribes.
♦84 *5) It is recommended that in spite of the political
prominence of the King of the Hedjaz, he be not aided to estab-
. *84
81
DOCUMENT 246
267
llsh an artificial and unwelcomed dominion over tribes unwilling to
accept his rule.
The King of the Hedjaz and his sons should not receive
support in an attempt to establish an artificial domination
over tribes of about similar strength. If, however, it can
be shown that the movement for Arab unity is natural and
real, and that such unity can be developed without the use
of force, the movement should be given encouragement and
support.
The proposal of the delegates of the King of the Hedjaz that
a mixed commission be sent to Syria to learn the actual desires of
the Syrians and report to the peace conference, is entirely fair and
should receive support.
*84
268 DOCUMENT 246
♦85 *EQUALITY OF TRADE CONDITIONS.
References to "The removal, so far as possible, of all economic
fuller discussion
barriers, and the establishment of an equality of
trade conditions among all the nations consenting to
the peace and associating themselves for its mainte-
nance."
Summary of Recommendations
Pages? I. The system of export and import prohibitions,
tariffs, and other trade charges of every nation,
dominion, colony, and protectorate must be
single and uniform and without discrimination
as respects all other parts of the world.
Page 88 2. No nation should discriminate in favor of its
own vessels or as among the vessels of other
nations with respect to :
(i) Tonnage dues, harbor dues, and other
similar charges upon vessels.
(2) Import and export prohibitions, tariffs,
internal taxes, and other charges upon
cargoes.
Page 88 3. There should be no discrimination in import and
export prohibitions, tariffs and other charges
which a nation levies upon goods of like origin
or destination imported or exported by different
routes or via different ports.
Page 88 4. Two general exceptions must be made to the
foregoing rules :
( I ) Certain established discriminations must
be permitted to continue.
(2) Provision must be made for associations
in the nature of customs unions in (a)
Europe and (b) the American continents.
Page 90 5. Transit trade (e. g., trade between two countries
across the territory of a third) must be free of
*85
DOCUMENT 246 269
customs duties, transit duties, discriminatory rail-
road rates, and all other restrictions.
Page 90 *6. Export bounties, direct and indirect, open *86
or disguised, should be prohibited.
Page 90 y. The associated nations should agree to provide
adequate security for fair international trade and
adequate safeguards against unfair international
competition. To this end they should bind them-
selves by the provisions of the Convention for
the Protection of Industrial Property (Washing-
ton, 191 1 ) and the Convention for the Protec-
tion of Works of Literature and Art (Berlin,
1908).
Page 91 8. States directly engaged in international trade
should have, in respect to such trade, none of the
prerogatives of sovereignty, but should be sub-
ject to all the rules of equality and fair dealing
binding upon private traders.
Page 91 9. An international trade commission, with power
to investigate and report upon facts, but not
necessarily clothed with judicial power, should
be established to ensure the proper observance
of the rules proposed above.
ne
270
DOCUMENT 246
*87
The proposals
are not
revolutionary
The present
system
A multi-latera]
commercial
treaty
General most-
favored-nation
treatment in
respect to
tariffs
Bargaining
tariffs
♦NOTES ON RECOMMENDATIONS
The General Nature of the Proposals
There is little that is ntvf or revolutionary in the
proposed agreements. For the most part they em-
body principles already recognized in commercial
treaties between pairs of States or in existing con-
ventions subscribed to by a number of States.
The trade relations of the world have been largely
determined, it is fair to say, by a complex network
of bi-lateral commercial treaties, differing widely in
their scope and in the reciprocal concessions which
they grant, and held together and made at all con-
sistent and tolerable only by most-favored-nation
clauses. The worst features of this system of
treaties, each obligating only a pair of States, are
their lack of uniformity and the opportunity they
give the stronger States to secure unfair advantages.
The present proposals would, if adopted, form
the framework of a general commercial treaty, bind-
ing all of the Associated Nations to a simple and
uniform system of equality and fair dealing in all
their trade relations.
Recommendation i. — No Tariff Discriminations
Leaving each nation free to frame its own tariff
to fit its own national needs, the proposal is merely
that tariffs and similar trade regulations shall be
single and uniform; that is, that all nations shall be
"most favored nations." This would accomplish
two things :
I . It would do away with the bargaining tariffs
now prevalent In continental Europe. These
*87
DOCUMENT 246
271
The open door
More than most-
favored-nation
treatment
French and
American
discriminations
tariffs provide one set of duties for imports
from favored nations and higher duties for
imports from other countries. They are
used to secure concessions, sometimes un-
fair, from other countries.
2. It would secure the open door in colonial
possessions in respect to all tariff matters.
*Some tariff discriminations would remain. *88
A nation would still be able to shape its tariff sched-
ules so as to bear more heavily upon the products of
some countries than of others. And there are other
obstacles than tariffs to equal trade opportunities in
colonies. But to equalize tariffs would be a large
and definite accomplishment.
Recommendation 2. — National Treatment of
Vessels
To secure real equality, it is necessary that no
State should grant preferences to its own shipping
as respects harbor charges and harbor facilities, nor
should there be any discriminations in favor of the
goods carried in domestic vessels.
The principal existing discriminations of this kind
are the French surtax de pavilion (now used only
as a retaliatory weapon) and the tax of 10 per cent
ad valorem which the United States imposes on
goods brought in foreign vessels (in large measure
already set aside by special treaty provisions).
Recommendation 5. — Equal Treatment of Goods
Imported or Exported by Different Routes
France imposes additional duties {surtaxes d*en~
trepot) on certain European goods imported from
other countries than those of origin and on most
*88
272 DOCUMENT 246
non-European goods imported via other European
countries. The United States imposes an additional
duty of 10 per cent ad valorem on foreign goods
brought in through Canada or Mexico. Such sur-
taxes, imposed with the purpose of increasing the
trade of home ports, are clearly contrary to the
principle of equality of trade conditions.
Recommendation 4. — Exceptions
It is assumed that political factors make a
special treatment of existing discriminations neces-
sary. Moreover, an old discrimination, to which
trade conditions have become adjusted, is not as
*89 *objectionable as a new one. In addition to
the special surtaxes mentioned in the notes on Recom-
mendations 3 and 4, above, the principal forms of
tariff discrimination are: (i) the "imperial prefer-
ence" system, (2) departures from the open door
principle in colonies, (3) bargaining tariffs, found
especially in European countries.
Ii^eria] i. The British self-governing dominions grant pref-
pr eronce erential tariffs to each other and to Great Britain.
Since the dominions are wholly autonomous in
tariff matters, this is a direct violation of the
principle of equality. But imperial preference
tariffs are so closely bound up with the prevail-
ing trend of opinion in the dominions respecting
the political unity of the British Empire that the
abrogation of the system is hardly a matter open
for discussion.
The closed door 2. In their non-self-governing colonies, Great Brit-
ain, Holland and Germany have given equal
tariff treatment to traders of all nations, while
France, Italy, Portugal, and the United States
give free trade or preferential duties to their
*89
DOCUMENT 246
^13
TarifE
"assimilation"
own exporters. Certain instances, like the pref-
erential arrangements with Algeria, Hawaii and
Porto Rico are easy to justify. But the Philip-
pines tariff and part of the French system of
"tariff assimilation" stand on a less defensible
basis. The French "assimilated colonies," includ-
ing Algeria, Tunis, Indo-China, Madagascar,
Reunion, Martinique, Guadeloupe, New Cale-
donia, Guiana, and Gaboon, have reciprocal free
trade with France, while duties equal to those of
the French tariff are imposed upon imports from
other countries.
3. It may not be necessary to retain the existing
discriminatory or bargaining tariffs of the larger
European nations. These tariffs will have to be
revised to meet new conditions, and their dis-
criminatory features may then be eliminated.
Customs unions A provision permitting associations in the nature
of customs unions is necessary for three reasons :
1. Provision must be made for reciprocal tariff
concessions between contiguous States like
Spain and Portugal or Norway and Sweden.
2. The new States established in Eastern
Europe, will need to associate them-
selves in groups, *maintainlng a *90
common external tariff frontier
against the rest of the world, but giving
much larger freedom to trade across their
own internal frontiers. The markets of
Poland and of Russia, for example, have
grown to be Interdependent, and it would
be fatal to establish a high tariff barrier
between them.
3. The States of the American continent must
claim an equal amount of freedom to estab-
lish their own economic groupings.
Recommendation 5. — Freedom of Transit
Absolute freedom of transit trade from duties or
imposts of every kind, together with guarantees of
*90
Contiguous
States
The need o£
new States
The Monroe
Doctrine
Access to
the sea
274
DOCUMENT 246
equal and fair treatment of such trade in respect to
railway rates and facilities, is necessary in order to
give landlocked states an assured access to the sea.
Recommendation 6. — No Export Bounties
An anti-dumping Export bounties are sometimes direct and open.
agreement
More often they are disguised in such forms as
special railway rates, exemptions from internal taxa-
tion, excessive "draw-backs," and the connivance of
the State in the "dumping" policies of trusts and
cartels. They are peculiarly provocative of inter-
national friction and should be outlawed. An ad-
mirable precedent is afforded by the Brussels Sugar
Convention of 1902.
Recommendation y. — Suppression of Unfair
Competition.
The Convention for the Protection of Industrial
Property, signed by most of the principal Powers,
including the United States, provides for reciprocal
safeguards against the infringement of patents, trade
marks and firm names. It specifically binds each
signatory Power to give to foreigners the same de-
gree of protection against unfair competition that it
affords to its own citizens. Under this convention
the German courts have held that American corpora-
tions doing business in Germany are protected by the
*stringent provisions of the German unfair competi-
tion statute of 1909.
The Convention for the Protection of Works of
Literature and Art provides for reciprocal protec-
tion of copyrights. The United States is not a party
Industrial
property
Unfair
competition
*9I
Copyrights
'91
DOCUMENT 246
275
"Sovereignty'*
should not pro*
tect unfair
dealing
Membership
Tariff
information
Commercial
statistics
Investigations
of inequalities
in trade
conditions
Possible
procedure
to this convention, because it refuses to grant copy-
rights to English books unless printed in the United
States. The American financial and labor interests
protected by this oifence against international fair-
dealing are relatively small.
Recommendation 8. — A State Engaged in Inter-
national Trade should he Bound by the Law
In view of the possible development of direct State
activity in international trade, particularly in mari-
time commerce, it is well to make it certain that a
sovereign State is bound by the same rules of fair
and equal dealing in such matters that are applicable
to private traders.
Recommendation g. — Jn International Trade
Commission
Representation might be apportioned on the basis
of participation in the world's trade. If each nation
which had over one per cent of the world's trade in
19 1 2 appointed one commissioner, the commission
would have only thirteen members. Its functions
might be :
I.
2.
To compile and publish information with
respect to the tariff systems of the world.
To compile and publish accurate and com-
parable statistics of international trade.
To investigate and report upon the facts in
cases of alleged violations of the agree-
ments establishing equality of trade condi-
tions.
One nation, for example, might increase its
tariff on sugar imported from another coun-
try on the ground that this other country
'91
276 DOCUMENT 246
was granting an (Indirect) bounty
*on sugar exports. Is the increase *92
in tariff really discriminatory? Is a
bounty actually given? In case the countries
fail to come to an agreement, one of them
refers the matter to the International Com-
mercial Commission. The commission ascer-
tains the facts and gives publicity to its
findings. If this does not effect a settlement
of the case there might be an appeal to a
court — national or international — which
should determine the issue upon the record
of the facts found by the commission.
To establish such a commission would do much
Advantages
to ensure the observance of the rule of equal trade
conditions. And by affording a clearing-house or
common center for international commercial infor-
mation it might lessen the harmful effects of the
uninformed and malicious gossip that now passes
current under the name of "international trade in-
formation."
A. A. Y.
With heavy obligations to D. H. M,*
a. This is the way Dr. Young signed the ipaper. See Documents 38, 161, 167, 245,
and Diary references thereto, pp. 23, 41, 75, 76, 95. .
*92
DOCUMENT 246
277
*93
♦RECOMMENDATIONS
, RELATIVE TO
LEGISLATION IN REGARD TO INTERNATIONAL
LABOR
I. Existing International Agreements:
The body of general international agreements existing between
the European Powers with reference to Labor Legislation should
properly be made the starting point for action by the present Con-
ference. From these covenants the following recommendations are
suggested for immediate adoption in the Treaty of Peace:
i) The prohibition of the employment in industrial labor
of children less than 14 years of age.
2) The imposition of proper restrictions upon the night labor
of women and youths less than 16 years of age.
3) The application of domestic protective labor legislation to
resident and migratory aliens.
II. Relation to the League of Nations:
Future development of International Labor Legislation should
be provided for in the structure of the League of Nations, as
follows :
i) A Periodic Conference upon the international aspect of
labor legislation in general, and
2) A Bureau to serve these periodic conferences by the study
of such aspects of labor legislation, and by the compilation
of statistical, experimental, and other information.
'93
278
DOCUMENT 246
*94 ^COMMENT ON THE PROPOSALS FOR
LEGISLATION
I. There exists a small but Important body of general treaties
by which the European Powers, through joint agreement, have
mutually bound themselves to certain measures of labor legislation.
These general European covenants should now be made universal.
The experience of Europe has definitely established that such Inter-
national action Is effective in raising the level of the standards of
civilization, as the following facts Indicate:
Child Lator i ) In 1890, when the series of International Labor
Conferences was inaugurated at Berlin, twelve of
the fifteen European countries which had laws
protecting child labor, permitted children from
nine to twelve years of age to work In factories.
In 19 1 8 twenty-three states in Europe had en-
acted child labor laws, and thirteen of them,
including the chief industrial nations, had made
thirteen or fourteen the minimum age of employ-
ment (see Table I, attached).
Prior to 1906, when the Berne Conference rec-
ommended a nightly rest of eleven hours for
women In Industry, there were no laws on the
subject in fifteen European States, and only one
required as much as eleven hours. As an Im-
mediate result of the Berne conference, nearly
every European country has enacted Into law the
eleven hour nightly rest for women and young
persons (see Table II).
3) The need of international agreement with refer-
ence to the labor of aliens has been keenly felt
in Europe. It has two aspects : the protection of
the immigrant and the protection of the native
from his competition; both of which are met by
insisting upon his participation In social legisla-
tion, either of his country of origin (by reciprocal
agreements) or his country of residence. Such
legislation would make universal the application
of existing laws.
*94
Labor of Women 2 )
and of Young
Persons
Migratory
Labor
DOCUMENT 246
279
♦COMMENT *95
ON
INTERNATIONAL LABOR CONFERENCES
AND BUREAU
The League of Nations should have a periodic Conference
for international labor problems similar to those for colonial or
economic problems. The composition of this conference would be
determined by the governments of the various countries; but it
should include some representatives of Labor, as has been the case
In the Berne Conferences.
Such conferences would assume much the same functions as are
Implied in the proposed labor Parliaments referred to In the pro-
grams of the Labor leaders. They should work in close articulation
with the Secretariat of the League of Nations.
The Bureau for the study of Labor Legislation could be based
directly upon the existing organization known as the International
Bureau for Labor Legislation which has its central office in Switzer-
land, but which has affiliated with it various national Committees,
such as the American Association for Labor Legislation. Indeed,
this admirable organization can be t-aken over and made responsible
to the Secretariat of the League of Nations. It has a long and
successful experience upon which to build.
*Table I. Minimum Age of Admission to ^96
Industrial Labor
Class I. Minimum legal age of employment 15 years or more.
Europe America Canada
California (both sexes)
Michigan
Nevada (16 for girls only)
Ohio (both sexes, 16 for
girls)
Texas (both sexes)
British Columbia (girls)
Manitoba (girls)
Australia
Victoria (girls)
'96
28o
DOCUMENT 246
Class II. Minimum legal age of employment at 14, or at 13, with
special provision for completion of schooling.
Europe
America
Austria
Alabama
Missouri
Wisconsin
Bosnia
Arizona
Montana
Belgium
Arkansas
Nebraska
Canada
Denmark
Colorado
Nevada (boys)
British Columbia
Germany
Connecticut
New Hampshire
Manitoba (boys)
Great Britain
Delaware
New Jersey
New Brunswick
Norway
District of Columbia
New York
Nova Scotia
Serbia
Florida
North Dakota
Ontario
Sweden (girls)
Georgia
Oklahoma
Saskatchewan
Switzerland
Idaho
Oregon
Illinois
Pennsylvania
Australasia
Indiana
Porto Rico
New South Wales
Iowa
Rhode Island
New Zealand
Kansas
South Dakota
Queensland
Kentucky
Tennessee
Tasmania
Louisiana
Utah
Victoria (boys)
Maine
Vermont
Western Australia
Maryland
Virginia
Massachusetts
Washington
Minnesota
West Virginia
Class III. Minimum legal age of employment 13 years.
ExjuoPE Amebica
France North Carolina
Netherlands
Sweden (boys)
Apbica;
Algeria
*97 * Class IV. Minimum legal age of employment 12 years.
Europe America Asia
Bulgaria (by exception 10) Mississippi (boys) Japan
Greece
Italy
Luxemburg
Portugal (by exception 10)
Russia
Rumania
South Carolina
Latin America
Buenos Aires
Mexico
Class V. Minimum legal age of employment 10 years or less.
Africa
Egypt (9 years)
Europe
Hungary
Spain
Latin America
Argentina
Brazil (8 in textile
factories)
Asia
East India (9 years)
*'97
DOCUMENT 246
281
*Table II. Duration of Nightly Recess for *98
Women
Class L Recess of 1 1 hours or more required by law.
— Duration of Rest for
Previous to
Nation Berne Agreement
Austria 9 hours
Belgium no law
France 8 hours
Germany 9 hours
Great Britain 12 hours
Greece no law
Hungary no law
Italy 8 (summer)
10 (winter)
Luxemburg no law
Netherlands 10 hours
Portugal no law
Spain no law
Sweden no law
Switzerland 9 (summer)
10 (winter)
St for Women —
Since
Berne Agreement
11 hours
11 hours
11 hours
11 hours
12 hours
11 hours
11 hours
11 hours
11 hours
11 hours
11 hours
11 hours
11 hours
11 hours
Class II. Recess of less than 1 1 hours required by law.
Previous to Since
Berne Agreement Berne Agreement
Bosnia no law 9 hours
Bulgaria no law 9 (summer)
12 (winter)
Russia 8 hours (textile
factories) 8 hours
Serbia no law 9 (summer)
10 (winter)
Class III. Denmark, Finland and Rumania have not yet legislated
on the subject.
"98
282
DOCUMENT 247
COMMENTS
on
ECONOMIC BLOCKADE AS A SANCTION FOR THE "LEAGUE
OF NATIONS"*
/. To Whom Prohibition of Economic Intercourse Should Be
Applicable.
All residents of territory of the contracting powers whatever
the nationality of these residents and all subjects of the contracting
powers whatever their residence.
(Both the test of domicile and of allegiance should be adopted
and the contracting powers engage not only to prevent economic
intercourse emanating from their territory but to make it illegal for
their subjects wherever domiciled to participate in such intercourse.)
//. What Economic Relations Should Be Prohibited.
Any economic Intercourse or attempt at such intercourse with or
benefit on account of any resident of territory in the control of the
offending power or powers and any resident of territory In control
of any power or powers which may be determined by the League
not to be taking effective steps to prevent intercourse with the offend-
ing power from or through their territory.
(In determining against whom the prohibition is applicable the
test should be domicile and not nationality.
It is also important that intercourse be prohibited not only with
the offending power but with any power not taking effective steps to
prohibit intercourse from its own territory. Otherwise, trade in-
stead of being stopped will merely be diverted into specific channels,
as through the territory of a state adjoining the offending power.)
a. Author, Vance McCormick. See Diary, p. 95,
DOCUMENT 247
283
///. Exception to General Prohibition Must Be Permissible.
(The League should be empowered to set up machinery to
license transactions in contravention of the general policy of non-
intercourse. Frequently intercourse will in specific cases benefit the
contracting powers far more than an offending power and limited
relations may occasionally be desirable on humanitarian grounds.
During the present war each of the Associated Governments gave
many licenses to trade with the enemy and an interallied body was
set up to promote uniformity of policy in the granting of such
licenses.)
IF. Distribution of Burden of Economic Blockade.
The League of Nations should adopt the principle of an equi-
table distribution of the burden of maintaining an economic blockade
of the offending power or powers, and provide machinery for effect-
ing such a distribution.
If the contracting powers are to cease all economic relations with
the territory of the offending power or powers, the burden of such
boycott will be unequal if it is allowed to lie where it falls. So
great may be this inequality as practically to compel certain of the
contracting powers to join with the offending state, thereby tending
to split the League into two great economic groups.
During the present war it has been impracticable for neutrals
adjoining Germany to cease all intercourse with her on account of
their economic dependence on Germany for certain commodities,
such as coal, iron, fertilizer, chemicals, etc., and dependence on
Germany as a market for domestic materials. The considerable
measure of non-intercourse which was obtained was made possible
only by the Associated Governments, sometimes at considerable
sacrifice, rendering economic assistance to these neutrals In the way
of exports of commodities to, and purchase of domestic products
from, the neutrals. This points to the necessity of accepting the
principle of a distribution of the burden of non-intercourse and the
284 DOCUMENT 247
establishment of machinery to require the furnishing to certain
contracting powers of essential imports normally received from the
territory of the offending power or powers and the purchase of
domestic products for which the offending power affords the normal
market. Also machinery should exist to determine the total finan-
cial burden of the boycott operation and to distribute the same in an
equitable manner.
a85
DOCUMENT 248
GERMAN INTERNATIONAL LAW SOCIETY.
Draft of a Constitution of the League of NationsP
Drawn up by the special Committee instituted for the
purpose on September 21st 191 8.
Art. I.
The object of the League of Nations is to secure a lasting peace
resting on the moral force of justice and on the independence and
inviolability of all States, and to promote by co-operation the wel-
fare of mankind.
Art. 2.
States of the League are not allowed to form separate political
alliances or to conclude secret treaties.
Art. 3.
International agreements of any character must without de-
lay be notified to the Permanent Committee of the League which
will publish them in an official gazette.
Art. 4.
War may not be declared except with the consent of Parlia-
ment. States of the League whose legislation does not contain a
provision to that effect are bound to introduce it forthwith.
Art. 5.
Accession to the League is open to all States endowed with a
constitutional government.
The Holy See will occupy a position within the League in ac-
cordance with its peculiar Importance.
a. See Diary, p. 95.
1 1
!
h
286 DOCUMENT 248
Art. 6.
No State may withdraw from the League except with the con-
sent of the Congress of the League.
Art. 7.
The Organs of the League are:
a) The Congress of the League,
b) The Permanent Committee of the League,
c) The Permanent International Tribunal,
d) The Permanent Arbitration Court,
e) The Executive Committee of the League,
f) The Conciliation Office of the League,
g) The International Administrative Councils.
The Congress of the League is the assembly of the representa-
tives of the States of the League. It meets in session at the Hague
at least every third year. Each State of the League appoints three
delegates, possessing, however, one vote only. The Congress of
the League is the supreme organ of the League of Nations. At
the first meeting of every session it elects a president who controls
the proceedings until another chairman is elected. The decisions
of the Congress of the League are taken by a majority of two
thirds.
The Permanent Committee of the League is composed of the
representatives of the States of the League appointed for the pur-
pose. They have to reside permanently at the Hague. The diplo-
matic representatives of the States of the League at the Hague are
excluded from membership. The Permanent Committee receives
its instructions from the Congress of the League by the President
in accordance with the functions assigned to it in this Convention.
The distribution of work, especially its control, is determined by a
majority of votes.
The Permanent International Tribunal is formed In accordance
with the Draft Convention relative to the creation of a Judicial
Arbitration Court drawn up at the Hague in 1907.
DOCUMENT 248 287
As to the Permanent Arbitration Court articles 48-50 of the
first Hague Convention of October i8th 1907 apply.
The Executive Committee is composed of 9 members and is
formed in the following manner:
Each party appoints 2 members and selects 2 neutral States,
either of which appoints one member. The umpire is chosen by
Switzerland. If the appointment or selection is delayed, Switzer-
land requests neutral States to appoint the members, instead of the
delaying State. If Switzerland is a party to the conflict or has been
selected as one of the neutral States, its place is taken by a fifth
neutral state to be selected by the four neutral States.
The International Conciliation Office is constituted in the same
manner as the Permanent Arbitration Court (Arts, 43ff. of the
first Hague Convention of October i8th 1907). Its members are
selected from a special list, from which the members of the Perma-
nent Arbitration Court are excluded.
The International Administrative Councils are the central
offices of the International Unions. Their competence, their insti-
tutions and their procedure are determined by the treaties of the
several Unions.
Art. 8.
International differences which It was found Impossible to re-
move by diplomacy must be settled by jurisdiction or arbitration, or
they must be brought before the International Conciliation Office. | •
Art. 9.
The regular organ for settling disputes between one state and
another Is the International Tribunal, with whom each member of
the League may lodge its grievances. The accused State is obliged
to give an answer to the charge. The decisions are pronounced in
the name of the League.
The International Tribunal is likewise competent :
I. To deal with all complaints of private individuals against
1!' '■
II* '
i ; i\
ii-
1^
288 DOCUMENT 248
foreign States and Heads of States, if they have successfully
pleaded the incompetence of their national Courts,
2, As court of appeal in cases of doubtful interpretation of
state treaties, especially in the domain of private international law,
if the decision of a national court concerning disputed claims is con-
tested by international recourse instead of being brought before
the Supreme Court of the Country.
Art. 10.
The Permanent Court of Arbitration is competent in virtue of
a compromise or on the strength of a resolution of the International
Tribunal to assign the case to it.
The assignment may be proposed to the International Court on
I the plea that a compromise provides the competence of the Arbitra-
tion Court.
The assignment to the Permanent Arbitration Court may also
be requested on the ground that the point at issue Involves the vital
interests, the independence or the honour of the State, or on the
plea that the question at issue is not one of legal nature, but a po-
I ; litical quarrel or merely a conflict of interests.
\\\ Art. II.
The International Conciliation Office Is competent in virtue of
a resolution of the International Tribunal to assign the case to an-
other court (Art. 10) or on the strength of a joint request of the
parties. Its business is to bring about an understanding and a com-
promise. The regular form In which It winds up the case is an
Award accompanied by a statement of reasons.
The parties have, within a fixed time to declare in writing to the
Conciliation Office, whether they accept or decline the Award.
Art. 12.
The Executive Committee is the organ for the protection of the
statutes of the League of Nations against violation as well as for
carrying out the measures decreed. It enters on its duties in the
DOCUMENT 248 289
cases provided for (Arts. 10, 11) or at the request of the Perma-
nent Committee, if a State of the League demands it on the strength
of a charge preferred against another State of the League.
Art. 13.
The Executive Committee decides by judgment, whether any
duties towards the League have been violated, and if so, what co-
ercive measures are to be taken.
Art. 14.
The means of coercion of the League are In particular:
a) Imposition of an indemnity;
b) Suspension of diplomatic relations by the other States;
c) Economic pressure, above all prohibition of Import or ex-
port in the other States of the League, differential treat-
ment with respect to customs, restriction of economic
activity or of legal protection for citizens of the State
which has violated the duties towards the League, inter-
ruption of all traffic (passengers and goods) and stop-
page of the postal and telegraphic communication ;
d) Embargo of vessels.
The cost of coercive measures is borne by the State condemned.
Art. 15.
All other means failing military measures may be decreed. The
execution of these measures may be committed to the offended
State severally or jointly with other States.
Art. 16.
The members of the Executive Committee decide with discre-
tionary judicial powers according to the rules of International Law
and the laws of humanity.
Art. 17.
The procedure has to follow the directions for the **Arbitra-
tion procedure" before the Permanent Court of Arbitration, with
the understanding that a compromise is not required. Either party
may demand Arbitration by summary procedure.
lit.
\m-
290 DOCUMENT 248
Art. 18.
The Executive Committee provides, that coercive measures are
duly carried out. In particular its business is to take supplementary
decisions as to the execution of the measures, including expenditure.
Art. 19.
If a third State is of opinion that it cannot undertake the exe-
cution of the coercive measures entrusted to it (Art. 15) without
endangering vital interests of its own, it is entitled to appeal to the
Executive Committee.
Art. 20.
If a State is attacked by another State or is directly menaced
with an attack by military force, it is justified in defending itself in
the name of the League. In the mean time the Permanent Commit-
tee of the League is to be informed of the protective measures in-
tended, and will consequently summon the Executive Committee
without delay.
The Executive Committee decides in the first place, whether a
case of justified self-defence is in a question. If it denies the justice
of the self-defence it has to prohibit it at once and to adjudge full
reparation to the State injured. It has, moreover, to make due ar-
rangements for the time until the Award is pronounced.
Art. 21.
If States of the League, by resorting to force gave reason for
intervening to the League, the Permanent Committee has to make
a provisory settlement which will remain in force pending the de-
cision by the Executive Committee. The Executive Committee is
to be formed instantly.
Art. 22.
The army and navy expenditure of the States of the League
must not exceed an amount equal to 25% of their army and navy
budget in 1909. The Congress of the League will determine and
superintend the carrying out of this principle.
DOCUMENT 248 291
Art. 23.
The navigation of the seas, the channels and straits connecting
the seas is indiscriminately free to all the States of the League.
No State of the League is allowed to treat vessels or cargoes of
other States of the League differently from his own. In order to
secure the observance of this principle International Commissions
of Navigation are to be constituted at large ports possessing a
mixed population.
Art. 24.
Every subject of a State of the League has the right of free
transit on the roads and railway lines of all the States of the League
with his own means of conveyance.
Art. 25.
The air is indiscriminately open to aerial navigation for all the
States of the League.
Art. 26.
In each State of the League the citizens of all the other States
of the League must be put on a footing of equality with the native
subjects as to personal and domiciliary rights, freedom of public
worship, legal protection, acquisition of real property, literary
property, copyright, protection of trademarks, ingress and egress.
In no State of the League shall the citizens of the other States
of the League be subject to higher rates and taxes, or other charges
and imposts than the native subjects.
Art. 27.
In each State of the League the citizens of the other States of
the League must enjoy equal treatment. This applies in particular
to the right of settling, to the liberty of carrying on any trade, to
rates and taxes and other charges and imposts, to the admission to
the use of educational establishments and other institutions for the
advancement of learning and civilisation.
S
>',
292 DOCUMENT 248
Art. 28.
The States of the League grant each other reciprocal economic
equality and undertake to keep up a friendly economic intercourse
and to develop their traffic facilities in a manner beneficial to all.
Art. 29.
The States of the League grant each other reciprocally the
most-favoured-nation treatment with respect to commercial tariffs,
to the effect that any preference granted to another State of the
League or to a State not adhering to it is due to all the other States
of the League unconditionally and unreservedly.
Art. 30.
All measures prohibiting or restricting the importation or tran-
sit of goods are prohibited. Prohibition of export is allowed only
in the case of foodstuffs and forage. Such prohibition being de-
creed in dominions, colonies or protectorates it takes effect also in
the mother-country.
Art. 31.
The stipulations of Arts. 23, 24, 25, 26, 27, 30 do not exclude
police-regulations with respect to the maintenance of public safety,
health and commercial intercourse.
Art. 32.
With respect to the Colonies and possessions, including Pro-
tectorates, of the States of the League, the following principles are
to be observed :
1. The administration of the Colonies shall be dominated by
the rules of equity and justice. It should meet the just claims of
the natives and of the colonising people.
2. The colonising States will regard it their duty, to protect
the natives, to raise their moral level and to Improve their economic
conditions. In particular the colonising States will take energetic
measures for prevention of the slave trade and abolition of slav-
ery. In addition to this they have to look after the health, educa-
i,'
DOCUMENT 248 293
tion, material welfare, security of the real property, of the natives,
and to protect native labour. Further, they should provide against
intemperance and the abuse of narcotics. Traffic in arms and am-
munition must be regulated.
3. The religious communities recognised In the States of the
League shall be warranted the free exercise of their religion and
of their missionary work. The limits of activity of the several mis-
sionary societies may be fixed by the colonising State. The sanction -^
of the League is required therefore. ji
4. In all colonial territories an armed force shall be kept only jjf
to the extent necessary for the maintenance of order. Colonial lii
troops shall be employed exclusively for the protection of the colo- ij:
nies of each individual State.
5. In all colonies the trade of all nations is to enjoy absolute |i
freedom. All flags shall have free access to the coast, the lagoons, i>
and the rivers discharging there, with their basins, as well as to all \
inland-waters (rivers and lakes). Any differential treatment of
vessels and cargoes is disallowed, in particular as regards all duties
and imposts and the manner in which they are raised. Exceptions,
especially monopolies of all kinds, require the sanction of the
League.
6. No difference shall be made between citizens and foreigners
as to the protection of their person and their property, the exercise
of their trade or profession, the acquisition of movables and im-
movables, and the giving away of public contracts. I;
7. An International Colonial Office is to be established for ''i
... ^■
the control and execution of the above stipulations. |
8. In every colony agents of the League (Consuls of the
League) will have to watch the proper observance of the above
rules. The colonising State is bound to assist them in the free ex-
ercise of their functions. The consuls are entitled and obliged to
give notice to the International Colonial Office whenever any of
these stipulations be violated.
m
294 DOCUMENT 248
Art. 33.
The national minorities, viz. groups of individuals who are sub-
jects of a State or have at least their permanent residence in its
territory being of a foreign race, are to be protected by the League
in the following manner:
a) All the States of the League are bound to grant the foreign
minorities of their territory parliamentary representation in due
proportion to their numbers. In districts where the said minority
live in small groups dispersed among the majority of the popula-
tion, a national cadastral system Is to be applied for the purpose.
b) No individual belonging to the national minority shall be
deprived of any political rights for that reason, or be injured in
regard to his or her personal liberty, civil rights, property, economic
activity or legal protection. Municipal bodies containing a foreign
minority sufficiently strong in numbers, may establish and conduct
education, public worship and administrative business in the lan-
guage of that minority.
Art. 34.
The States of the League are liable to create In their respective
countries a certain minimum of equivalent institutions for the pro-
tection of life and health as well as of the rights and personal lib-
erty of the working population. An International Managing Com-
mittee (World's-Labour-Office) Is to be established for the purpose
of superintending and developing labour legislation.
Art. 35.
The States of the League will be prepared to take appropriate
legislative and administrative measures against any attempt to
breed Ill-will amongst the several nations either orally, or by the
press, or by pictures of a disparaging or defamatory character.
Art. 36.
The League of Nations undertakes to promote all endeavours
to concentrate the common interests of nations and to forward the
DOCUMENT 248
295
further development of the existing international institutions and the
creation of new ones especially in the domain of law and economy
(such as the Postal-Union, the protection of copyrights regulations,
concerning measures, weights and coinage, International Clearing),
The existing Unions are to be brought under the control of the
League of Nations as far as possible.
In fidem
Dr. Theodor Niemeyer.
Kiel, 28. I. 19 19.
296
DOCUMENT 249
Cablegram Received*
Washington.
Dated January 28, 19 19.
Rec'd. 29th, 12:40 PM.
American Mission,
Paris.
Argentine Charge d'Affaires has not given Department any cable
from his Government on the subject. It Is possible that Argentine
Government decided not to send such a cable. Under date of Janu-
ary 27 4 PM, American Ambassador Buenos Aires telegraphed De-
partment as follows: "In a conversation with the Minister for
Foreign Affairs which I had this morning, he brought up again the
subject of the League of Nations and says that he had instructed
the Argentine Minister to France to take every opportunity to sup-
port President Wilson's project of the League of Nations. He
stated that Argentina was ready to join such a League. Expressed
his opinion that the views of Argentina and other American Re-
publics In regard to such a League would be found more responsive
of President Wilson's ideas than of the European entente powers.
He further stated that his Government had certain views as to future
international law which It desired to put forward relative to matters
of contraband and blockade. It was evident, although he did not
make the suggestion, that he was much Interested in the proposals
coming before the Peace Conference, and desired that Argentina be
represented in any Congress where the proposal for a League of
Free Nations was under discussion."
POLK, Acting,
a. See Diary, p. 97.
297
DOCUMENT 250
Memorandum by the Emir Feisal'*
The country from a line Alexandretta — Persia southward to the
Indian Ocean is inhabited by "Arabs" — by which we mean people
of closely related Semitic stocks, all speaking the one language,
Arabic. The non-Arabic-speaking elements in this area do not, I
believe, exceed one per cent, of the whole.
The aim of the Arab nationalist movements (of which my father
became the leader in war after combined appeals from the Syrian
and Mesopotamian branches) is to unite the Arabs eventually into
one nation. As an old member of the Syrian Committee I com-
manded the Syrian revolt, and had under me Syrians, Mesopota-
mians, and Arabians.
We believe that our ideal of Arab unity in Asia Is justified be-
yond need of argument. If argument Is required, we would point
to the general principles accepted by the Allies when the United
States joined them, to our splendid past, to the tenacity with which
our race has for 600 years resisted Turkish attempts to absorb us,
and, in a lesser degree, to what we tried our best to do In this war
as one of the Allies.
My father has a privileged place among Arabs, as their success-
ful leader, and as the head of their greatest family, and as Sherif of
Mecca. He is convinced of the ultimate triumph of the Ideal of
unity, if no attempt is made now to force it, by Imposing an arti-
ficial political unity on. the whole, or to hinder It, by dividing the
area as spoils of war among great Powers.
The unity of the Arabs in Asia has been made more easy of late
years, since the development of railways, telegraphs, and air-roads.
In old days the area was too huge, and in parts necessarily too thinly
peopled, to communicate common ideas readily.
The various provinces of Arab Asia — Syria, Irak, Jezireh,
I";
a. See Diary* P. 97.
298 DOCUMENT 250
Hedjaz, Nejd, Yemen — are very different economically and socially,
and it is impossible to constrain them into one frame of government.
We believe that Syria, an agricultural and industrial area thickly
peopled with sedentary classes, is sufficiently advanced politically to
manage her own internal affairs. We feel also that foreign technical
advice and help will be a most valuable factor in our national
growth. We are willing to pay for this help in cash; we cannot sac-
rifice for it any part of the freedom we have just won for ourselves
by force of arms.
Jezireh and Irak are two huge provinces, made up of three
civilised towns, divided by large wastes thinly peopled by semi-
nomadic tribes. The world wishes to exploit Mesopotamia rapidly,
and we therefore believe that the system of government there will
have to be buttressed by the men and material resources of a great
foreign Power. We ask, however, that the Government be Arab^
in principle and spirit, the selective rather than the elective principle
being necessarily followed in the neglected districts, until time makes
the broader basis possible. The main duty of the Arab Govern-
ment there would be to oversee the educational processes which are
to advance the tribes to the moral level of the towns.
The Hedjaz is mainly a tribal area, and the government will
remain, as in the past, suited to patriarchal conditions. We appre-
ciate these better than Europe, and propose therefore to retain our
complete independence there.
The Yemen and Nejd are not likely to submit their cases to
the Peace Conference. They look after themselves, and adjust
their own relations with the Hedjaz and elsewhere.
In Palestine the enormous majority of the people are Arabs.
The Jews are very close to the Arabs in blood, and there is no
conflict of character between the two races. In principles we are
absolutely at one. Nevertheless, the Arabs cannot risk assuming the
responsibility of holding level the scales in the clash of races and
religions that have, in this one province, so often involved the world
DOCUMENT 250 299
in difficulties. They would wish for the effective super-position of a
great trustee, so long as a representative local administration com-
mended itself by actively promoting the material prosperity of the
country.
In discussing our provinces in detail I do not lay claim to superior
competence. The powers will, I hope, find better means to give
fuller effect to the aims of our national movement. I came to Europe,
on behalf of my father and the Arabs of Asia, to say that they are
expecting the Powers at the Conference not to attach undue impor-
tance to superficial differences of condition, and not to consider
them only from the low ground of existing European material in-
terests and supposed spheres. They expect the powers to think of
them as one potential people, jealous of their language and liberty,
and ask that no step be taken inconsistent with the prospect of an
eventual union of these areas under one sovereign government.
In laying stress on the difference in the social condition of our
provinces, I do not wish to give the impression that there exists any
real conflict of ideals, material interests, creeds, or character ren-
dering our union impossible. The greatest obstacle we have to
overcome is local Ignorance, for which the Turkish Government is
largely responsible.
In our opinion, if our independence be conceded and our local
competence established, the natural influences of race, language, and
interest will soon draw us together into one people; but for this
the Great Powers will have to ensure us open Internal frontiers,
common railways and telegraphs, and uniform systems of education.
To achieve this they must lay aside the thought of individual profits,
and of their old jealousies. In a word, we ask you not to force
your whole civilisation upon us, but to help us to pick out what
serves us from your experience. In return we can offer you little
but gratitude.
January ist, 1919.
/ ,
300
DOCUMENT 251
Territarial Claims of the Government of the Hedjaz**
As representing my father, who, by request of Britain and
France, led the Arab rebellion against the Turks, I have come to
ask that the Arablc-speaking peoples of Asia, from the line Alex-
andretta-Diarbekr southward to the Indian Ocean, be recognised
as Independent sovereign peoples, under the guarantee of the League
of Nations. The Hedjaz, which Is already a sovereign State, and
Aden, which is a British dependency, are excluded from the Arab
demand.
The confirmation of the States already existing in the area, the
adjustment of their boundaries with one another, with the Hedjaz,
and with the British at Aden, and the formation of such new States
as are required, and their boundaries, are matters for arrangement
between us, after the wishes of their respective Inhabitants have
been ascertained.
Detailed suggestions on these smaller points will be put forward
by my Government when the time comes.
I base my request on the principles enunciated by President
Wilson (attached), and am confident that the Powers will attach
more importance to the bodies and souls of the Arabic-speaking
peoples than to their own material Interests.
Feisal.
January 29th, 1919.
a. See Diary, p. ^T.
DOCUMENT 251 301
APPENDIX.
Second Point of President Wilson's Address at Mount Vernon of
July 4th, 1918.
"The settlement of every question, whether of territory, of sov-
ereignty, of economic arrangement, or of political relationship,
upon the basis of the free acceptance of that settlement by the people
immediately concerned, and not upon the basis of the material
interest or advantages of any other nation or people which may
desire a different settlement for the sake of its own exterior influence
or mastery".
302
DOCUMENT 252
Resolutions in Reference to Mandatories'^
1. Having regard to the record of the German administration
in the colonies formerly part of the German Empire, and to the
menace which the possession by Germany of submarine bases in
many parts of the world would necessarily constitute to the freedom
and security of all nations, the Allied and Associated Powers are
agreed that in no circumstances should any of the German colonies
be restored to Germany.
2. For similar reasons, and more particularly because of the
historic misgovernment by the Turks of subject peoples and the
terrible massacres of Armenians and others in recent years, the
Allied and Associated Powers are agreed that Armenia, Syria,
Mesopotamia, Palestine and Arabia must be completely severed
from the Turkish Empire. This is without prejudice to the settle-
ment of other parts of the Turkish Empire.
3. The Allied and Associated Powers are agreed that ad-
vantage should be taken of the opportunity afforded by the necessity
of disposing of these colonies and territories formerly belonging
to Germany and Turkey which are inhabited by peoples not yet able
to stand by themselves under the strenuous conditions of the modern
world, to apply to these territories the principle that the well being
and development of such peoples form a sacred trust of civilisation,
and that securities for the performance of this trust should be
embodied in the constitution of the League of Nations.
4. After careful study they are satisfied that the best method
of giving practical effect to this principle is that the tutelage of such
peoples should be entrusted to advanced nations who, by reason of
their resources, their experience or their geographical position, can
a. See Diary, pp. 97-99.
DOCUMENT 252 303
best undertake this responsibility, and that this tutelage should be
exercised by them as mandatories on behalf of the League of Na-
tions.
5. The Allied and Associated Powers are of opinion that the
character of the mandate must differ according to the stage of de-
velopment of the people, the geographical situation of the territory,
its economic conditions and other similar circumstances.
6. They consider that certain communities formerly belonging
to the Turkish Empire have reached a stage of development where
their existence as independent nations can be provisionally recog-
nised subject to the rendering of administrative advice and assist-
ance by a mandatory power until such time as they are able to stand
alone. The wishes of these communities must be a principal con-
sideration in the selection of the mandatory power.
7. They further consider that other peoples, especially those of
Central Africa, are at such a stage that the mandatory must be
responsible for the administration of the territory subject to con-
ditions which will guarantee the prohibition of abuses such as the
slave trade, the arms traffic and the liquor traffic, (and the preven-
tion of the military training of the natives for other than police
purposes, and the establishment of fortifications or military and
naval bases, )^ and will also secure equal opportunities for the trade
and commerce of other members of the League of Nations.
8. Finally they consider that there are territories, such as
South-West Africa and certain of the Islands in the South Pacific,
which, owing to the sparseness of their population, or their small
size, or their remoteness from the centres of civilization, or their
geographical contiguity to the mandatory state, and other circum-
stances, can be best administered under the laws of the mandatory
a. At the suggestion of Sir Robert Borden the text in parentheses was changed
so that It read "and the prevention of the estabh"shment of fortifications or military
and naval bases and of the military training of the natives for other than police
purposes and the defence of territory." See Diary, p. 98.
i
304 DOCUMENT 252
State as integral portions thereof, subject to the safeguards above-
mentioned in the interests of the indigenous population.
In every case of mandate, the mandatory state shall render to
the League of Nations an annual report in reference to the territory
committed to its charge.
January 29th, 19 19.
DOCUMENT 253
Letter of Lord Robert Ceci^
304 a
1
^ I vI^tl.-'^-*. I
t
BRITISH DELEGATION,
PAR i S.
^11
■rl X.
L»— ''-'>*-*->-«>V_,
)
■it;;^ jivs_^.-ijt
aL>_A_-<_ei>\. -
. i*
6<ijlL&-^ ^ ^v
VIW.
Ct..^
L>»^>-
-fc.
u>*nJ<JL
Aajouu^
a. See Diary, p. 100.
b. For what is here called "your" (my) draft, see Document 239.
304b
\
a-^-aila-^JC l>>wU^
304c
"'^^^
■:t)
BRITISH DELE GAT Ton
' . ''^
PAR) 3.
OJ-^A^^
,V, 6^-«-aK
LfX^'^
LLa^vJ^^''^ ^
7
^A^JhJi. ^.*>^^ ^*^
-JA
'Xa-^'
> 1' l^ ■..
tux, '1 i%--^t^----^
'^,X»-w-- o^>^,,.
//
.^.A_A...--.A>J-^;-
^
J Xj^t-^^j^ -j-vi-v^. • e«w*-
Kk -
U5iL .
b. See Documents 255 and 256.
30S
DOCUMENT 254
Notations Made by Lord Robert Cecil on the Copy of Document 239
Returned in His Letter Dated January 29th, 1919*
The notations made by Lord Robert Cecil on the copy of Docu-
ment 239 were in part suggestions of changes in the language and in
part marginal notes. It seems to me simpler to list these rather than
to reproduce the entire document. The references are, of course, to
Document 239.
The changes in the language suggested were as follows:
1. Change Article I, first paragraph, second sentence, so
as to read:
"The H.C.P. may appoint representatives at the Capitol
of the League and the Body of Delegates shall normally
consist of such Representatives."
2. In Article I, third paragraph, first sentence, insert the
word ''Executive" before the word "Council".
3. In Article I, third paragraph, add to the paragraph
the following words "who shall be nominated by the State for
that purpose". •
4. In Article II, second paragraph, strike out the word
"jurisdiction" and insert the words "sphere of action".
5. In Article II, fifth paragraph, strike out the words
"upon the recommendation of the Executive Council".
6. In Article Il-a, strike out the seventh paragraph, com-
mencing "Each of the H.C.P."
7. In Article Il-a, last paragraph, insert the word "New-
foundland" after the word "Canada" and insert the word
"separately" before the word "represented".
8. In Article V, first paragraph, first sentence, strike out
a. See Diary, p. 100. For the letter of Cecil, see Document 253.
306 DOCUMENT 254
the word "of" and insert the word "or" (before the words
**the Body of Delegates") .
9. In Article V, first paragraph, strike out the word "deci-
sion" (twice) and insert in each case the word "recommenda-
tion",
10. In Article V, second paragraph, strike out the words
**be with regard" and insert the word "relate"; also, strike out
the words "to submit" and insert the words "they will submit";
also, strike out the words "to carry out" and insert the words
"will carry out".
11. In Article V, sixth paragraph, strike out the words
"to the H.C.P."
The marginal notes made by Lord Robert Cecil were as fol-
lows : —
Note to Article II, fifth "What are the direct powers referred
paragraph.
to?"
Note to Article Il-b. "This should be supplementary to what
is done by the Conference."
Note to Article III, second "This should be confined to territorial
and third paragraphs.
changes, otherwise it will be too vague."
Note to Article IV, second "Suspend pending report of Arma-
and third paragraphs. . .
ments Commission."
Note to Supplementary "I fear this will cause great indignation
Agreement IV, second para- ^
graph. amongst the smaller states without any
corresponding advantage."
Note to Supplementary "To be agreed with Labour Commls-
Agreement V. ^
sion."
307.
DOCUMENT 2^^
Lord Rabert Cecil's Suggestion
This is my* suggestion for the reserved fourth and fifth para-
graphs of Article V.^
The decision of the Tribunal of Arbitrators shall be finally bind-
ing and conclusive, unless within months any of the parties
to the dispute appeals to the Permanent Court of International
Justice.
The Permanent Court of International Justice shall have its seat
at the Capital of the League, and shall be constituted in the follow-
ing manner : —
Five persons of high judicial standing and known competency in
international law shall be nominated by France, Great Britain, Italy,
Japan and the United States respectively.
These five judges shall elect four other persons of high judicial
standing and known competency In international law, from among
persons nominated by the other states members of the League of
Nations.
These nine judges together shall constitute the Permanent Court
of International Justice. They shall hold office for nine years, and
may be re-appointed.
In case of any vacancy occurring in the Court, the remaining
members of the Court shall elect the judge who is to fill it, except in
the case of a judge appointed by one of the Great Powers. In that
case the said Great Power shall appoint the judge who is to fill the
vacancy.
No judge in the Permanent Court shall be removable except
by the unanimous recommendation of all his colleagues.
a. «. e.. Lord Robert Cecil. This was an enclosure to his letter of January 29th
(Document 2S3). See Diary, p. 100.
b. The reference is to Document 239.
308 DOCUMENT 255
The Permanent Court shall be constituted in the above manner
until such time as the States members of the League of Nations agree
on some other method of appointing its members.
In the event of an Appeal to the Permanent Court, the arbitra-
tors originally nominated by the parties to the dispute shall become
ad hoc members of the Permanent Court.
The decision of the Permanent Court shall be finally binding
and conclusive without right of appeal.
The decisions of the Permanent Court shall be binding prece-
dents both for itself and for any tribunal of arbitration set up under
paragraph li.
;- '^K Svi.jL-
309
DOCUMENT 256
Notes on a Permanent Court"
I. Besides serving as a Court of Appeal in major Interna-
tional disputes, a Permanent Court might fulfil the following func-
tions : —
a. It might act as a Court of ist Instance in disputes
arising within the Administrative Unions :
e. g. It would substitute the provisions for arbitration now
contained in the Universal Postal Union, in the Inter-
national Railway Convention, etc.
b. It would serve as a Court of Appeal for the enforce-
ment of the following Conventions :
Arms Traffic.
Equality of Trade Conditions.
Transit.
International Labour Legislation.
Mandate Treaties (prohibited practices).
The first 4 of these conventions are drafted on the as-
sumption that there will be a permanent Court. Out of all of
them there are certain to arise a considerable number of dis-
putes, some of which will involve large and important in-
terests.
c. It might act as a Court of Appeal for all the minor
International Courts that will be set up :
e. g. Danube Commission Court
Sanitary Convention — Consular
Commissions etc.
' Possibly similar Courts may be set up for
the Kiel Canal, the Vistula, etc.
d. It might act as a Court of Summary Procedure, in
minor or highly technical cases, or in claims for damages.
a. Author, Lord Robert Cecil. See Diary, p. 100 and the letter of Cecil of
January 29th (Document 253) to which this was an enclosure. See also Document 255.
3IO DOCUMENT 256
which States do not wish to submit to the elaborate machinery
of Article V. This might be of great practical use.
it seems probable therefore that in normal times the Perma-
nent Court would have work to do. And almost certainly there will
be a great many cases arising out of the Peace Settlement for which
an International Court will be required. This was the case after
the Congress of Vienna ; and if it so happened now, the Permanent
Court might very quickly establish for itself an extremely important
and valuable position.
2. The difficulty in establishing a Permanent Court lies exclu-
sively in the method of choosing its members. It is objected that it
adds contentious matter to the general proposal for a League, and
pro tanto will damage the League's chances of coming into exist-
ence.
This would be true if the small States maintained the attitude
they adopted in 1907. They wrecked the plan for a Permanent
Court then : but their ground of opposition was a plea of equality
of rights which not only is theoretically preposterous, but which is
entirely incompatible with the conception of a League of Nations.
If they enter the League at all, they must and will abandon the
doctrines of Barbosa. There is therefore reason for thinking that
they might accept the scheme proposed as at least a temporary solu-
tion of the problem of constituting the Permanent Court.
3. Prof. Pollard says that "it was the suppression of private
war that fostered recourse to law."
In an exactly similar way, the proposals of the Draft Conven-
tion for a League of Nations would foster recourse to international
law. The moratorium, by forbidding war for a fixed period, would
tend to produce this result; the provision compelling publicity as
to the nature and grounds of all disputes would do so even more.
States will not withdraw from arbitration issues which ought to go
there, when they have the certainty of publicity before them.
DOCUMENT 256 311
But the supremacy of the law in England was only rapidly es-
tablished after the Wars of the Roses, because there were already
Courts of law in existence. At present there is no international
Court. Only if a true Permanent Court is established will recourse
to international law under the League become the normal procedure
of disputes. A permanent Court is the necessary basis of all legal
development In International relations.
4. The highest legal authorities believe that a Permanent
Court is perfectly feasible, and that it would administer justice with
complete impartiality. This Is the opinion of Westlake, Pollock,
Vinogradoff, Geldart, Oppenheim. If it proved to be right, it
would remove the chief ground of objection to arbitration in the
past.
312
DOCUMENT 257
Copy of Telegram Sent to Washington by the American Embassy,
Paris*
Paris
January 27, 1919-
Secretary of State,
Washington.
Mr. Whitlock telegraphed the American Mission as follows
under the date of January seventeenth: Probably from French
sources the Belgian Government has been given to understand that
the reduction in its representation at the Peace Conference is due to
American intrusiveness. I respectfully request to be authorized to so
state to the Belgium Government, if this is not true. End of
Quotation. The Mission replied by the following telegram on the
eighteenth. Quote. The report is absolutely untrue. Yesterday's
decision to increase number of Belgian Delegates to three men was
most satisfactory to the American Representatives, on the contrary.
End of quote.
Bliss.
a. See Diary, p. 100.
313
DOCUMENT 258
Telegram Received"
Berne,
Dated January 29th, 19 19,
Rec'd 30th, 10:30 a.m.
American Mission,
Paris.
January 29th, 5 .-40
His Excellency Robert Lansing, Secretary of State,
Hungarian Red Cross Mission which identical interests permit-
ting also cooperates with Austrian Red Cross Mission headed by
Slatin Pascha respectfully appeal for your kind intervention.
400,000 Hungarian and Austrian war prisoners, forsaken in Siberia
and Turkestan, are suffering indescribably. Permission urgently
requested for two or more Hungarian Delegates to go to Vladivos-
tok arranging en route in America and Japan everything necessary
for their immediate succour and repatriation. No point of inter-
national law is here raised, appeal being made on humanitarian
grounds as, if immediate help be not granted, major portion these
unfortunates will perish miserably and unnecessarily. Also ex-
pediency dictates that they be removed at earliest opportunity from
dangerous Bolshevik contamination. Tonnage lack recognized but
believe It possible to arrange that question to satisfaction of every-
one. Beg finally that if President Wilson's plan of Prince's Island
Conference realized, interests of these Hungarian and Austrian
prisoners be remembered. Immediate steps necessary, situation be-
ing desperate.
Ernest Ludwig,
Consul General, Bemerhof, Berne.
a. See Diary, p. 100.
3H
DOCUMENT 259
Telegram Received*
Berne,
Dated January 28th, 1919.
Rec'd. 30th, 10:30 AM.
American Mission,
Paris.
January 29th, 5 130 PM.
Mr. Robert Lansing, Secretary of State.
The Austrian Red Cross Mission aid of prisoners at Berne with
which a Hungarian Red Cross Mission is cooperating, venture to
beg you to use your influence that permission be given to send some
Austrian and Hungarian Delegates to Siberia, and Turkestan. The
object is to bring the Austrian and Hungarian war prisoners mone-
tary help and assistance as proof that they are not forgotten by
their own and to make necessary arrangements for their repatriation
when time has come. It is an eminent humanitary question to
comfort mind and body of many hundred thousands of prisoners of
war and quieting their wives and parents at home who are practi-
cally without news of them. I hope you will consider my request
as just and urgent and consent to it for the sake of the families of
those unfortunates who are mostly over four years in Siberia and
Turkestan under very trying circumstances. I would be very grate-
ful if in case that there would be any meeting with Russian repre-
sentatives, your delegates would advocate for a better treatment of
those poor Austrian and Hungarian prisoners in above mentioned
regions.
Slatin,
Austrian Red Cross War Prisoner Aid, Berne.
a. See Diary, p. 100.
3^5
DOCUMENT 260
Telegram Received"
Rome,
Dated January 29th, 19 19.
Rec'd. 30th, 7 :30 A. M.
American Mission,
Paris.
Confidential. I learn that Garrara Italian Minister at Havana
who demanded release of Irridenti members of crews of Austrian
ships interned there, in terms which Cuban Government consid-
ered very insulting, sent another note saying that unless these people
were released within an hour he would consider that Cuba had de-
clared war against Italy. He will probably be recalled immediately
though Foreign Office here appears reluctant to act in the absence
of Sonnino.
Nelson Page.
a. See Diary, p. 100.
3i6
DOCUMENT 261
Redraft of Resolution of January 23, 1919*
The Conference, in order that the Committee appointed to
work out the details of the constitution and functions of a League
of Nations may be guided in the consideration and preparation of
its report, makes the following declarations :
That it is a fundamental principle of international peace that
all nations are equal in the rights of undisturbed possession of their
respective territories, of independent exercise of their respective
sovereignties, and of free use of the high seas as the common prop-
erty of all peoples ;
That the members of the League of Nations should by mutual
covenants undertake —
(i) To refrain from invading and to protect from invasion
the sovereign rights and territories of one another;
a. Author, Robert Lansing. See Diary, p. 100. I suppose that this is the
draft sent to the President by Mr. Lansing on January 31st. (Lansing, The Peace
Negotiations, p. 117.) It is -very interesting to note that Mr. Lansing does not
print the text of this draft, but only of an earlier draft, which was completed on
January 22nd (op. cit., p. 116) and "discussed with the other Commissioners"
{op. cit., p. 117).
Mr. Lansing speaks of the differences between the draft of January 22nd (which
he prints) and the draft sent to the President on January 21st (which he does not
print and which I do) as being
"Some changes of a more or less minor character which it seemed admis-
sible to make because of the appointment of a Commission on the League
of Nations at a plenary session of the Conference on January 25th, of
which Commission President Wilson and Colonel House were the American
members" {op. cit., p. 117).
Why does not Mr. Lansing print the text of the draft which he sent to President
Wilson?
If, as I think, the Document here printed is that draft, the reason for its not
being printed by Mr. Lansing is obvious. Compare the language of the "Mutual
Covenant" numbered (1) in Mr. Lansing's book (p, 116)
"To safeguard from invasion the sovereign rights of one another"
with the language here :
"To refrain from invading and to protect from invasion the sovereign
rights and territories of one another." (Italics mine.)
This is language which goes farther, much farther than Article 10, which Mr.
Lansing criticizes, and is a complete reversal of Mr. Lansing's position in favor
of a "self-denying covenant" on which he so much insists {e. g., op. cit., p. 123).
Why did Mr. Lansing in his book print neither this draft nor his covering
letter to President Wilson? {op. cit,, p. 118.)
DOCUMENT 26 1 ^ ^ jiy
(2) To submit to international arbitration all disputes of a
justiciable nature which have failed of diplomatic settle-
ment ;
(3) To submit to investigation by the League of Nations all
other disputes which have failed of diplomatic settle-
ment;
(4) To refrain from hostile acts or the employment of force
pending the arbitration or investigation of a dispute ;
(5) To abide in good faith by an arbitral award and to re-
spect a report by the League of Nations upon a dispute
submitted to it for investigation;
That the League of Nations should have authority to appoint
mandatories and to empower them to exercise, under such condi-
tions as it may deem just, sovereign rights over the territories which
were formerly the colonial possessions of Germany and also over
such new states erected by the Treaty of Peace as are declared to be
international protectorates, it being understood that the interests
and wishes of the inhabitants of the territories affected are primarily
to be considered in the selection of mandatories and the provi-
sions of the mandates issued, and that in the case of new states the
mandates shall provide for the gradual assumption of complete in-
dependence.
That the League of Nations should be charged with the con-
sideration and formulation of a plan for a general reduction of na-
tional armaments on land and sea and in the air, including therein
restrictions upon compulsory military service and upon the manu-
facture and sale of arms and munitions of war.
318
DOCUMENT 262
Letter to Lord Robert Ceci^
31 January, 19 19.
Dear Lord Robert:
I have received your note of January 29th,*' with the papers men-
tioned, which I shall attentively examine.
I am grateful to you for speaking with that frankness which it
seems to me you rather harshly characterize as bluntness; and it
would be the farthest from my thoughts that you had or could fail
either in courtesy or in consideration.
Very sincerely yours,
David Hunter Miller.
The Right Honorable Lord Robert Cecil,
Hotel Majestic,
Paris.
a. See Diary, p. 101.
b. Document 253. See Diary, p. 100, note a.
319
DOCUMENT 263
La Question du Banat"
La tache d'exposer les droits de la Roumanie sur le Banat nous
est rendue facile par le fait que nos trois grands Alliees europeens
ont deja examine cette question lors des discussions approfondies
qui ont precede le traite d' alliance du 17 aout 19 16, et que ce traite,
qu'ils ont signe, reconnait le bien-fonde de nos revendi cations.
Nous avons toute confiance dans le concours que les puissances
signataires du traite nous apporteront pour demontrer notre bon
droit aux deux grandes puissances non-europeennes qui n'ont pas
participe en 19 16 a I'examen de la question, et qui peuvent ne pas
connaitre les principes de nos revendications.
Ces revendications sont dominees par le principe ethnique. C'est
en vertu de ce principe, au nom de notre droit a I'unite nationale,
que nous les avons formule.
Mais ce principe doit s'accorder avec les autres necessites de la
vie des peuples, qu'on ne saurait concevoir independante des condi-
tions territoriales ou les peuples sont appeles a se developper.
L'etablissement de cet accord doit etre la preoccupation de ceux
qui veulent assurer I'avenir de I'Orient de I'Europe. C'est a cette
preoccupation que repondent nos revendications dans la question du
Banat.
LA QUESTION DU BANAT DE TEMESHVAR
II ne peut venir a Tesprit de personne de contester a la Roumanie
le droit de revendiquer I'union politique d'un territoire ou les Rou-
mains vivent depuis de longs siecles et ou ils sont au nombre de
600.000 aupres de moins de 400.000 Allemands, colons venus
depuis le XVIIIeme siecle, et d'un peu plus de 300.000 Serbes, im-
a. Roumanian claim. See Diary, p. 101.
320 DOCUMENT 263
migres au XVeme et surtout au XVIIIeme slecle, pour ne parler
que des elements ethniques les plus importants.
Mais Ton a imagine de distinguer dans le Banat entre les regions
ou la population roumaine a la majorite absolue et celles ou elle
n'a qu*une majorite relative ou seulement une minorite importante;
Ton a pense qu'il serait possible de tracer a travers la plaine du
Banat une frontiere d'Etat entre les Roumains a I'Est qui seraient
rattaches au Royaume de Roumanie, et les non-Roumains a I'Ouest
qui deviendraient sujets de I'Etat Serbe: Le Gouvernement Rou-
main estime que c'est la une erreur dangereuse.
Le Banat n'estpas une expression geographique, c'est une realite,
une veritable region geographique et aussi une veritable province
politique formant un tout complet et indivisible aujourd'hui comme
de tout temps dans I'histoire. Si bien qu'il est difficile de concevoir
qu'un Etat puisse demander ou accepter la possession d'une partie
seulement de ce pays, et plus difficile encore d'esperer que, possesseur
de cette partie, il saurait se soustraire a la necessite de revendiquer
bientot le pays tout entier.
Les cours d'eau qui entourent le Banat sur trois cotes (Muresh,
Theiss, Danube) forment une frontiere naturelle qui entoure une
region de plaines a I'Ouest et une region de montagnes a I'Est,
etroitement liees entre elles. C'est la plaine du Banat qui donne
aux habitants des montagnes I'alimentation necessaire; ce sont les
montagnards qui font descendre vers les habitants de la plaine leurs
richesses forestieres et minerales. Les plaines riches et relativement
moins peuplees trouvent dans I'excedent de la population plus pauvre
des montagnes les ressources de main-d'oeuvre et de peuplement in-
dispensable : la plaine et la montagne ne peuvent vivre ici Tune sans
I'autre.
Tous les reseaux des voles de communication par terre, par fer
ou par eau sont organises dans le Banat pour I'ensemble de la
province, et I'etablissement d'une frontiere d'Etat qui les couperait
en deux aboutlrait a rendre inutiles tous les efforts faits depuis le
DOCUMENT 263 321
XVIIIeme slecle dans cette region pour etablir les communications
indispensables a la vie economique du pays.
Les rivieres navigables et les canaux de la plaine conduisent a
la Theiss et au Danube les lourds produits des montagnes de I'Est ;
le partage du Banat laisserait aux Roumains le cours superieur des
rivieres, aux Serbes le cours inferieur et les canaux; on aboutirait
ainsi a ruiner les avantages memes de la situation du Banat entre
ses trois cours d'eau, en coupant pour toute une partie du pays le
libre acces au Danube et a la Theiss.
La Transylvanie elle-meme, dont le Muresh est la seule grande
voie d'eau traversant le pays et penetrant jusqu'au coeur de ses
montagnes, serait privee d'un de ses debouches les plus necessaires;
les produits de ses forets et de ses mines doivent normalement ar-
river au Danube et de la a la mer en descendant le cours du Muresh
et de la Theiss. Une frontiere serbo-roumaine entraverait leur
course a partir du bas Muresh.
II ne servirait de rien d'affirmer solennellement et meme de
garantir en fait la liberte de navigation sur toutes les voies, fleuves,
rivieres, canaux. La navigation a besoin d'autre chose encore:
d'organisation technique, d'entrepots, d'installations mecaniques,
commerciales, industrielles, pour conserver, manutentionner, re-
partir, ouvrer ou transformer les produits aux points et dans les
conditions les plus avantageuses.
Tous ces secours, le commerce fluvial de la Transylvanie et du
Banat les trouverait naturellement sur une rive roumaine de la
Theiss et du Danube; il serait vain de les attendre de la bonne
volonte d'un Etat etranger pour les produits d'un autre Etat.
Mais si I'on voulait malgre tout couper en deux le Banat par
une frontiere que Ton croirait ethnographique, il serait impossible
de le faire sans violer de toutes parts la necessaire equite.
Meme dans la region ou les Serbes sont en nombre, des groupes
roumains importants sont meles parmi eux, et aussi des colonies
germaniques qui ne peuvent etre rattachees politiquement a aucun
322 DOCUMENT 263
Etat de meme nationallte, mals qu'il n'y a aucune raison de reunir
a la Serbie, et qui ne pourraient en tout cas etre toutes reunies a cet
Etat a cause de leur repartition sur tout le centre du Banat: Ces
AUemands (Souabes), le jour ou lis seront libres d'exprimer pub-
liquement leur volonte deja certaine, refuseront d'ailleurs de lalsser
amoindrir leur masse nationale par un partage entre la Serbie et la
Roumanie et ils se rallieront a ce dernier Etat.
Le melange de ces diverses nationalites dans I'Ouest du Banat est
tel que pour detacher de la Roumanie les 200.000 Serbes qui se
trouvent dans cette region, il faudrait annexer du meme coup a la
Serbie un nombre double de non-Serbes, AUemands, Magyars et
Roumains. Et Ton aurait ainsi cree de nouveaux irredentismes.
Peut-etre fera-t-on encore valoir, pour oter aux Roumains au
moins le Sud-Ouest du Banat, la necessite de laisser devant Belgrade
une zone de protection. Les legons de la derniere annee de la
guerre ont pu singulierement diminuer la croyance a I'utilite de
cette protection et la valeur de 1' argument qu'on en tirait.
D'ailleurs, la Roumanie y a deja repondu en 19 16 en inserant
dans son accord avec les Puissances Allies I'engagement de laisser
sans travaux militaires et sans garnison toute une zone en face de
la capitale actuelle de la Serbie.
C'est la une garantie suffisante au point de vue defensif. Au
contraire, I'etablissement sur la rive gauche du Danube d'une zone
de protection ayant le caractere d'une possession politique et mili-
taire serbe constituerait une veritable tete de pont, c'est-a-dire une
organisation militaire moins defensive qu'offensive.
Depuis que I'Etat Serbe et I'Etat Roumain vivent en contact
sur le Danube, I'histoire foumit les preuves de leurs nombreuses
relations de commerce et de civilisation; elle n'a jamais enregistre
entre eux un conflit: la volonte pacifique des deux peuples a trouve
une aide precieuse dans la frontiere nette et certaine que le Danube
etablissait entre eux, frontiere naturelle, frontiere d'interets.
Le Gouvemement Roumain est si bien convaincu de cette Im-
DOCUMENT 263 323
portance du Danube comme frontiere pacifique qu*il s*est toujours
Interdit de jeter les yeux au-dela de ce fleuve et de songer a la pos-
sibilite de reunir a la Roumanie nord-danubienne les nombreux rou-
mains etablls en Serbie entre les vallees du Timok et de la Morava.
II croit en effet que le Danube une fois franchi, une tete de pont
une fois etablie sur I'autre rive, des extensions territoriales de plus
en plus grandes dans cette direction s'imposeraient chaque jour
davantage comme une necessite politique et economique. Les con-
flits surgiraient alors sans nombre, et sans solution pacifique possible,
autour de frontieres plus ou moins conventionelles. II n'est pas
douteux que ces conflits, que la Roumanie s'est refusee a faire naitre
sur la rive droite du Danube, ne manqueraient pas de se produire
sur la rive gauche, autour d'une frontiere aussi incertaine et aussi
inequitable que celle, quelle qu'elle soit, qu'on tracerait a travers les
plaines du Banat.
Ainsi, en faisant franchir a la Serbie la frontiere du Danube pour
assurer a cet Etat une pretendue limite ethnographique, en esperant
trouver dans ces concessions une garantie pour I'organisation de
la paix des peuples, on n'aurait abouti qu'a la disorganisation eco-
nomique, a I'arret du developpement de toute une region et a la cer-
titude de conflits.
II est a peine besoin de dire que la Roumanie assurera aux Serbes
qui resteront etablis sur son territoire, tous les droits et garanties
qui seront assures d'autre part aux Roumains sujets de TEtat Serbe
conformement aux principes que la Ligue des Nations proclamera
pour toutes les minorites.
Tels etaient, dans leurs grandes lignes, les arguments presentes
par la Roumanie pour faire reconnaitre le bien-fonde de ses reven-
dications sur le Banat, avant la guerre.
Le role de la Roumanie dans la guerre ne saurait avoir d'autre
effet que de confirmer ces droits.
Pour comprendre quel a ete ce role, il suffit, sans retracer les
conditions dans lesquelles Paction militaire de la Roumanie a ete
324
DOCUMENT 263
appelee a s*engager et a se developper, de se souvenir que les pertes
de rarmee roumaine seule, abstraction f aite des pertes plus considera-
bles encore de la population civile, ont atteint 335.000 hommes,
et de lire sur la carte ci-annexee les preuves de I'influence qu'a eu
Taction militaire roumaine sur la conduite generale de la guerre.
325
DOCUMENT 264
D^limitatian entre les Serbes et les Roumains dans le Banaf^
Le Banat est peuple de Serbes, de Hongrois, de Roumains et
d'Allemands. Les Serbes sont indigenes; les autres nationalites sont
venues s'y etablir posterieurement en qualite de colons.
A I'est, la frontiere est a tracer entre les Serbes et les Roumains,
et au Nord, entre les Serbes et les Hongrois.
Principaux Faits Geographiques et £:conomiques.
Le Banat n'est pas une unite ethnique, geographique et econo-
mique. Au contraire, il est compose de deux parties, gebgraphique-
ment et ethnographiquement independantes I'une de 1' autre, avec
des relations economiques et des communications differentes, qui ont
represente au cours de I'histoire, des unites historiques speciales; en
outre, ces deux parties sont de composition ethnographique differente.
L'une de ces parties est le Banat occidental ou la plaine du Banat
qui s'etend de la Theiss a Temichvar, Verchatz et Bela Tzrkva,
tandis que I'autre, qui s'etend a Test de ces villes, est le Banat oriental
ou montagneux. Le Banat occidental est caracterise par le fait que
ses cours d'eau — la Theiss, le Moris, la Nera et le Karas — conver-
gent au Sud, vers Belgrade, et font de cette ville le centre de la
navigation et I'emporlum qui commande tous les courants commer-
ciaux du Banat. En outre, au point de vue morphologique, surtout
au point de vue economique et des communications, le Banat occi-
dental forme une unite avec la vallee de la Morava et du Vardar.
Aux XVIP et XVIIP siecle et presque jusqu'a nos jours (il y a
quarante ans) — c'est-a-dire avant que le Gouvernement hongrois
n'eut introduit des mesures prohibitives — le commerce et la vie
economique du Banat occidental etaient intimement lies a la Serbie.
Temichvar etait le centre des relations commercials avec les Bal-
kans. Lorsque I'invaslon turque eut detruit les fitats serbes des
Balkans, il fut tout a fait naturel que la civilisation serbe se soit
a. Claim of the Serbs. See Diary, p. 101.
326 DOCUMENT 264
continuee sur le terrltolre du Banat, au Nord de la vallee de la
Morava. Du XVP au XVIIP slecle, le Banat occidental s'appelait
simplement la Serbie — Rascle — parce que c'est la que la vie et la
conscience nationales serbes furent les plus intenses. Jamais le Banat
occidental n'a eu de relations intimes avec la Roumanie dont il est
separe par la barriere montagneuse des Carpathes.
Les pays balkanlques qui appartlennent a notre £tat (Bosnie-
Herzegovine, Montenegro, Dalmatie, Carniole et Istrie), ainsi
qu'une grande partie de la Serbie meridionale, sont des pays mon-
tagneux, faibles producteurs de ble, qui auront un besoin pressant
du ble du Banat. La Roumanie, etant un des grenlers les plus
riches de I'Europe, n'a aucun besoin de I'acquisition d'une nouvelle
province agricole.
Etant la continuation de la vallee de la Morava, le Banat occi-
dental constitue une zone territorial protegeant la frontiere septen-
trionale de la Serbie qui est tout a fait ouverte — zone couvrant I'en-
tree de la vallee de la Morava qui, dans les temps historiques, aussi
bien que dans la derniere guerre, a toujours represente une porte
ouverte a I'ennemi; enfin, cette region, seule, protege Belgrade, capi-
tale du Royaume des Serbes, Croates et Slovenes, qui resterait sans
elle completement exposee a I'ennemi des le premier jour de I'agres-
sion, comme ce fut le cas lors de la derniere guerre.
Tandis que le Banat occidental, a lui seul, forme une unite
geographique et ethnographique liee a la Serbie septentrionale,
tandis que sa population roumaine est toujours restee sans impor-
tance numerique, ne jouant aucun role dans la civilisation roumaine,
le Banat oriental, le Comitat de Kraso-Szoreny, au contraire, a tou-
jours forme une unite ethnographique, historique et economique
avec la Transylvanie. Bien que cette partie orientale du Banat con-
tienne certains elements serbes, nous n'elevons pas de pretentions
sur elle.
REVUE HISTORIQUE
La Periode la Plus Anctenne
Suivant les donnees de I'histoire, le Banat etait habite aux temps
DOCUMENT 264 327
anciens par les Daces. Puisque les colons romains se retirerent de-
vant les Goths de la Dacle sur la rive droite du Danube, on doit
chercher le berceau de la nation roumaine sur la rive droite du
Danube. Done, les Roumains ne sont pas autochtones dans le
Banat.
Le prennler etablissement des Slaves dans ces regions est men-
tionne au debut du IV® siecle, immediatement apres le demembre-
ment de I'fitat des Huns. Au VP siecle, les Slaves peuplant ces
regions tomberent sous la domination des Avares, et au IX® siecle,
sous celle des Francs. Lorsque les Hongrols parvlnrent dans ces
regions, lis y trouverent commes indigenes les Slaves qui, suivant
rhlstorien hongrois Szentklaray, etaient en relations suivies avec
les Slaves des Balkans. Aux X® et XP slecles, les Slaves tomberent
sous la domination des Hongrois; sous la dynastie des Arpads, la
population serbe de ces contrees joua un role important: elle prit
part comme armee autonome dans le conflit entre la Hongrle et la
Boheme au XIIP siecle, et posseda a la cour sa propre noblesse.
Migrations Serbes
Apres la batalUe de Kossovo, le Banat regut une nouvelle popu-
lation de Serbes des Balkans.
En 1 4 14, le role de Hongrie accorda a Stevan Lazarevltch,
"despote" serbe, le titre de Gouverneur de la "joupania" de Toron-
tal. Djordje Brankovitch, "despote" serbe, agrandit les domaines
des "despotes" serbes dans les "joupanlas" de Tamis et de Kraso
oil il exergalt le pouvoir souverain. Apres I'effondrement de la
Serble en 1459, Femlgratlon s'accrut dans de telles proportions que
le roi Mathias pouvait ecrire au Pape (le 12 Janvier 1483) qu'au
cours des quatre dernleres annees environ 200.000 Serbes etaient
passes en Hongrle. Sur la rive gauche du Danube se forma done
une Serble nouvelle ou se concentra la vie politique des Serbes. Le
petit-fils du "despote" Brankovitch, Zmaii Vouk, est nomme
"despote" serbe en 1471 par le roi de Hongrie, avec des droits
autonomes particuliers : il ne depend que du seul roi de Hongrie.
328 DOCUMENT 264
En cas de guerre le "despote" serbe etait tenu de fournlr un ^^bande-
rium^^ de 1000 cavaliers, tandis que le reste de la noblesse, meme
le Ban de Croatie, n'en fournissait pas plus de 400 ("Despotus
autem equites mille dare tenebitur" /Corpus juris hungarici, p. 492,
606/).
En general, jusqu'a la bataille de Mohacz, en 1526, les "des-
potes" et la noblesse serbes jouerent en Hongrle un role politique
important. Les Hongrols se retlrant de plus en plus au Nord, de-
vant I'avance turque, la population du Banat occidental et central
devint beaucoup plus dense et le pays prit un caractere entlerement
serbe. Sur les cartes du XVP (Lazius) et du XVIP siecle (Tser-
nlng, Cluverlus) on appelle le Banat central et occidental Rascia,
c'est-a-dire le pays serbe. Nulle part on ne trouve trace de Rou-
malns.
U Unite Historique et Administrative du Banat N'Existe Pas
Les Roumalns assurent que le Banat a toujours forme une unite
historique et administrative. Cette affirmation manque de justesse.
D'abord, la partle Est du Banat, c'est-a-dire le Comltat de Kraso-
Szoreny, a forme avec la Petite- Valachle jusqu'a la riviere d'Olt,
une unite militalre et administrative, sorte de "Marche," appelee
le Banat de Severln. Cette division entre le Banat de I'Est et celui
de i'Ouest et du Centre s'est malntenue pendant I'epoque turque.
Les Turcs formerent, en 1552, du Banat central et occidental, le
vilayet de Temlchvar, tandis que le Comltat de Kraso-Szoreny actuel
fut constltue en "Banat de Karansebech et de Lougoch" dont le Ban
gouvernait au nom du Prince de Transylvanle, avec residence a
Karansebech. Pendant I'epoque autrichlenne, le Nord du Banat
requt en 175 1 une administration civile, tandis que le Banat
meridional devint, entre 1768 et 1773, les Confins milltalres. En
1774, on constitua avec le Comltat de Torontal d'aujourd'hui, le
district autonome serbe de Vellka KIkinda. La division actuelle,
en trols Comitats, ne date que de 1873 et de 1874, lorsque furent
abolis les Confins militaires et le district autonome de Kiklnda. On
DOCUMENT 264 329
peut voir par la que I'unite du Banat n'a jamais existe et que la
partie de I'Est etait toujours etroitement liee a la Transylvanie.
U:&glise et les Privileges Serbes
Les territoires du Banat, de la Batchka et de la Baranya com-
prennent huit dioceses avec 21 monasteres, dont onze grands et six
petits se trouvent dans le seul Banat; tous ces monasteres dependai-
ent du Patriarcat Serbe de Fetch (Ipek) , et tous ont ete eriges par
les "despotes" ou les nobles serbes/^^
Lorsqu'en 1683 les Turcs marcherent de nouveau sur Vienne,
un noble serbe, Djordje Brankovitch, apparut, ayant pour but la
liberation et I'union de tous les pays de la Hongrie meridionale et
des Balkans, et la formation d'une Grande-Serbie qui s'etendrait
de Triglav jusqu'aux Rhodopes.
Leopold 1% pousse par la necessite, accepta en apparence cette
idee et nomma immedlatement Brankovitch "despote" du Banat,
de la Syrmie et de THerzegovine. Le soulevement fut couronne de
succes, les Turcs rejetes de Tautre cote du Danube; mals I'Autriche
ne permit pas la realisation des plans de Brankovitch: elle Tem-
prisonna en 1689, le jeta dans les cachots de Heb (Eger), ou il
mourut en 17 11.
Ensuite, pendant sa guerre avec la France, et pour se garantir
des Turcs, TAutriche invita le Patriarche Arsenie III a fomenter
un soulevement contre les Turcs, promettant aux Serbes, dans un
appel qu'elle leur adressa le 6 Avril 1690, la libre election de leur
"Vo'ivode" et le droit de se gouverner librement selon leur propre
volonte {Servata imprimis religionis suae eligendiquc voivode liber-
tate. Privilege du 6 Avril 1690).
Le 21 Aout, la chancellerie imperiale proclama les privileges
qui formaient la base de I'autonomie religieuse et politique des
Serbes du Banat et des autres regions. {Volumus ut sub directione
et dispositione proprii magistratiis eadem gens Rasciana perseverare
et antiquis privilegiis ejusqtie consuetudinibus impertubate frui
(1) L'Eglise roumaine, cependant, dependait du Patriarcat de Constantinople
et comprenait la Moldavie, la Valachie et la Hongrie du Nord-Est.
330 DOCUMENT 264
valeat. Privilege du 20 Aout 1691. Vt gens rasciana solummodo
nostrae caesarae regiaeque Maiestatis subiecta, ab omni alia depen-
dentia vero^ tarn comitatuum, quant dommorum terrestrtum ex-
empta maneat. Privilege du 31 Mai 1694).
Apres la Paix de Passarovitz, en 17 18, lorsque I'Autriche cut
decide d'etendre son expansion dans les Balkans, la germanisation
du Banat commenga; en meme temps, il fut permis aux Roumains
de Moldavie et de Valachie de venir s'y etablir ; cependant, le Banat
conserva quand meme son caractere serbe. (V. la nomenclature des
localites sur la carte topographique editee sur I'ordre d'Eugenc de
Savoie en 1723-1725).
Le Gouvernement austro-hongrois reconnut a deux reprises Ic
caractere serbe de la Hongrie meridionale. En 1790, la Diete
(Sabor) serbe de Temichvar, et en 1848, la Diete (Sabor) serbe de
Karlovtzi adopterent une proposition de creation de la Voivodine
serbe comprenant la Syrmie, la Batchka, le Banat et la Baranya,
et les Habsbourg adhererent a la resolution de la Diete. Le "VoT-
vode" Chouplikatz fut confirme le 3 Decembre 1848 et le 6 No-
vembre 1849 Kraso fut adjoint a la "Voivodine" serbe. (V. en an-
nexe la carte de la Voivodine serbe de 1853). Mais a la fin
de I'annee i860, la Voivodine fut supprimee et en 1867 elle fut in-
corporee a la Hongrie. A partir de cette epoque les Hongrois
commencerent la magyarisation du Banat et des autres provinces
serbes.
Les Roumains Sont des Nouveaux Venus
L'histoire ne mentionne absolument pas les Roumains dans cette
partie du Banat ou les Serbes ont developpe une activite politique
et civilisatrice si grande. Les Roumains ne descendirent pas dans
la grande plaine du Banat avant le XVIIP Siecle, en meme temps
que les colons allemands et les magyars. Quant aux Roumains or-
thodoxes de Transylvanie et du Banat oriental, ils se trouvaient
sous la juridiction de I'archeveche serbe de Karlovtzi depuis le com-
mencement du XVIIP siecle jusqu'en 1864. En 1864, un accord
fut conclu entre les Roumains et la cour de Vienne, suivant les termes
DOCUMENT 264 331
duquel I'^lise roumaine se separalt de Pfiglise serbe. (Accord
conclu en dehors du Patriarche serbe et sans qu'il en ait ete averti
ni son concours sollicite). Sur trois nouveaux dioceses, les Rou-
mains n'en obtinrent qu'un seul, a Karansebech dans le Banat orien-
tal, cependant que les Serbes conservaient leurs eveches a Temich-
var et a Verchatz, ce qui demontre encore que, tout en voulant re-
fouler les Serbes, le Gouvernement austro-hongrois ne pouvait leur
contester le bas-Banat.
Les Populations Serbe et Roumaine
D'apres le recensement general de la population en 19 10, dans
la "joupania" de Torontal, avec Pancevo, il y a :
199.750 Serbes
et 86.937 Roumains;
et dans la "joupania" de Tamis avec Temichvar
69.905 Serbes
et 169.030 Roumains;
et de plus, il y a dans ces deux "joupanias" (Comitats), c'est-a-dire
dans le Banat occidental et central, environ 41.600 autres Slaves
(Croates, Slovaques, Ruthenes et autres que les statistiques hon-
groises comprennent dans la rubrique "divers").
Done, dans ces deux Comitats, il y a, au total,
311.255 Slaves
et 255.967 Roumains
ce qui fait 55-288 Slaves de plus que de Roumains.
La frontiere que nous demandons avec la Roumanie ne Con-
corde pas tout a fait avec celle qui separe les Comitats de Tamis et
de Kraso, car celle-ci laisse a la Roumanie une partie du Comitat
de Tamis, comprenant les arrondissements de Buzijas, de Lipova
et I'arrondissement entier de Rekas, a Pexception du village Buko-
vac, ensuite, deux villages (Gertenyes et Sosd) de I'arrondissement
de Deta, — et attribue a notre fitat 13 localites de I'arrondissement
de Jam et 13 autres de celui dc Nova Moldava appartenant au
Comitat de Kraso.
332 DOCUMENT 264
Dans notre partle du Banat ainsi delimitee (v. la carte annexee) ,
il y a, d'apres la statistique hongroise de 1910:
316.286 Slaves (y comprls ceux que la
statistique hongroise classe dans
la rubrique "divers").
tandis qu'il n'y a que:
212.396 Roumains
c'est-a-dire 103.890 Roumains de moins que de Slaves.
Malgre tous les efforts du Gouvernement autrichien d'abord,
du Gouvernement hongrois ensuite, qui ont use de tous les procedes
permis ou interdlts pour affaiblir le caractere serbe du Banat en le
peuplant d'AIIemands, de Magyars et de Roumains, le caractere
principalement serbe de la partie du Banat revendiquee par notre
£tat a ete conserve, et le nombre des Serbes y est plus eleve que
celui de toute autre nationalite. En effet, dans cette partie du Banat,
il y a 194.876 Magyars et 309.889 Allemands, sur une population
totale de 1.042.058 habitants.
Nous ne prenons pas en ligne de compte les Allemands colo-
nises, car ils n'ont de contact en aucun point avec les terrltoires
allemands et I'on ne peut reconnaitre aucun droit a une existence
independante ou a I'union avec I'Allemagae, aux Allemands qui ont
ete etablis contre la volonte de la population habitant ces regions et
dans I'unique but de mettre obstacle au developpement national,
c'est-a-dire a I'union des Serbes Indigenes avec ceux du Royaume
de Serbie.
De plus, le caractere serbe de cette partie du Banat peut etre
juge egalement par ce fait que les Serbes dans le Banat occidental et
central, possedent onze fois plus de terres que les Roumains. En-
suite, cette partie du Banat doit egalement etre consideree comme
region serbe du fait que le mouvement intellectuel s'y trouve aux
mains des Serbes, et que les Serbes originaires de ces regions ont
fonde et developpe la litterature serbe et donne a leur nation un
tres grand nombre d'hommes de lettres et de savants celebres.
Comme nous I'avons deja dit, les Allemands n'entrent pas en
DOCUMENT 264 333
ligne de compte dans la question de delimitation des differentes na-
tionalites. lis sont trop elolgnes de leurs territoires, ne sont pas
etablis sur un territoire continu et n'ont aucun contact avec I'AUe-
magne. Quant aux Serbes et aux Roumains qui touchent leurs terri-
toires natlonaux, lis doivent etre delimites. Les Serbes sont en con-
tact au Sud et a I'Ouest avec leurs co-nationaux, les Roumains le
sont avec les leurs a I'Est.
C'est par consequent du cote de I'Est que la delimitation entre
Serbes et Roumains devra se faire. Celle entre Serbes et Hongrois
se fera au Nord.
II peut etre procede facilement et equitablement a la delimitation
entre les Serbes et les Hongrois. Dans la partie yougo-slave du
Banat, il y a 194.876 Magyars, dont un grand nombre de fonc-
tionnaires, employes et gens de service, avec leurs families. Le
Gouvemement hongrois a toujours nomme intentionnellement aux
postes de fonctionnaires, d'employes et de gargons de bureau, des
Magyars, dans un but de propagande et de controle sur les popula-
tions appartenant a d'autres nationalites. Tous les fonctionnaires
et employes des chemins de fer, du service des routes, des canaux,
et tous les gendarmes des differents services, sont Magyars. Leur
nombre atteint souvent 20% du chiffre total de la population. Si
Ton deduit done ce nombre, il reste dans notre Banat au plus
160.000 habitants Magyars etablis a demeure qui ne se trouvent
nulle part en masse compactes ni en contact avec le territoire mag-
yar national.
II faut de plus, faire remarquer que la statlstique hongroise offi-
cielle est notoirement peu sure, surtout au detriment des Slaves.
Nous en possedons une preuve dans la statlstique des Serbes ortho-
doxes redlgee par le Patrlarcat serbe de Karlovtzl, suivant laquelle
le nombre des Serbes dans les Comitats de Torontal et de Tamis
s'eleve a 322.378 contre 269.651 seulement indiques a la statlstique
hongroise.
Le Banat, la Batchka et la Syrmie formalent la VoiVodlne serbe
de 1849 ^ i860. La population etait en tres grande majorite serbe.
334 DOCUMENT 264
Cralgnant cet element qui etait en contact Immedlat avec la Serble,
les Autrichiens et les Hongrois amenaient et colonisaient des ele-
ments etrangers. Malgre tout, cependant, les Serbes demeurerent
dans le Banat occidental et central, tres superieurs aux Roumains,
tant au point de vue numerique et materiel qu'a celui de la culture
en general.
£tant donne tout ce qui vient d'etre brievement expose, personne
ne peut posseder de droit national plus grand a la possession de
cette province que les Serbes. En plus, le Banat occidental et cen-
tral ne peut etre attribue a personne d'autre, car par une telle attri-
bution on enleverait au Royaume des Serbes, Creates et Slovenes des
territoires peuples en majorite de Serbes, et on ne garantirait pas la
Capitale, Belgrade, qui continuerait a se trouver a proximite de la
frontiere d'un £tat etranger; de plus, la vallee de la Morava serait
decouverte et exposee a une invasion etrangere, car toutes les incur-
sions enemies du passe ont emprunte cette vallee pour penetrer en
Serbie. En outre, le Banat est I'unique grenler de la Serbie et toute
sa vie economique et commerciale gravite vers Belgrade.
Pour toutes ces raisons, notre £ltat demande que le Banat occi-
dental et central soit reconnu comme pays serbe. II est utile de f aire
remarquer et prendre en consideration le fait que dans la partie
roumaine du Banat oriental et dans les autres territoires de la Hon-
grie qui sont revendiques par la Roumanie, il reste (d'apres les sta-
tistiques hongroises) environ 70.000 Slaves.
Frontieres
ENTRE LE
ROYAUME DES SeRBES, CrOATES ET SLOVENES
ET LE
RoyAUME DE Roumanie .
Les frontieres entre le Royaume des Serbes, Croates et Slovenes
et le Royaume de Roumanie devront etre telles qu'elles remplis-
sent au point de vue strategique au moins les trols conditions sui-
vantcs:
DOCUMENT 264 335
1° Que la securite du bas-Banat soit completement assuree.
2° Que Belgrade, Capitale du Royaurae, soit a I'abri de toutes
les eventualites; et,
3° Que la vallee de la Morava soit assuree centre toutes opera-
tions militaires par surprise.
Une defense eiEcace du Banat ne peut etre assuree que par la
ligne de defense que nous proposons comme frontlere. A I'Ouest de
cette ligne, il n'existe aucune position strategique d'une certaine
valeur pour la defense de notre pays. Bien plus, cette ligne que nous
prenons comme frontiere, est elle-meme dominee par toutes les posi-
tions se trouvant a I'Est et elle ne remplit que dans une mesure
tres restreinte les veritables conditions d'une bonne frontiere.
Quant aux conditions que devrait remplir la nouvelle frontiere
au point de vue de la securite de la defense de Belgrade, il nous
semble qu'elles sont claires par elles-memes et ne demandent pas de
commentaires particuliers. La Capitale de n'importe quel fitat
represente a tous les points de vue son bien le plus precieux et
pour cette raison elle doit etre garantie contre toutes les eventuali-
tes. L'une des conditions les plus importantes de cette securite est
que la Capitale soit aussi loin que possible de la frontiere.
Enfin, une importance de premier ordre doit etre attachee a la
demande concernant la protection de la vallee de la Morava.
La vallee de la Morava a toujours etc le but des operations
militaires les plus importantes, dirigees contre la Serbie. Aujour-
d'hui encore elle presente la meme importance strategique que celle
qu'elle possede depuis des siecles. C'est incontestablement une route
naturelle de la plus grande importance pour les operations et les
communications et, par consequent, sa securite doit etre garantie.
Les defenses de la vallee de la Morava se trouvent sur les posi-
tions de la rive gauche de la riviere Poretchka. Cette ligne se pro-
longe au Nord, par dela le Danube, et emprunte la chaine des mon-
tagnes de Veterani-Svinika-Rechidjbanya-Lipova-sur-Moris.
Pour satisfaire a ces trois conditions strategiques, la nouvelle
frontiere devrait etre reportee beaucoup plus a I'Est de la ligne que
336 DOCUMENT 264
nous proposons. Elle devralt, au moins, passer par la ligne Kazan-
Sterbetz-Svinjika-Kumlea-cote 1458-Rechidjbanya-Lipova-sur-Mor-
is, parce que c'est la ligne de defense strategique naturelle sur
laquelle pourrait etre organisee la defense de notre fitat.
Cette ligne domine toutes les positions a I'Ouest et, par conse-
quent, celui qui est maitre de cette ligne, sera egalement maitre, au
point de vue geographico-strategique, de toutes les autres positions
dans la direction de la Theiss et du Danube ; il serait done nature!
que la nouvelle frontiere empruntat ce trace.
Cependant, nous avons trace notre frontiere beaucoup plus a
rOuest et en suivant une ligne moins avantageuse, par suite de con-
siderations purement politiques et pour eviter a tout prix tout ce
qui pourrait troubler Tamitie seculaire qui nous unit a nos voisins
roumains.
Ce qui vient d'etre expose demontre clairement que la ligne que
nous proposons comme frontiere de ce cote est necessaire et justi-
fiee.
Frontiere Avec la Roumanie
(i : 1. 000. 000)
La frontiere part du point oij se rencontrent les trois frontieres
serbo-bulgaro-roumaine, entre le village Aktchar et I'embouchure de
la riviere Skomlia, et remonte le Danube jusqu'en face du village
Brufica (sur la rive gauche du Danube) ; de ce point elle se dirige
au Nord en suivant la crete jusqu'a la cote 736, traverse la riviere
Nera a I'Ouest de la cote 596, puis en passant par le village lUadia
(qui reste du cote roumain), elle continue au Nord en passant par
le village Goruja (du cote serbe), passe entre les villages Dognaes-
ka (du cote serbe) et Izgar (du cote roumain) ; traverse la riviere
Berzava, a TEst de la localite Nim Bagsan. De ce point elle oblique
au Nord-Ouest vers le village Izgar (du cote serbe), puis vers
Bazias, Jhittyas, Teraes-Bekas, Roman Bencsek (qui restent du
cote roumain), ensuite, passe par Sracsany et Segenthan (qui restent
du cote serbe), puis elle continue au Nord en descendant vers la
riviere Maros entre la ville d'Arad et le village Zadorlac.
DOCUMENT 264
337
SEGUEOINt
%
O
^
Cetirtiti'aC!^,83S0ff
SO 10 O 90
.1' ' ■ t ■■ ' 1
<*o
60
eo
fooKm
—I
^/v/ff/ercs anciennes
m " propose cs
tM-OCHItOCCO
338
DOCUMENT 265
Population Statistics of Banat by American Experts
BANAT * (With the t-i-o-'s included).
Magyar % German % Roumanian % Serbo-Croat %
Torontal 128,405 20.8 165,779 26.9 86,937 14.1 203,953 32.2
Temes 79,960 16. 165,883 33.1 169,030 33.7 70,255 14.
Krasso 33,787 72 55,883 11.9 336,082 72.1 14,993 3.2
Total 242,152 15.3 387,545 24.5 592,049 37.4 289,201 18.3
(Total population: Torontal: 615,151 1
Temes : 500,835 I Total 1,582,133.)
Krasso : 466,147
IV****^^****^'
B«^ 0«.Ht«i6
a. Figures of American Experts. See map annexed and Diary, p. 101,
fc
t
be
^
(4
o
^ OS
»
«
^
3
M
tc
^
s
•o
V
PQ
p^
c
5
339
DOCUMENT 266
Letter from Mr. Grew*
AMERICAN COMMISSION TO NEGOTIATE PEACE
January 29, 1919.
The Honorable David Hunter Miller,
4 Place de la Concorde,
Paris, France.
Sir:
By direction of the Commissioners, I have the honor to inform
you of the appointment of yourself together with Mr. Lansing, to
represent the American Commission to Negotiate Peace as a mem-
ber of the Commission on the Responsibility for the War and its
Authorization.
For your information I take pleasure in attaching a copy** of the
resolution providing for the above mentioned Commission, which
was adopted at the meeting of the Peace Conference on January
25, 1919.
It is desired that you arrange with Mr. Lansing to have one
private secretary in attendance at such sessions of the Commission
on the Responsibility for the War and its Authorization, as may
be held, and that he prepare for me as Secretary-General of the
American Commission the minutes of the proceedings for the offi-
cial files and records of the Commission.
It would be a convenience If these reports could be furnished
In triplicate.
I am, sir.
Your obedient servant,
J. C. Grew,
I end. Secretary-General.
a. See Diary, p. 102. My reply is Document 267; but see Diary, p. 104 and
Documents 283 and 284.
b. Not reproduced. It may be found in Document 230.
340
DOCUMENT 267
Letter to Mr. Gretv*"
31 January, 19 19.
Sir:
I have the honor to acknowledge receipt of your letter of Janu-
ary 29th last, informing me of my appointment together with Mr.
Lansing, to represent the American Commission to Negotiate Peace
as a member of the Commission on the Responsibility for the War
and its Authorization.
I have taken due note of the copy of the resolution adopted at
the meeting of the Peace Conference on January 25, 19 19, provid-
ing for the above-mentioned Commission, which you were good
enough to enclose with your letter.
I have also observed that it is desired that I arrange with Mr.
Lansing to have one private secretary in attendance at such sessions
of the Commission on the Responsibility for the War and its Au-
thorization as may be held, and that there be prepared for you as
Secretary General of the American Commission, for the official files
and records of the Commission, the minutes of the proceedings in
triplicate.
I am. Sir, your obedient servant,
David Hunter Miller,
Technical Advisor.
The Honorable Joseph C. Grew,
Secretary General, American Commission to Negotiate Peace,
Hotel de Crillon, Paris.
a. See Diary, p. 102. This is a reply to Document 266. See note to that Document.
341'
DOCUMENT 268
Notes of a Conversation Between President Wilson, Signor
Orlando, Colonel House and Signor Scialoja,
held on January 30, 1919"
The President asked for Slgnor Orlando's views on the covenant
which had been submitted to him the day before.
Signor Orlando replied that he was in the main in entire agree-
ment with President Wilson, but he had a few technical suggestions
to make. He drew especial attention to Article I of the supple-
mentary agreements which, he thought, was open to misconstruction.
If the Trentino and Trieste were to be handed over to a mandatory
by the League of Nations, it would seriously compromise Italy's
dignity.
The President pointed out that this was far from his mind. In
fact, he intended that this question should be settled before the
creation of the League of Nations. In other words, the Trentino
and Trieste had, as far as he was concerned, already been ceded to
Italy. He said that the reason why he had drafted the paragraph
in this form, was because Yugo-Slavia might be divided into one,
two or three States. He was prepared to admit two Yugo-Slav
States to the League of Nations but, if it were' found advisable to
separate them into three parts, he would prefer to place the more
unformed and less developed of the new States under the manda-
tory of the League of Nations.
Signor Orlando thanked the President warmly for this explana-
tion but he nevertheless recommended that the language of Article I
be altered.
This, the President promised to do.
Signor Orlando drew attention to another reason for not post-
poning too many of the settlements until the creation of the League
of Nations. He said the Czecho-Slovaks and the Poles might de-
a. See Memorandum Regarding the Covenant, Vol. I, p. 343.
342 DOCUMENT 268
dine to compose their differences in Silesia if hope were held out
that the controversy could later be referred to the League of Nations.
The President then explained why he proposed that the General
Court should be composed of the resident diplomats in one of the
smaller capitals rather than of special delegates: if special delegates
were appointed, there would surely be jealousy between them and
the resident diplomats. In a small capital, a resident diplomat would
have leisure to devote a portion of his time to the work of the
League of Nations. This might not be the case in a large capital.
Signer Orlando said that these remarks had convinced him abso-
lutely. In fact, he added that the experience of the last few days
had satisfied him that a large. capital was not a good place in which
to hold a Peace Conference.
Signor Oflando did not find the idea of giving three votes the
power of veto upon any action of the Council practical. To illus-
trate his meaning he gave the case of an internationalized railway:
supposing that a State, through which this railway passed, imposed
exorbitant tariffs and refused to alter them at the request of its
neighbours, all action could be paralyzed if three adverse votes
prevented the Council from reaching a decision.
The President admitted that this might take place but he said
that, as there could be no resort to arms before a delay of one year,
public opinion would have time to reflect upon the gravity of the
step.
Signor Orlando then hastily went over the remaining part of the
covenant and said that his comments were very trifling, except on the
subject of the abolition of conscription. He thought that this would
work hardship upon the poorer Powers. In other words, rich
Powers could afford to pay their standing army well. This would
place the poorer Powers at a disadvantage. He did not think the
voluntary system would work in Italy. They were already having
trouble with their paid carabinieri which demanded higher wages.
He suggested that a minimum conscription be allowed to be mod-
DOCUMENT 268 343
elled out after the Swiss system. He also thought that the presence
of a large body of trained officers in a country might militate against
the President's system as, with trained officers, it would be easy to
drill new men rapidly.
The President thought that if the number of officers were limited
to the number of troops, they could legitimately be called upon to
command, this objection would disappear.
Signor Orlando asked what would be the result if all the Allied
Powers abolished conscription and the German army remained intact.
The President replied that Germany would be forced to disarm
before she could be admitted as a member of the League.
Signor Orlando promised to send an English translation of the
Italian text to the President as soon as possible.
344
DOCUMENT 269
■ r^-si-i^ Telegram Received"
The Hague
Dated Jan. 31, 1919.
Rec'd3ist, 8:55 P. M.
American Mission,
Paris.
Dutch Press, January 28th, reports that instructions have re-
cently been given to Dutch Legation at Paris to Mr. Loudon to
communicate the Peace Conference and to President Wilson the
report of the Commission for preparation for third Hague confer-
ence concerning the principles which might serve as basis for League
of Nations.
Garrett.
a. See Diary, p. 102.
345
DOCUMENT 270
Memorandum"
From: David Hunter Miller, Technical Advisor.
To: The Honorable Joseph C. Grew, Secretary.
Subject: Mr. Joseph Baily Brown.
Mr. Joseph Baily Brown, Special Assistant in the Department
of State, has been assigned to this office by the Department of State
at the request of the American Commission to Negotiate Peace.
Mr. Brown's appointment as Special Assistant carried with it
a salary of $200.00 per month and the usual State Department al-
lowance for subsistence of $4.00 per day.
Mr. Brown is not living and cannot live at the Crillon but lives
at another hotel.
It would appear that his allowance for subsistence might prop-
erly be the same as that of others attached to the Commission;
namely, at the rate of Fes. 40.00 per day, and I recommend such
allowance.
David Hunter Miller,
Technical Advisor,
American Commission to
Negotiate Peace.
31 January, 19 19.
a. See Diary, p. 102.
346
DOCUMENT 271
Draft'
As the basis for such a reduction of armaments, all the Powers
subscribing to the Treaty of Peace of which this Covenant consti-
tutes a part hereby agree to abolish conscription and all other forms
of compulsory military service, and also agree that the forces of
defense and of international action to be maintained by them in
time of peace shall consist of men obtained by voluntary enlistment
only, whose numbers and methods of training shall be fixed, after
expert inquiry, by the agreements with regard to the reduction of
armaments referred to in the last preceding paragraph; Provided
that in the event that a Signatory Power be unable at any time to
obtain by voluntary enlistments the full number of men required to
make up the force fixed for that Power in accordance with the
agreements referred to in the last paragraph^ conscription may be
resorted to by that Power to the extent necessary to make up such
deficiency in voluntary enlistments.
a. Author, General Tasker H. Bliss. See Diary, p. 102.
347
DOCUMENT 272
Revision of Mr. Hurst"
COVENANT
Preamble
In order to secure international peace and security by the pre-
scription of open, just and honorable relations between nations, by
the firm establishment of the understandings of international law
as the actual rule of conduct between governments, and by the main-
tenance of justice and a scrupulous respect for all treaty obligations
in the dealings of organized peoples with one another, and in order
to promote international cooperation, the Powers signatory to this
covenant and agreement adopt this constitution of the League of
Nations.
Article /.
The action of the H. C. P. under the terms of this Covenant
shall be effected through the instrumentality of meetings of Dele-
gates representing all the H.C.P., through meetings at more fre-
quent intervals of an Executive Council representing the States
more immediately concerned in the matters under discussion, and
through a permanent international Secretariat to be established at
the capital of the League.
Article IL
Meetings of the Body of Delegates shall be held from time to
time as occasion may require for the purpose of dealing with mat-
ters within the jurisdiction of the League.
Meetings of the Body of Delegates shall be held at the Capital
of the League or at such other place as may be found convenient
and shall consist of not more than two representatives of each of
the H.C.P.
All matters of procedure at meetings of the Body of Delegates,
a. I do not have all of this revision. See Diary, p. 103, and Memorandum RegJ^rd-
ing the Covenant, pp. 344-346, and notes.
348 DOCUMENT 272
including the appointment of committees to investigate particular
matters, shall be regulated by the Body of Delegates itself and may
be decided by a majority of the representatives present at a meet-
ing.
Article III.
The representatives of the States members of the League di-
rectly affected by any matter within the sphere of action of the
League will meet as an Executive Council from time to time as occa-
sion may require, and in any case at intervals of not more than
one year.
The United States of America, Great Britain, Fi-ance, Italy
and Japan shall be deemed to be directly affected in all matters
within the sphere of action of the League. Invitations will be sent
to any Power whose interests are directly affected, and no decision
taken at any such meeting will be binding on a State which was not
invited to be represented at the meeting.
Such meetings will be held at whatever place may be decided on,
or failing any such decision at the capital of the League, and any
matter affecting the interests of the League or relating to matters
within its sphere of action or likely to affect the peace of the world
may be dealt with.
Article IV.
The permanent Secretariat of the League of Nations shall be
established at , which shall constitute the capi-
tal of the League. The Secretariat shall comprise such secretaries
and staff as may be required under the general direction and control
of a Chancellor of the League by whom they shall be appointed.
The Chancellor shall act as Secretary at all meetings of the
Body of Delegates or at Council meetings.
The expenses of the Secretariat shall be borne by the States
members of the League in accordance with the distribution among
members of the Postal Union of the expenses of the International
Postal Union.
DOCUMENT 272 349
Article V.
(Identical with Article V of Document 274.)
Article VI.
Admission to the League of States who are not signatories of
this Covenant requires the assent of the other H.C.P.
(alternatively) the assent of not less than two-thirds of a meeting
of the Body of Delegates.
Article VIL ; ' ■
(Identical with Article VII of Document 274.)
Article Fill.
(Identical with Article VIII of Document 274.)
Article IX.^
The H.C.P. agree that should disputes arise between them which
cannot be adjusted by the ordinary processes of diplomacy, they will
in no case resort to armed force without previously submitting the
questions and matters involved either to arbitration or to enquiry
by the Executive Council or until three months after the award by
the arbitrators or a recommendation by the Executive Council; and
that they will not even then resort to armed force as against a mem-
ber of the League who complies with the award of the arbitrators
or the recommendation of the Executive Council.
Article X.
(Identical with Article XI of Document 274.) ^^i
Article XL '
(Identical with Article XII of Document 274.)
Article XII}
If there should arise between States members of the League
any dispute likely to lead to a rupture, which is not submitted to
arbitration as above, the H.C.P. agree that they will refer the mat-
a. This became Article X in Document 274.
b. This became Article XIII in Document 274.
350 DOCUMENT 272
ter to the Executive Council, and either party to the dispute may
give notice to the Chancellor of the existence of the dispute, and the
Chancellor will make all necessary arrangements for a full investi-
gation and consideration thereof. For this purpose the parties
agree to communicate to the Chancellor statements of their case
with all the relevant facts and papers.
Where the efforts of the Council lead to the settlement of the
dispute, a statement shall be prepared for publication indicating
the nature of the dispute and the terms of settlement, together with
such explanations as may be appropriate. If the dispute has not
been settled, a report by the Council shall be published. This re-
port shall set forth, with all necessary facts and explanations, the
recommendations which the Council think just and proper for the
settlement of the dispute. If the report is unanimously agreed to
by the members of the Council, other than the parties to the dispute,
the H.C.P. agree that none of them will go to war with any party
which complies with its recommendations. If no such unanimous
report can be made, it shall be the duty of the majority to issue a
statement indicating what they believe to be the facts and contain-
ing the recommendations which they consider to be just and proper.
The Executive Council may In any case under this Article refer
the dispute to the Body of Delegates. This dispute shall be so
referred at the request of either party to the dispute. In any case
referred to the Body of Delegates all the provisions of this Article
relating to the action and powers of the Executive Council shall
apply to the action and powers of the Body of Delegates.
Article XIIL
(Identical with Article XIV of Document 274.)
Article XIV. ^
In the event of disputes between one State member of the League
a. This became Article XV in Document 274. I do not have the last para-
graph of this Article as written by Mr. Hurst,
DOCUMENT 272 351
and another State which is not a member of the League, or between
States not members of the League, the H.C.P. agree that the. State
or States not members of the League shall be invited to become
members of the League ad hoc, and the above provisions shall be
applied with such modifications as may be deemed necessary by the
League.
Upon such invitation being given the Executive Council shall
immediately institute an inquiry into the circumstances and merits
of the dispute involved and recommend such action as may seem
best and most effectual in the circumstances disclosed.
In the event of the Power so invited refusing to become ad hoc
a member of the League, and taking any action which in the case
of a State member of the League would constitute a breach of Ar-
ticle IX, the provisions of Article XIII shall be applicable as against
the State taking such hostile action.
Article Xr.
(Identical with Article XXII of Document 274.)
352
DOCUMENT 273
Draft of Preamble, etc^
(i) Resolved to continue in lasting peace with each other, they
enter into obligations intended to preserve the peace of the world.
(ii) They will not only respect the territorial integrity and
political independence of all States members of the League, but will
preserve them as against external aggression.
(iii) They recognize that certain Colonies and territories are
inhabited by peoples not yet able to stand by themselves under the
conditions of the modern world, and they will apply to these terri-
tories the principle that the well-being and development of such
peoples form a sacred trust of civilization, and that securities for
the performance of this trust should be embodied in the Constitution
of the League.
(iv) They entrust to the League the general supervision of the
trade in arms and ammunition with the countries in which the con-
trol of this traffic is necessary in the common interest.
(v) They will endeavor to secure and maintain freedom of
transit and just treatment for the commerce of all States members
of the League.
(vi) They appoint commissions to study and report to the
League on economic, sanitary, and other similar problems of inter-
national concern, and they authorize the League to recommend such
action as these reports may show to be necessary.
(vii) They appoint a commission to study conditions of in-
dustry and labour in their international aspects, and to make recom-
mendation thereon, including the extension and improvement of
existing conventions.
(viii) Stipulations for securing the above measures are em-
bodied in subsequent provisions.
a. Author, D. H. M. See Diary, p. 103, and Memorandum Regarding the Cove-
nant, Vol. I, pp. 344-346.
DOCUMENT 273 353
Article I.
There shall be a Body of Delegates of the League of Nations
which shall be composed of one representative at the capital of the
League, of each of the Contracting Powers.
The Body of Delegates shall have the powers specifically granted
to it under this Covenant.
The Body of Delegates shall determine its own procedure and
the place and times of its meetings, and the number of Powers rep-
resented which shall constitute a quorum.
In all matters under this Article the Body of Delegates may act
by majority vote.
Insert paragraph two of Article 11."
Committees appointed by the Body of Delegates may consist in
whole or in part of persons not members of the Body of Delegates.
An Ambassador or Minister of a Contracting Power shall be
qualified to act as the representative of that Power in the Body of
Delegates.
a. of Document 239, I think.
354
DOCUMENT 274
COVENANT*
PREAMBLE
In order to secure international peace and security by the acceptance
of obligations not to resort to the use of armed force, by the prescription
of open, just and honorable relations between nations, by the firm establish-
ment of the understandings of international law as the actual rule of conduct
among governments, and by the maintenance of justice and a scrupulous
respect for all treaty obligations in the dealings of organized peoples with
one another, and in order to promote international cooperation, the Powers
signatory to this Covenant adopt this constitution of the League of Nations.
ARTICLE I.
The action of the High Contracting Parties under the terms of this Cove-
nant shall be effected through the instrumentality of meetings of Delegates
representing the H. C. P., of meetings at more frequent intervals of an Executive
Council representing the States more immediately concerned in the matters
under discussion, and of a permanent international Secretariat to be established
at the capital of the League.
ARTICLE II.
Meetings of the Body of Delegates shall be held from time to time as
occasion may require for the purpose of dealing with matters within the
sphere of action of the League.
Meetings of the Body of Delegates shall be held at the capital of the
League or at such other place as may be found convenient and shall consist
of not more than two representatives of each of the H. C P.
An ambassador or minister of one of the H. C, P. shall be competent
to act as its representative.
All matters of procedure at meetings of the Body of Delegates, including
the appointment of committees to investigate particular matters, shall he
regulated by the Body of Delegates and may be decided by a majority
of those present at the meeting.
ARTICLE III.
The representatives of the States members of the League directly affected
by matters within the sphere of action of the League will meet as an Execu-
tive Council from time to time as occasion may require.
The United States of America, Great Britain, France, Italy and Japan
shall be deemed to be directly affected by all matters within the sphere of action
of the League. Invitations will be sent to any Power whose interests are
directly affected, and no decision taken at any meeting will be binding on a
State which was not invited to be represented at the meeting.
Such meetings will be held at whatever place may be decided on, or failing
any such decision at the capital of the League, and any matter affecting the
interests of the League or relating to matters within its sphere of action or
likely to affect the peace of the world may be dealt with.
ARTICLE IV.
The permanent Secretariat of the League shall be established at ,
which shall constitute the capital of the League. The Secretariat shall com-
prise such secretaries and staff as may be required, under the general direc-
tion and control of a Chancellor of the League by whom they shall be
appointed.
The Chancellor shall act as Secretary at all meetings of the Body of
Delegates or of the Executive Council.
The expenses of the Secretariat shall be borne by the States members
of the League in accordance with the distribution among members of the
Postal Union of the expenses of the International Postal Union.
a. This is the so-called Hurst-MIller draft of the Covenant. See Diary, p, 103, and
Memoranamn Regarding tie Covenant, Vol. I, pp. 344-840.
DOCUMENT 274 355
ARTICLE V.
Representatives of the H. C. P. and officials of the League when en-
gaged on the business of the League shall enjoy diplomatic privileges and
immunities, and the buildings occupied by the League or its officials or by
representatives attending its meetings shall enjoy the benefits of extraterri-
toriality.
ARTICLE VI.
Admission to the League of States who are not signatories of this
Covenant requires the assent of not less than two-thirds of the Body of
Delegates.
No State shall be admitted to the League except on condition that its
military and naval forces and armaments shall conform to standards pre-
scribed by the League in respect of it from time to time.
ARTICLE VII.
The H. C. P. undertake to respect and preserve as against external
aggression the territorial integrity and existing political independence of
all States members of the League.
ARTICLE VIII.
The H. C. P. recognize the principle that the maintenance of peace will
require the reduction of national armaments to the lowest point consistent
with domestic safety and the enforcement by common action of international
obligations ; and the Executive Council shall formulate plans for effecting such
reduction. It shall also inquire into the feasibility of abolishing compul-
sory military service and the substitution therefor of forces enrolled upon a vol-
untary basis and into the military and naval equipment which it is reasonable
to maintain.
The H. C. P. further agree that there shall be full and frank publicity
as to all national armaments and military or naval programmes.
ARTICLE IX.
Any war or threat of war, whether immediately affecting any of the
H. C. P. or not, is hereby declared a matter of concern to the League, and
the H. C. P. reserve the right to take any action that may be deemed wise and
effectual to safeguard the peace of nations.
It is hereby also declared and agreed to be the friendly right of each of the
H. C. P. to draw the attention of the Body of Delegates or of the Execu-
tive Council to any circumstances anywhere which threaten to disturb inter-
national peace or the good understanding between nations upon which peace
depends.
ARTICLE X.
The H. C. P. agree that should disputes arise between them which
cannot be adjusted by the ordinary processes of diplomacy, they will in no
case resort to armed force without previously submitting the questions and
matters involved either to arbitration or to inquiry by the Executive Council
and until three months after the award by the arbitrators or a recommenda-
tion by the Executive Council; and that they will not even then resort to
armed force as against a member of the League which complies with the
award of the arbitrators or the recommendation of the Executive Council.
ARTICLE XI.
The H. C. P. agree that whenever any dispute or difficulty shall arise
between them which they recognize to be suitable for submission to arbitra-
tion and which cannot be satisfactorily settled by diplomacy, they will submit
the whole subject matter to arbitration and will carry out in full good faith
any award or decision that may be rendered.
ARTICLE XII.
The Executive Council will formulate plans for the establishment of a
Permanent Court of International Justice and this Court will be competent to
hear and determine any matter which the parties recognize as suitable for
submission to it for arbitration under the foregoing Article.
2
356
DOCUMENT 274
ARTICLE XIII.
If there should arise between States members of the League any dispute
likely to lead to a rupture, which is not submitted to arbitration as above,
the H. C. P. agree that they will refer the matter to the Executive Council;
either party to the dispute may give notice to the Chancellor of the existence
of the dispute, and the Chancellor will make all necessary arrangements for a
full investigation and consideration thereof. For this purpose the parties agree
to communicate to the Chancellor statements of their case with all the relevant
facts and papers.
Where the efforts of the Council lead to the settlement of the dispute
a statement shall be prepared for publication indicating the nature of the
dispute and the terms of settlement, together with such explanations as may
be appropriate. If the dispute has not been settled, a report by the Council
shall be published, setting forth with all necessary facts and explanations
the recommendations which the Council think just and proper for the settlement
of the dispute. If the report is unanimously agreed to by the members of
the Council, other than the parties to the dispute, the H. C. P. agree that none
of them will go to war with any party which complies with its recommendations.
If no such unanimous report can be made, it shall be the duty of the majority
to issue a statement indicating what they believe to be the facts and con-
taining the recommendations which they consider to be just and proper.
The Executive Council may in any case under this Article refer the dis-
pute to the Body of Delegates. The dispute shall be so referred at the request
of either party to the dispute. In any case referred to the Body of Delegates
all the provisions of this Article relating to the action and powers of the Execu-
tive Council shall apply to the action and powers of the Body of Delegates.
ARTICLE XIV.
Should any of the H. C P. be found by the League to have broken or
disregarded its covenants under Article X, it shall thereby ipso facto be
deemed to have committed an act of war against all the other members of the
League, which shall immediately subject it to the severance of all trade or
financial relations, the prohibition of all intercourse between their nationals
and the nationals of the covenant-breaking State, and the prevention, so far
as possible, 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 Executive Council in such a case to recommend
what effective military or naval force the members of the League shall severally
contribute to the armed forces to be used to protect the covenants of the
League.
The H. C. P. agree, further, that they will mutually support one another In
the financial and economic measures which are taken under this Article in order
to minimize the loss and inconvenience resulting from the above measures,
and that they will mutually support one another in resisting any special mea-
sures aimed at one of their number by the covenant-breaking State, and that
they will afford passage through their territory to the forces of any of the H, C.
P. who are co-operating to protect the covenants of the League.
ARTICLE XV.
In the event of disputes between one State member of the League and
another State which is not a member of the League, or between States not mem-
bers of the League, the H. C. P. agree that the State or States not members of
the League shall be invited to become ad hoc members of the League, and upon
acceptance of any such invitation, the above provisions shall be applied with
such modifications as may be deemed necessary by the League.
Upon such invitation being given the Executive Council shall Immediately
institute an inquiry into the circumstances and merits of the dispute and
recommend such action as may seem best and most effectual in the circumstances.
In the event of a Power so invited refusing to become ad hoc a member
of the League, and taking any action against a State member of the League
3
DOCUMENT 274 357
which in the case of a State member of the League vvould constitute a breach
of Article X, the provisions of Article XIV shall be applicable as against the
State taking such action.
If both parties to the dispute when so invited refuse to become ad hoc
members of the League, the Executive Council may take such action and make
such recommendations as will prevent hostilities and will result in the settle-
ment of the dispute.
ARTICLE XVI.
The H. C. P. entrust to the League the general supervision of the trade in
arms and ammunition with the countries in which the control of this traffic
is necessary in the common interest.
ARTICLE XVIL
The H. C. P. agree that in respect of territories which formerly belonged
to the German Empire or to Turkey and which are inhabited by peoples
unable at present to secure for themselves the benefits of a stable admini-
stration, the well being of these peoples constitutes a sacred trust for civili-
zation and imposes upon the States members of the League the obligation to
render help and guidance in the development of the administration. Thej^i
recognize that all policies of administration or economic development should
be based primarily upon the well considered interests of the peoples them-
selves, upon the maintenance of the policy of the open door and of equal
opportunity for all the H. C. P. in respect of the use and development of the
economic resources of the territory. No military or naval forces shall be
formed among the inhabitants of the territories in excess of those required
for purposes of defense and of internal police.
ARTICLE XVIIL
The H. C. P. will work to establish and maintain fair hours and humane
conditions of labor for all those within their several jurisdictions and they
will exert their influence in favor of the adoption and maintenance of a simi-
lar policy and like safeguards wherever their industrial and commercial rela-
tions extend. Also they will appoint Commissions to study conditions of
industry and labor in their international aspects and to make recommenda-
tions thereon, including the extension and improvement of existing conven-
tions.
ARTICLE XIX.
The H. C. P. agree that they will make no law prohibiting or interfering
with the free exercise of religion, and that they will in no way discriminate,
either in law or in fact, against those who practice any particular creed,
religion, or belief whose practices are not inconsistent with public order or
public morals.
ARTICLE XX.
The H. C. P. will agree upon provisions intended to secure and maintain
freedom of transit and just treatment for the commerce of all States members
of the League.
ARTICLE XXI.
The H. C. P. agree that any treaty or International engagement entered
into between States members of the League shall be forthwith registered with
the Chancellor and as soon as possible published by him.
ARTICLE XXII.
The H. C. P. severally agree that the present Covenant is accepted as abro-
gating all obligations inter se which are inconsistent with the terms hereof,
and solemnly engage that they will not hereafter enter into any engagements
inconsistent with the terms hereof.
In case any of the Powers signatory hereto or subsequently admitted to the
League shall, before becoming a party to this Covenant, have undertaken any
obligations which are inconsistent with the terms of this Covenant, it shall
be the duty of such Power to take immediate steps to procure its release from
such obligations.
\ 4
358 .,.. ■,.,:_... ... .
DOCUMENT 275
Memorandum on the Freedom of the Seas^
The proposal to make private property at sea immune from cap-
ture is not new; though the actual form of the proposal and the
qualifications or reservations attached to it have varied from time to
time.
In the Treaty of 1785 between the United States and Prussia it
took conventional form and since then it has been supported by five
American Presidents, by the Institute of International Law, by
Brougham, Palmerston, Cobden, Mill, Maine, Loreburn, and
others. For the purpose of this memorandum I limit myself to two
of the formulae.
In 1904 a joint resolution was adopted by the United States
Congress, which ran as follows: —
"That it is the sense of the Congress of the United States
that it is desirable in the interests of the uniformity of action
by the maritime States in time of war that the President en-
deavour to bring about an understanding among the princi-
pal Maritime Powers with a view to incorporating into the
permanent law of civilised nations the principle of the ex-
emption of all private property at sea not contraband of war
from capture or destruction by belligerents."
In his fourteen points President Wilson takes different ground.
He stipulates for freedom of navigation both in peace and war out-
side territorial waters except where seas may be closed by interna-
tional action.
President Wilson here seems to make free navigation, by
which it is understood he means the immunity of private property
at sea, dependent on international action by an unborn League of
Nations, and he says nothing about contraband of war or the Wash-
a. Author, Sir Graham Bower, See Diary, p. 104. The proposals of this paper
were adopted by the British Maritime Law Committee of the International Law
Association (with one dissent) on January 15th and the paper was sent to Mr.
Lansing on January 23rd from London.
DOCUMENT 275 359
ington Treaty. It is not clear whether he would or would not allow
an unlimited right to a belligerent to supply himself with war ma-
terial purchased from neutrals. In order to appreciate the effect of
these proposals it is necessary to consider maritime war from the
point of view of the stronger sea power and the weaker sea power.
From the date of the Battle of La Hogue in 1692 British supremacy
has been practically unchallenged: there was an interruption during
the War of American Independence. But the interruption was
merely temporary, and it is fair to say that British supremacy at
sea has been unchallenged for over two centuries.
How was that sea power exercised? There are two ways in
which maritime force can be exercised in war.
First, the exhaustion of the enemy by the interception of all
supplies destined to maintain either his people or his armies.
Second, what the French call La guerre de la course that is to
say the attack on merchant shipping.
The first of these has been the British Mode of War for two
centuries. It is and has been the aim of the British Fleet to make
the enemy's coast the British Frontier.
On the other hand the weaker naval power has constantly di-
rected its efforts to commerce destroying. In the great French War
the French captured 10,871 British merchant vessels. The exploits
of the Alabama are well known as are the efforts of commerce de-
stroying of the German submarines in the present war.
But La guerre de la course or commerce destroying did not win
any of these wars, on the other hand the strangle-hold of the Su-
perior Fleet in every case exhausted the enemy, and forced submis-
sion. Is this strangle hold legitimate or not? This is the question.
For no one disputes its efficiency. That raises the further question.
What is war? On this subject there can be no higher authority than
Clausewitz, and I cite his definitions. He says: —
"War therefore is an act of Violence intended to compel
our opponent to fulfil our will.
m ♦ ♦ * ♦ * ♦
360 DOCUMENT 275
"If our opponent is to be made to comply with our will
we must place him in a situation which is more oppressive to
him than the sacrifice which we demand.
*******
"As long as the enemy is not defeated he may defeat me ;
then I shall be no longer my own master. He will dictate
the law to me as I did to him."
*******
It IS my contention that on every occasion when British Sea
Power has been used, it has been used for the aims defined by
Clausewitz, and not for purposes of plunder.
So far then we see that as between belligerent and belligerent the
strangle hold is efficacious, it is a legitimate war weapon with a legiti-
mate war aim. It is also the least cruel and the most bloodless.
But there remains the relationship of belligerent and neutral. It
is alleged that the High Seas are res communis — the highway of all.
This may be granted with reservations. The reservation is stated
by Lord Sumner In the case of the "Stigstad" as follows: —
"The seas are the highway of all, and it is Incidental to
the very nature of maritime war that neutrals in using that
highway may suffer Inconvenience from the exercise of their
concurrent rights by those who have to wage war on it. Of
this fundamental fact the right of blockade is only an
example."
Moreover It has been the policy of England for more than a
century to exercise her maritime rights, and her sea power with the
greatest possible consideration for neutral rights. To that end she
has, wherever possible, exercised the right of pre-emption or pur-
chase in the case of provisions or conditional contraband, that is of
articles ancipitis usus. This policy received the sanction of America
in the case of the Jay Treaty of 1794, which whilst leaving absolute
contraband as heretofore liable to confiscation makes conditional
contraband subject only to pre-emption. That Treaty was nego-
tiated by George Washington, John Jay, William Pitt and Lord
Grenville.
DOCUMENT 275 361
But it may be said, and it is said that everything is now contra-
band or conditional contraband, and that at the Hague Convention
of 1907 England offered to give up contraband altogether and to
rely only on blockade. The statement is true: but the offer was
made in ignorance of the important fact that blockade in the sense
known to the Law Courts has been rendered impossible by the mine
and the submarine whilst every article, or almost every article, pro-
duced is either contraband or conditional contraband. Even a baby's
feeding bottle may be converted into a most deadly bomb.
The case for blockade is stated with clarity in the i8th, 19th,
20th, and 2 1 St paragraphs of Sir E. Grey's instructions to the Brit-
ish Plenipotentiaries at the Hague in 1907. He went so far indeed
as to make a conditional offer of immunity of private property at
sea, but this extreme sacrifice offered as the price of disarmament
was not accepted, and is no longer valid.
The case for the use of sea power was stated forcibly and
clearly by the late Admiral Mahan, who says ;
"Now private property borne upon the seas is engaged
in promoting in the most vital manner the strength and
resources of the nation by which it is handled. When that
nation becomes belligerent, the private property so called
borne upon the seas is sustaining the well being and endur-
ance of the National War, and consequently is injuring the
opponent to an extent exceeding all other sources of national
power."
Precisely. The British case could not be better stated than it
has been by the eminent American Admiral. It only remains to add,
that from the point of view of humanity, it is more humane to ex-
haust your enemy by cutting off his supplies than by slaughtering
his people.
I therefore propose : —
I. That the Jay Treaty be accepted as the basis of the future
rule of International law, that absolute contraband be as heretofore
362 DOCUMENT 275
liable to seizure and confiscation and that conditional contraband
be liable to pre-emption.
2. That belligerent has the right to declare what is conditional
contraband, subject always to the condition that if intercepted it
must be paid for.
3. That the right of pre-emption shall extend to merchant
vessels that would otherwise be condemned as Prize for the carriage
of conditional contraband or for any other cause of condemnation
except unneutral service — that is of service which is of immediate
military value to the enemy — such as signalling, patrolling, supply-
ing coal or oil to ships at sea, etc.
It is of the highest importance that an agreement should be
found between the conflicting position taken by America and Eng-
land in this matter.
And it seems to me that a compromise which has already been
approved by George Washington and John Jay on the part of
America and by William Pitt and Lord Grenville on the part of
England, offers a sound precedent for such an agreement.
Graham Bower.
3^3
DOCUMENT 276
ler Fevrier 1919.
Reparation des Dommages^
PRINCIPES
(Projet)
1°. — Toutes les jurisprudences et tous les droits modernes, (alle-
mand, americain, anglais, frangals, etc.), professent et appliquent
des princlpes identiques en matiere de reparations et de dommages.
Tous proclament, presque dans les memes termes, que celui qui,
par sa faute a porte atteinte "a la vie, au corps, a la sante, a la
liberie, a la propriete et a tout droit d'un autre" (art. 823 du code
civil allemand) doit etre condamne; de ce chef, a "retablir I'ordre de
choses qui aurait existe si la circonstance ayant donne lieu a 1' obliga-
tion ne fut pas survenue" (art. 249; meme code).
Du fait de TAUemagne:
des hommes combattants ou non, des femmes, des enfants, des
vieillards ont ete tues, mutiles, blesses, atteints par les maladies nees
de la guerre dans les sources memes de leur vie "Atteintes a la vie,
au corps, a la sante."
des hommes, des femmes, des enfants ont ete reduits en escla-
vage, contraints au travail force sous le joug de I'envahisseur "At-
teintes a la liberte."
des populations entieres actives et vaiUantes ont vu, sous leurs
yeux, en quelques semaines, parfois en quelques heures, aneantir le
produit du labeur accumule par des generations "Atteintes a la
propriete."
2°. — UAllemagne dolt reparer Tintegralite des dommages
qu'elle a causee. C'est le seul moyen de retablir, comme son droit
a. See Diary, p. 104.
364 DOCUMENT 276
I'ordonne "I'ordre de choses qui aurait exlst6" si la guerre **ne fut
pas survenue" de son fait et par sa faute.
Comme sanction pour le passe, comme exemple pour I'avenir,
elle dolt s'acqultter de la totalite de sa dette.
Mais si tous ses creanciers, a savoir les puissances alllees et as-
sociees, sont tous egalement dignes d'interet et doivent etre places
sur le meme plan, il n'en est pas de meme de toutes les categories
de creances. Certaines ont droit a un ordre privilegie.
Le privilege d'une creance, c'est le droit qu'elle possede, en
raison de sa qualite et independamment de la personne du creancier,
d'etre payee par preference a toute autre.
3°. — Si un debiteur a apprehende les biens d'autrui, il en doit
restitution avant que ses creanciers, lui puissent reclamer aucun rem-
boursement. Leur proprietaire a le droit de les reprendre avant
tout paitage des biens du debiteur par ses creanciers. Les biens
d'un debiteur ne sont, en effet, le gage commun de ses creanciers
qu'autant qu'ils lui appartiennent legitimement.
Le proprietaire conserve son droit privilegie de restitution alors
meme que les objets apprehendes, ayaht ete aneantis ou rendus inu-
tilisables par le debiteur, ne se retrouvent plus en nature dans son
patrimoine.
S'il en etait autrement, il appartiendrait au debiteur en detruisant
par malice ou en consommant par interet les objets apprehendes de
priver la victime depouillee d'exercer son droit de propriete. Elle
reduirait le proprietaire de biens apprehendes au rang des creanciers
ordinaires qui se partagent egalement les biens du debiteur.
365
DOCUMENT 277
TEXTE
adopts a Tunanimit^
Par la reunion des delegu^s des Associations alliees pour la
SOCIETE des NATIONS*
tenue a Paris du 25 au 30 Janvier 1919.
La reunion reclame la formation, dans le plus bref delai pos-
sible, d'une Societe des peuples libres, unis dans la meme horreur du
crime que I'autocratie a dechame sur le monde pendant plus de
quatre ans: — resolus a ne plus permettre qu'une guerre puisse de
nouveau menacer Thumanite de ses destructions, — determines enfin
a s'entendre et a s'organiser:
1° — Pour soumettre tous les differends pouvant s'elever entre
eux a des methodes de reglement pacifique;
2° — Pour prevenir ou arreter en meme temps par tous les
moyens a leur disposition, toute tentative d'un Etat quelconque pour
troubler la paix du monde par des actes de guerre;
3° — Pour etablir une Cour de Justice Internationale chargee de
regler toutes les questions d'ordre juridique, et pour garantir I'execu-
tion de ses sentences, par toutes les sanctions Internationales appro-
priees," diploma tiques, juridiques, economiques, et au besoin, mili-
taires;
4° — a) Pour etablir un conseil international representatif qui
pourvoira au developpement de la legislation international et qui
exercera une action commune dans les affaires d'interet general.
b) Le Conseil representatif veillera a la sauvegarde de la
liberte des nations et au maintien de I'ordre international.
c) Le Conseil representatif, se considerant comme investi de
la tutelle morale des races non encore civilisees assurera I'execution
et provoquera, au besoin, le developpement des conventions Inter-
nationales necessaires pour la protection et le progres de ces races.
a. See Diary, p. 104.
366 DOCUMENT 277
d) Un Comite permanent de conciliation se saisira de tous les
differends entre les nations associees ; il agf ra d'abord comme concil-
iateur ou mediateur, et renverra, au besoin, les differends suivant
leur nature, soit a I'arbitrage, soit a la Cour de Justice. II sera
charge de toutes les enquetes. II fixera les delais et les conditions
qu'il jugera utiles. En cas de refus d'obeissance soit a une sentence
arbitrale, soit a une de ses propres decisions le Comite proposera au
Conseil representatif et aux Gouvernements associes I'application
de sanctions appropriees. Celles-ci seront obligatoires en cas de
violence ou d'agression.
5° — Pour limiter et surveiller les armements de chaque Nation
et la fabrication du materiel et des munitions de guerre, dans la
mesure des besoins de la Societe des Nations.
6° — Pour s'interdire I'usage des traites secrets.
7° — Pour admettre dans la Societe des Nations, comme egaux
devant le droit, tous les peuples en etat de donner des garanties effec-
tives de leur intention loyale d'observer ses conventions.
En dehors du texte contenant des principes pouvant servir de
base a I'etablissement d'une Societe des Nations adopte a I'unanimite
par les representants des Associations Alliees et communique le ler
Fevrier aux Chefs de leurs gouvernements, la reunion de ces Asso-
ciations, avant de se separer, a egalement emis un certain nombre
de voeux.
Les voeux suivant ont ete emis a I'unanimite:
I—
Que la conference fasse appel aux gouvernements associees et
alliees pour que dans le traite de paix ne soit comprise aucune dis-
position contraire aux principes exposes dans les quatorze points du
President Wilson.
II—
Que la Societe des Nations doit non seulement etre la gardienne
de la paix internationale, mais s'interesser a la paix sociale, et que
DOCUMENT 277 367
dans ce but, elle doit s'efforcer de rendre unlverselle toutes les con-
ditions humaines du travail que jusqu'ici des nations de haute civilisa-
tion n'ont pas cru toujours pouvoir adopter.
Qu'elle etablisse:
i) Un bureau international du travail qui sera charge de re-
cueillir et d'unifier les statistiques, de poursuivre toutes les recherches
d'ordre social, technique et physlologlque et de survelUer I'execu-
tlon des lois Internationales protectrlces du travail Industriel, agri-
cole, etc. . . .
2) Une conference Internationale du travail dans laquelle em-
ployeurs et employes seront representes et qui se reunira periodlque-
ment dans le but de modernlser la legislation du travail.
Ill—
Qu'une Commission Internationale d'enselgnement solt un or-
gane actif. L'enseignement est le principal moyen par lequel une
democratie mondiale responsable peut etre developpee et par lequel
une Societe des Nations peut se maintenir. Cette Commission
devralt etre chargee de rediger un plan par lequel l'enseignement
devra pourvoir aux besolns fondamentaux de la democratie. Ce
plan, par consequent, devrait fournir les moyens d'un enseigne-
ment sur les droits et les devoirs des citoyens vis-a-vIs de la demo-
cratie et I'extension du privilege de l'enseignement a toutes les na-
tions et a toutes les classes.
Une autre categorie de voeux visant les questions d'ordre mili-
taire a obtenu une adhesion generale, mais n'a pu reunlr un vote
unanlme, la delegation des Etats-Unis n'ayant pas regu mandat de
traiter ces questions. Void le texte de ces voeux :
i) — Que les Etats allies et associes doivent imposer dans
le tralte de palx au Etats ennemis la limitation des armements et
le controle sur leur fabrication, de fagon a permettre aux Etats de
la Societe des Nations de reduire Immediatement et dans une forte
mesure, leurs forces mllltalres.
368 DOCUMENT 277
2) — Que la Societe fixe pour chaque associe le chiffre des forces
militaires de terre et de mer sans autres limites que la necessite de
faire face aux agressions possibles des Etats exclus de la Societe ou
en revoke contre ses decisions.
3) — Que les Etats associes peuvent de fagon generale considerer
leur defense comme assuree pour longtemps par I'emploi des armes
que la guerre et la victoire ont mises a leur disposition.
4) — Que les Etats associes doivent s^interdire la vente aux
Etats etrangers a la Societe des Nations, des armes et munitions
qu'ils possedent actuellement et de celles que les fabriques d'Etat
pourraient produire ulterieurement.
5) — Que le commerce et la fabrication par des etablissements
prives de toutes les armes et de munitions de guerre devront etre In-
terdit.
. 369
DOCUMENT 278
Telegram Sent*
January 31, 19 19. •
General Andrews,
U. S. Army, G-i GHQ.
In respect to your telegram in regard to Colonel Grove. In or-
der to get the whole story in front of you I will report that on Janu-
ary 20th the Supreme Food Council telegraphed General Foch as
follows :
"We have just heard the report of Dr. Kellogg, who has
completed a mission in Poland on behalf of Mr. Hoover,
It is clear from his statements that the food situation in Po-
land is most critical and that immediate supplies are neces-
sary if the present Government is to be able to withstand the
Bolsheviks. The Allied Supreme Council of Supply and
Relief is ready to send the necessary cargoes to Danzig at
once. Article 16 of the Armistice with Germany gives the
Allies the right of access to Poland by Danzig for the pur-
pose of sending supplies to Poland. We request you to ask
at once by wireless that Germany should take steps to assure
the transport of 3,000 tons of foodstufFs daily by rail from
Danzig to the Polish frontier. The German Government
must assure the protection of these supplies and should the
supplies delivered in Poland prove to have been tampered
with there shall be a corresponding reduction in the future
supplies for Germany. The transport of the supplies shall
be carried out under the control of Allied representatives of
the Council and we request you to keep us informed by tele-
gram."
On January 28th we received from General Foch the following
message :
"German reply to telegram Number 3564 CR:
"First: The German Government is disposed in prin-
ciple to permit the passage of provisions destined to the
a. See Diary, p. 104.
370 DOCUMENT 278
Polish Congress but on account of the bad condition of the
railways and the great lack of rolling stock transportation to
the German Polish frontier cannot be assured without meet-
ing with inconvenience and delay.
"Second: Germany asks the assurance that the material
furnished for the transportation of these provisions be re-
turned to her immediately.
"Third : The German commission reserves the right to
make further remarks on this subject."
I telegraphed Colonel Grove, who is head of the Food Mission
in Poland, these arrangements and instructed him he should expect
certain cargoes of foodstuffs in Danzig within the next five or ten
days and that I would be glad if he would get into communication
with the German Railway and port authorities and make the neces-
sary detailed arrangements for the transportation of the food from
Danzig to the Polish frontier. Knowing Colonel Grove, I have
no doubt he is simply giving effect to these instructions and I have
no doubt that the Germans will raise every detailed difficulty they
can in retarding this transmission of food from Danzig to War-
saw, as Is evidenced by their desire for Colonel Grove to communi-
cate with them via the Commission at Spa. Such an arrangement
would be hopeless, as it is a question of discharging ships, securing
warehouse and wharf accommodation, loading railway cars, and se-
curing their dispatch and delivery to the Polish frontier. If such
communication is to be made through Spa it would involve an enor-
mity of detail whereas if the Germans were willing to cooperate
with Colonel Grove it would certainly save them and us a great deal
of difficulty. My view is that they should be at once instructed that
Colonel Grove is our representative in food transmission to Warsaw
and anyone with whom he associates himself as assistants are our
representatives and that the Germans should loyally cooperate with
this group in securing the results demanded by General Foch. It
would seem to me any failure on their part is a violation of their
undertaking under the Armistice. Hoover.
American Mission.
371
DOCUMENT 279
Cablegram Receiyed*^
Dated Jan. 29th, 191 9.
Rec. 31st, 8:20 P. M.
American Mission,
Paris.
For the President from the Secretary of War.
Very Confidential.
Secretary Rediield has had brought to his attention very serious
difficulties of exporters in dealing with Shipping Board in the mat-
ter of rates. There seems also to be much confusion and uncer-
tainty on the part of the Board in the matter of allocations and as
to future policy. This necessarily affects building program and the
Cabinet discussing the matter yesterday asked me to convey its feel-
ing that if possible Mr. Hurley should return at once with such in-
structions as will enable him to inaugurate definite policy of rates,
allocations and management of American Tonnage and restrict build-
ing program to ships best adapted to future commercial uses.
If Hurley cannot return at once they have (apparent omission)
desire to have some one make a comprehensive study for your con-
sideration upon your return.
Gay could make such a study without of course committing you
to anything hinging on report being held for low cost comparisons.
The Senate called upon the Shipping Board for recommenda-
tions covering policy of future operations. Mr. Whipple has pre-
pared a suggested reply which the Cabinet unanimously felt unwise.
Polk, Acting.
a. See Diary, p. 104.
372
DOCUMENT 280
Cablegram Sent"
January 30th, 19 19.
Secretary of State,
Washington.
For Secretary Treasury.
Allotment of $25,000.00 for credit Major General F. J. Keman
for expenses of Interallied Commission to Poland is authorized
from appropriation National Security and Defense. Notify De-
partment of State of this allotment. WoODROW WiLSON.
American Mission.
a. See Piary, p. 104.
DOCUMENT 281
Cablegram Received*
Washington,
Dated Jan. 30, 19 19,
Reed. 1. 10 p.m.
American Mission,
Paris.
For Davis from Rathbone.
First. Following note dated January 14th presented to Acting
Secretary of State by French Charge d*Aff aires: "As I had the
honor to say to you in the course of our conversation yesterday, the
German Government through its financial delegates to the Armistice
Commission at Spa offered to the French and Belgian forces to re-
deem all the Reichsbank notes circulating within their territories or
deposited in their banks of issue. All those notes would be gathered
and put into special accounts with a view to eventual delivery to
Germany in return for the marks thus delivered by them. The
French and Belgian Governments would receive :
1. All the French and Belgian banknotes of which the Ger-
man Government may have the disposal;
2. An amount to be determined later of foreign securities all on
bills of exchange payable abroad. The Reichsbank notes now cir-
culating or deposited in France and Belgium represent a value of
about four billion marks and the transaction would be of real im-
portance to the two countries. It would rid them of a currency
which Is a dead weight to their Treasuries while Germany would be
given the opportunity to withdraw a large amount of those notes
which are the cause of inflated Issues of the Reichsbank. The Gov-
ernment of the republic though inclined to entertain the proposal
would not enter into negotiations with the German Government
a. See Diary, p. 104.
374 DOCUMENT 281
without being first assured that the above stated terms and in particu-
lar those relative to the foreign securities and bills of exchange held
by Germany are unobjectionable to its allies. I should be very
thankful to you if you would kindly determine whether the Federal
Government in this matter concurs In the views of the French Gov-
ernment."
Second. In accordance with request of State Department you
are instructed to keep our Peace Mission informed regarding this
communication and other communications to State Department that
may be forwarded to you in a similar way, thus avoiding the un-
necessary duplication and expense occasioned if State Department
should also forward such communications direct to Mission.
Third. Treasury not sufficiently advised to Mission's policy to
know whether any objection to giving France and Belgium prefer-
ence apparently involved In acceptance of offer made by Germany's
financial delegates to Armistice Commission.
Fourth. Use of foreign securities and bills of exchange for the
purpose suggested might Involve disposal of securities held by our
Alien Property Custodian and disposal of German claims against
our Nationals without making provision for similar claims of our
nationals against Germany or Its .nationals. This should be safe-
guarded.
Fifth. Have discussed with Strauss, a, claims of American and
German nationals against each other; b, property of enemies in
United States and property of our nationals in enemy countries and,
c, the plans of British and of our Alien Property Custodian regard-
ing offsets.
Polk, Acting.
DOCUMENT 282
Cablegram Received*
Washington,
Dated January 29, 19 19.
Reed 31st 4:40 p.m.
American Mission,
Paris.
For Secretary of State.
Following two telegrams received from Consul General Harris:
"Following from Omsk: No. 40, January 20, 9 p.m. The week
ending January 18 was a good one for the Kolchak Government.
Prospects of settling the Semenoff affairs definite; complete under-
standing concerning high command of all Allied troops on the West-
em Front; the adjustment of the railroad matters and the accept-
ance by the Zozonofi of their placing full reliance In Ministers of
Foreign Affairs all tend to greatly strengthen the Omsk Government
especially as regards external affairs. The Government, in Interior
affairs, however, Is still weak and It just has not the power to en-
force Its will in the administration of many vital matters. For ex-
ample, Kolchak Is powerless to control the action of the Cossack
Atamans such as Ivanoff, Dytoffe and Semenoff, as advances dem-
onstrated on many occasions and these Cossack Generals have left
no room for doubt as to what their attitude would be If their per-
sonal and selfish Interests were not given due consideration. Gen-
erally speaking a Cossack Ataman has no conception of any policy
which would contribute towards the restoration of a great united
Russia. His chief ambition is to remain all powerful in regard
to Cossack districts and owe only a nominal allegiance to a Czar.
This Is how it has worked out in actual practice in past years and
this is why each Ataman is at heart now, a monarchist. It does
a. See Diary, p. 104.
376 DOCUMENT 282
not suit him to encourage a policy which would enlighten a Cossack
peasant to this extent. Himself the ablest (omission) will not pos-
sibly look for guidance to some member of an all Russian Constitu-
ent Assembly whom he has assisted to elect from his Districts. They
are the secret motives which control the actions of such men as
Semenoff and the issue is very remote. Such problems as these that
Admiral Kolchak is confronted. Were he to antagonize the Cos-
sacks openly he would but jeopardize the existence of the whole
Government which would lead immediately to a nationalized upris-
ing and such a step would be fatal at this time because it would
simply mean that continent would pass to Bolshevism.
Another instance of weakness in Kolchak Government. On
morning of December 23 nine social revolutionary members of the
all Russian Constituent Assembly were secretly taken from prison
in Omsk and executed under circumstances akin to an atrocity. The
Kolchak Government is blameless in these matters but it has not suf-
ficient strength to bring the murderers to justice for reason it might
implicate someone who has a large political (omission).
There is much talk of a monarchy among a certain set of officers
but I am still of opinion that any such test at this time would be
fatal. Although a large percentage of population may favor con-
stitutional monarch yet it would be ill advised to launch such a pro-
gram before European Russia is entirely freed of the Bolshevik. If
Kolchak falls and a monarchy is proclaimed it would have the im-
mediate effect of throwing all the social revolutionary and other
kindred parties into the Bolshevik camp and I doubt if there are
sufficient Czech and foreign (omission) in western Siberia to sub-
jugate the tide of Bolshevik which would sweep east over Siberia
and join up with the Bolsheviks who are still In revolt near Omsk,
Tonal, Auborskirkutsk and Blogdomesk. A sound and conservative
analysis of the present situation dictate that Kolchak should be
supported at the moment because he has adopted a middle course
and hopes to hold to it until such time as a Russian Cabinet, all
DOCUMENT 282 377
Russian Constituent Assembly may decide the fate of the country.
By this I do not mean that the Allies should recognize the Kolchak
Government, but I do believe that situation demands that it should
receive whatever moral support the Allies might consistently give
under existing circumstances."
Second telegram: "Following from Omsk: ''47, January 22,
6 p.m. Situation Siberia today's date. Government Omsk has ap-
pointed Committee to proceed Chita to take evidence in Semenoff
affair. In these (omission) is to sit under Japanese protection.
Semenoff is ill and has gone. Hardener under advice of physi-
cians.
Military situation Orenburg bad, Dutoff reported evacuating
city. A battalion of Foreign soldiers refused to obey Janin's orders
to proceed Orenburg assist Dutoff. General Knox has asked per-
mission of English and Canadian Government to send assistance
Dutoff but has received negative answer. It is claimed that English
Canadian troops could not endure hardships of winter cross coun-
try campaign, also stated that General Knox should not split his
units. Russian Government getting ready to mobilize five classes
men in Tomsk District. Ambassador Regnalt shortly going Paris.
Polk, Acting.
378
DOCUMENT 283
Letter of Mr. Grew*
American Commission to Negotiate Peace
Paris, February 2, 1919.
The Honorable David Hunter Miller,
Hotel Ritz (sic) Paris.
Sir:
By direction of the Commissioners in reference to my communi-
cation'* of January 29, 19 19, and your reply'^ thereto of January 31,
19 19, I now have the honor to inform you that your assignment to
represent the American Commission as a member of the Commis-
sion on the Responsibility for the War and its Authorization, has
been changed and that the President has directed that you be dele-
gated as a member of the Commission for the Study of Interna-
tional Control over Ports, Waterways and Railways. The other
American Representative on this commission is the Honorable
Henry White.
A meeting of the Commission for the Study of International
Control over Ports, Waterways and Railways has been called for
Monday, February 3rd, at 3 o'clock P.M. to be held at the Ministry
of Public Works, 246 Blvd. St. Germain, Room 37, Stairway i.
For your information there is attached a copy of the resolution**
which provides for the above mentioned commission and which
was adopted at the meeting of the Peace Conference on January
25, 1919.
There is also enclosed a list^ of the members of the commission
as received from the Secretary General under date of January 31,
1919.
I am, Sir,
Your obedient servant,
J. C. Grew,
Enclosures: 2. Secretary.
a. See Diary, p. 104. My reply is Document 284.
b. Document 266.
c. Document 267.
d. This may be found in Document 230.
e. Not reproduced.
379
DOCUMENT 284
Letter to Mr. Grew"
Paris, 3 February 19 19.
Sir,
I have the honor to acknowledge receipt of your letter of 2 Feb-
ruary referring to your communication of January 29, 19 19, and
my reply thereto of January 31, 19 19, informing me that my as-
signment to represent the American Commission as a member of
the Commission on the Responsibility for the War and its Author-
ization has been changed, and that the President has directed that
I be delegated as a member of the Commission for the Study of
International Control over Ports, Waterways and Railways, the
other American representative on this Commission being the Honor-
able Henry White.
I have taken due note of the hour and place of the meeting
of the Commission for the Study of International Control over
Ports, Waterways and Railways, on this date.
A copy of the Resolution which provides for the above-men-
tioned Commission, and which was adopted at the meeting of the
Peace Conference on January 25, 1919; also a list of the members
of the Commission as received from the Secretary General, which
you were good enough to enclose with your letter, have also my
attention.
I am. Sir,
Your obedient servant,
David Hunter Miller.
Honorable Joseph C. Grew,
Secretary, American Commission
to Negotiate Peace,
Hotel de CriUon.
a. See Diary, p. 104. This is the reply to Document 283.
380
DOCUMENT 285
COVENANT*
PREAMBLE.
In order to secure international peace and security by the acceptance
of obligations not to resort to the use of armed force, by the prescription
of open, just and honorable relations between nations, by the firm establish-
ment of the understandings of International law as the actual rule of conduct
among governments, and by the maintenance of justice and a scrupulous
respect for all treaty obligations in the dealings of organized peoples with
one another, and in order to promote International cooperation, the Powers
signatory to this Covenant adopt this constitution of the League of Nations.
ARTICLE L
The action of the Contracting Powers under the terms of this Covenant
shall be effected through the instrumentality of a Body of Delegates which
shall consist of the diplomatic representatives of the Contracting Powers
accredited to X. and the Minister of Foreign Affairs of X. The meetings of
the Body of Delegates shall be held at the seat of government of X. and
the Minister for Foreign Affairs of X. shall be the presiding officer.
Whenever the Delegates deem it necessary or advisable, they may meet
temporarily at the seat of government of Y. or of Z., in which case the
diplomatic representative to X. of the country in which the meeting is held
shall be the presiding officer pro tempore.
It shall be the privilege of any of the Contracting Powers to assist its
representative In the Body of Delegates by any method of conference, coun-
sel, or advice that may seem best to it, and also to be represented at any time
by a special representative.
ARTICLE II.
The Body of Delegates shall regulate their own procedure and shall have
power to appoint such committees as they may deem necessary to inquire
into and report upon any matters that lie within the field of their action.
It shall be the right of the Body of Delegates, upon the Initiative of
any member, to discuss, either publicly or privately as it may deem best,
any matter lying within the field of action of the League of Nations as
defined in this Covenant, or any matter likely to affect the peace of the
world ; but all actions of the Body of Delegates taken in the exercise of the
functions and powers granted to them under this Covenant shall be formu-
lated and agreed upon by an Executive Council, which shall act either by
reference or upon its own initiative and which shall consist of
the representatives of the Great Powers, together with representatives
drawn in annual rotation from two panels, one of which shall be made up
of the representatives of the States ranking next after the Great Powers
and the others of the representatives of the minor States (a classification
which the Body of Delegates shall itself establish and may from time to time
alter), such a number being drawn from these panels as will be but one less
than the representatives of the Great Powers; and three or more negative
votes in the Council shall operate as a veto upon any action or resolution
proposed.
All resolutions passed or actions taken by the Body of Delegates or by
the Executive Council, except those adopted in execution of any specific
powers herein granted, shall have the effect of recommendations to the sev-
eral governments of the League.
The Executive Council shall appoint a permanent Secretariat and staff
and may appoint joint committees, chosen from the Body of Delegates or
consisting of other specially qualified persons, for the study and systematic
consideration of the international questions with which the Council may have
a. As to this draft, see Diary, p. 105, aod Memorandum Regardloe the Covenant,
Vol. I, pp. 347, 348.
DOCUMENT 285 381.
to deal, or of questions likely to lead to international complications or dis-
putes. The Executive Council shall also take the necessary steps to establish
and maintain proper liaison both with the foreign offices of the Contract-
ing Powers and with any governments or agencies which may be acting as
mandataries of the League in any part of the world.
ARTICLE IIL
The Contracting Parties undertake to respect and to protect as against
external aggression the political independence and territorial integrity of all
States members of the League.
ARTICLE IV.
The Contracting Powers recognize the principle that the maintenance of
peace will require the reduction of national armaments to the lowest point con-
sistent with domestic safety and the enforcement by common action of inter-
national obligations ; and the Executive Council shall formulate plans for
eflFecting such reduction. It shall also require^ into the feasibility of abolish-
ing compulsory military service and the substitution therefor of forces en-
rolled upon a voluntary basis and into the military and naval equipment
which it is reasonable to maintain.
_ The Executive Council shall also determine for the consideration and
action of the several governments what military equipment and armament
is fair and reasonable in proportion to the scale of forces laid down in the
programme of disarmament; and these limits, when adopted, shall not be ex-
ceeded without the permission of the Body of Delegates.
The Contracting Powers further agree that munitions and implements
of war shall not be manufactured by private enterprise and that there shall
be full and frank publicity as to all national armaments and military or naval
programmes.
ARTICLE V.
The Contracting Powers agree that should disputes or difficulties arise
between or among them which cannot be satisfactorily settled or adjusted
by the ordinary processes of diplomacy, they will in no case resort to armed
force without previously submitting the questions and matters involved either
to arbitration or to inquiry by the Executive Council and until there has been
an award by the arbitrators or a recommendation by the Executive Council;
and that they will not even then resort to armed force as against a member
of the League of Nations who complies with the award of the arbitrators or
the recommendation of the Executive Council.
The Contracting Powers agree that whenever any dispute or difficulty
shall arise between or among them with regard to any question of the law
of nations, with regard to the interpretation of a treaty, as to any fact
which would, if established, constitute a breach of international obligation,
or as to any alleged damage and the nature and measure of the reparation
to be made therefor, if such dispute or difficulty cannot be satisfactorily
settled by the ordinary processes of negotiation, to submit the whole subject
matter to arbitration and to carry out in full good faith any award or deci-
sion that may be rendered.
In case of arbitration, the matter or matters at issue shall be referred to
arbitrators, one of whom shall be selected by each of the parties to the dis-
pute from outside their own nationals, when there are but two such parties,
and a third by the two thus selected. When there are more than two parties
to the dispute, one arbitrator shall be named by each of the several parties
and the arbitrators thus named shall add to their number others of their own
choice, the number thus added to be limited to the number which will suffice
to give a deciding vote to the arbitrators thus added in case of a division
among the arbitrators chosen by the contending parties. In case the arbi-
trators chosen by the contending parties cannot agree upon an additional ar-
bitrator or arbitrators, the additional arbitrator or arbitrators shall be chosen
by the Executive Council.
On the appeal of a party to the dispute the decision of said arbitrators
may be set aside by a vote of three-fourths of the Delegates, in case the de-
cision of the arbitrators was unanimous, or by a vote of two-thirds of the
a. ato; xead "Inqolw."
382 DOCUMENT 285
Delegates in case the decision of the arbitrators was not unanimous, but
unless thus set aside shall be finally binding and conclusive.
When any decision of arbitrators shall have been tlius set aside, the
dispute shall again be submitted to arbitrators chosen as heretofore pro-
vided, none of whom shall, however, have previously acted as arbitrators in
the dispute in question, and the decision of the arbitrators rendered in this
second arbitration shall be finally binding and conclusive without right of
appeal.
If for any reason it should prove impracticable to refer any matter in
dispute to arbitration, the parties to the dispute shall apply to the Execu-
tive Council to take the matter under consideration for such mediatory
action or recommendation as it may deem wise in the circumstances. The
Council shall immediately accept the reference and give notice to the
parties, and shall make the necessary arrangements for a full hearing, in-
vestigation and consideration. The Council shall ascertain and as soon as pos-
sible make public all the facts involved in the dispute and shall make such
recommendation as it may deem wise and practicable based on the merits
of the controversy and calculated to secure a just and lasting settlement.
Other members of the League shall place at the disposal of the Executive
Council any and all information that may be in their possession which in
any way bears upon the facts or merits of the controversy; and the Execu-
tive Council shall do everything in its power by way of mediation or con-
ciliation to bring about a peaceful settlement. The recommendation of the
Executive Council shall be addressed to the disputants. Should the Executive
Council fail to arrive at any conclusion, it shall be the privilege of the mem-
bers of the Executve Council to publish their several conclusions or recom-
mendations; and such publications shall not be regarded as an unfriendly
act by any of the disputants.
The Executive Council may in any case refer the consideration of a
dispute to the Body of Delegates. The consideration of the dispute shall be so
referred at the request of either party to the dispute. In any case referred
to the Body of Delegates all the provisions of this Article relating to the
action and powers of the Executive Council shall apply to the action and
powers of the Body of Delegates.
ARTICLE VI,
Should any Contracting Power be found by the League to have broken or
disregarded its covenants under ARTICLE V, it shall thereby if^so facto be
deemed to have committed an act of war against all the members of the League,
which shall immediately subject it to a complete economic and financial boy-
cott, including the severance of all trade or financial relations, the prohibition
of all intercourse between their nationals and the nationals of the covenant-
breaking State, and the prevention, so far as possible, of all financial, com-
mercial, 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 Executive Council in such a case to recommend
what effective military or naval force the members of the League shall severally
contribute, and to advise, if it should think best, that the smaller members of
the League be excused from making any contribution to the armed forces to be
used against the covenant-breaking State.
The covenant-breaking State shall, after the restoration of peace, be sub-
ject to the regulations with regard to a peace establishment provided for new
States under the terms SUPPLEMENTARY ARTICLE IV.
ARTICLE VII.
If any Contracting Power shall be found by the League to have declared
war or to have begun hostilities or to have taken any hostile step short of war,
against another Contracting Power before submitting the dispute involved to
arbitrators or consideration by the Executive Council as herein provided, or
to have declared war or to have begun hostilities or to have taken any hostile
step short of war, in regard to any dispute which has been decided adversely
DOCUMENT 285 383
to it by arbitrators the Contracting Powers hereby engage not only to cease all
commerce and intercourse with that Power but also to unite in blockading and
closing the frontiers of that Power to commerce or intercourse with any part of
the world and to use any force which may be agreed upon to accomplish that
object.
ARTICLE VIII.
Any war or threat of war, whether immediately affecting any of the Con-
tracting Powers or not, is hereby declared a matter of concern of the League
and to all the Contracting Powers, and the Contracting Powers hereby
reserve the right to take any action that may be deemed wise and effect-
ual to safeguard the peace of nations.
It is hereby also declared and agreed to be the friendly right of each
of the Contracting Powers to draw the attention of the Body of Delegates
or of the Executive Council to any circumstances anywhere which threaten
to disturb international peace or the good understanding between nations
upon which peace depends.
The Body of Delegates and the Executive Council shall meet in the
interest of peace whenever war is rumored or threatened, and also when-
ever the representative of any Power shall inform the Body of Delegates
that a meeting and conference in the interest of peace is advisable.
The Body of Delegates may also meet at such other times and upon such
other occasions as they shall from time to time deem best and determine.
ARTICLE IX.
In the event of a dispute arising between one of the Contracting Powers
and a Power not a party to this Covenant, the Contracting Power shall bring
the matter to the attention of the Executive Council. The Executive Coun-
cil shall in such a case, in the name of the League, invite the Power
not a party to this Covenant to become ad hoc a party, and if that Power
consents it is hereby agreed that the provisions hereinbefore contained and
applicable to the submission of disputes to arbitration or to consideration
shall be in all respects applicable to the dispute both in favor of and against
such Power as if it were a party to this Covenant.
In case the Power not a party to this Covenant shall not accept the invi-
tation of the Executive Council to become ad hoc a party, it shall be the duty
of the Executive Council immediately to institute an inquiry into the cir-
cumstances and merits of the dispute involved and to recommend such
joint action by the Contracting Powers as may seem best and most effectual
in the circumstances disclosed.
ARTICLE X.
If hostilities should be begun or any hostile action taken against the Con-
tracting Power by the Power not a party to this Covenant before a decision of the
dispute by arbitrators or before investigation, report and recommendation by the
Executive Council in regard to the dispute, or contrary to such recommendation,
the Contracting Powers engage thereupon to cease all commerce and communica-
tion with that Power and also to unite in blockading and closing the frontiers
of that Power to all commerce or intercourse with any part of the world, and to
employ jointly any force which may be agreed upon to accomplish that object.
The Contracting Powers also undertake to unite in coming to the assistance of
the Contracting Power against which hostile action has been taken, and to
combine their armed forces in its behalf.
ARTICLE XI.
In case of a dispute between states not parties to this Covenant, any Con-
tracting Power may bring the matter to the attention of the Body of Delegates
or the Executive Council, who shall thereupon tender the good offices of the
League with a view to the peaceable settlement of the dispute.
If one of the states, a party to the dispute, shall offer and agree to sub-
mit its interests and cause of action wholly to the control and decision of the
League, that state shall ad hoc be deemed a Contracting Power. If no one of
the states, parties to the dispute, shall so offer and agree, the Body of Dele-
gates shall through the Executive Council or of its own motion take such
4
384 DOCUMENT 285
action and make such recommendation to the governments as will prevent
hostilities and result in the settlement of the dispute.
ARTICLE XII.
Any Power not a party to this Covenant, whose government is based upon
the principle of popular self-government, may apply to the Body of Delegates
for leave to become a party. If the Body of Delegates shall regard the granting
thereof as likely to promote the peace, order, and security of the World, they
shall act favorably on the application, and their favorable action shall operate
to constitute the Power so applying in all respects a full signatory party to
this Covenant. This action shall require the affirmative vote of two-thirds
of the Body of Delegates.
ARTICLE XIII.
The Contracting Powers severally agree that the present Covenant is
accepted as abrogating all treaty obligations mter se which are inconsistent
with the terms hereof, and solemnly engage that they will not enter into any
engagements inconsistent with the terms hereof.
In case any of the Powers signatory hereto or subsequently admitted
to the League shall, before becoming a party to this Covenant, have undertaken
any treaty obligations which are inconsistent with the terms of this Covenant,
it shall be the duty of such Power to take immediate steps to procure its release
from such obligations.
SUPPLEMENTARY AGREEMENTS.
I.
To the colonies formerly part of the German Empire, and to those
territories formerly belonging to Turkey which include Armenia, Kurdestan,
Syria, Mesopotamia, Palestine and Arabia, which are inhabited by peoples
not able to stand by themselves under the strenuous conditions of the modern
world, there should be applied the principle that the well-being and devel-
opment of such peoples form a sacred trust of civilization and that securi-
ties for the performance of this trust should be embodied in the constitu-
tion of the League.
The best method of giving practical effect to this principle is that the
tutelage of such peoples should be entrusted to advanced nations who by
reason of their resources, their experience or their geographical position, can
best undertake this responsibility, and that this tutelage should be exercised
by them as mandataries on behalf of the League.
The character of the mandate must differ according to the stage of
development of the people, the geographical situation of the territory, its
economic conditions and other similar circumstances.
II.
Certain communities formerly belonging to the Turkish Empire have reached
a stage of development where their existence as independent nations can be
provisionally recognized subject to the rendering of administrative advice
and assistance by a mandatory power until such time as they are able to
stand alone. The wishes of these communities must be a principal considera-
tion in the selection of the mandatory power.
Other peoples, especially those of Central Africa, are at such a stage
that the mandatary must be responsible for the administration of the terri-
tory subject to conditions which will guarantee the prohibition of abuses
such as the slave trade, the arms traffic and the liquor traffic, and the pre-
vention of the establishment of fortifications or military and naval bases
and of military training of the natives for other than police purposes and
the defense of territory, and will also secure equal opportunities for the
trade and commerce of other members of the League.
There are territories, such as South-west Africa and certain of the
Islands in the South Pacific, which, owing to the sparseness of their popu-
DOCUMENT 285 385
lation, or their small size, or their remoteness from the centres of civiliza-
tion, or their geographical contiguity toi the mandatary state, and other
circumstances, can be best administered under the laws of the mandatary
state as if integral portions thereof, subject to the safeguards above-mentioned
in the interests of the indigenous population.
III.
In every case of mandate, the mandatary state shall render to the
League an annual report in reference to the territory committed to its
charge.
The degree of authority, control, or administration to be exercised by
the mandatory State or agency shall in each case be explicitly defined
by the Executive Council in a special Act or Charter which shall reserve to
the League complete power of supervision, and which shall also reserve
to the people of any such territory or governmental unit the right to appeal
to the League for the redress or correction of any breach of the mandate by
the mandatory State or agency or for the substitution of some other State
or agency, as mandatory.
The object of all such tutelary oversight and administration on the
part of the League of Nations shall be to build up in as short a time as
possible out of the people or territory under its guardianship a political
unit which can take charge of its own affairs, determine its own connections,
and choose its own policies. The League may at any time release such
people or territory from tutelage and consent to its being set up as an
independent unit. It shall also be the right and privilege of any people
or territory to petition the League to take such action, and upon such
petition being made it shall be the duty of the League to take the petition
under full and friendly consideration with a view of determining the best
interests of the people or territory in question in view of all circumstances
of their situation and development.
IV.
No new State shall be recognized by the League or admitted into its
membership except on condition that its military and naval forces and arma-
ments shall conform to standards prescribed by the League in respect of it
from time to time.
V.
The Contracting Powers will work to establish and maintain fair hours
and humane conditions of labor for all those within their several jurisdictions
and they will exert their influence in favor of the adoption and maintenance
of a similar policy and like safeguards wherever their industrial and com-
mercial relations extend. Also they will appoint Commissions to study
conditions of industry and labor in their international aspects and to make
recommendations thereon, including the extension and improvement of exist- .
ing conventions.
VI.
The League shall require all new States to bind themselves as a condition
precedent to their recognition as independent or autonomous States and the
Executive Council shall exact of all States seeking admission to the League,
the promise to accord to all racial or national minorities within their several
jurisdictions exactly the same treatment and security, both in law and in
fact, that is accorded the racial or national majority of their people.
VII.
Recognizing religious persecution and intolerance as fertile sources of
war, the Contracting Powers agree, and the League shall exact from all new.
States and all States seeking admission to it the promise that they will make no.
law prohibiting or interfering with the free exercise of religion, and that they
will in no way discriminate, either in law or in fact, against those who practice
any particular creed, religion, or belief whose practices are not inconsistent
with public order or public morals.
6
386 DOCUMENT 285
VIII.
When the rights of belh'gerents on the high seas outside territorial
waters shall have been defined by international convention, it is hereby-
agreed and declared as a fundamental Covenant that no Power or combina-
tion of Powers shall have a right to overstep in any particular the clear
meaning of the definitions thus established; but that it shall be the right
of the League from time to time and on special occasion to close the
seas in whole or in part against a particular Power or Powers for the pur-
pose of enforcing the international Covenants here entered into.
IX.
It is hereby covenanted and agreed by the Contracting Powers that no
treaty entered into by them shall be regarded as valid, binding, or operative
until it shall have been published and made known to all the other States mem-
bers of the League.
X.
It is further covenanted and agreed by the Contracting Powers that in
their fiscal and economic regulations and policy no discrimination shall be
made between one nation and another among those with which they have com-
mercial and financial dealings.
7
387.
DOCUMENT 286
Letter to President Wilson*
3 February, 19 19.
Sir:
I have the honor to transmit to you herewith ten texts of a draft
of "Covenant,"^ printed this morning. About thirty other texts are
available.
In lieu of former Supplementary Articles I, II, and III, there
have been inserted, in accordance with my understanding of your
direction, the substance of the provisions of the recent resolution
regarding mandataries, adding, however, the first and last para-
graphs of former Supplementary Article III.
The remaining changes from the former draft include only, I
believe, those which were indicated by you, and a few others which
followed from the changes so indicated, or which were made for
conformity.
I am, Sir, with great respect,
Your obedient servant,
David Hunter Miller.
The President,
Paris.
a. See Diary, p. 105.
b. Document 285.
388
DOCUMENT 287
Letter to Colonel House'
3 February 19 19.
My dear Colonel House :
Herewith I beg to hand you two texts of the draft of "Cove-
nant"'' which the President last evening directed to be prepared.
Ten texts of this draft have been delivered to the President.
Very sincerely yours,
David Hunter Miller.
Colonel E. M. House,
Hotel de Crillon.
Enclosures (2)
a. See Diaty, jp. 105.
b. Document 285.
DOCUMENT 288
Memorandum'^
Concerning the Scheme of Organization of the League of Nations
Prepared by the Swiss Commission of Experts
I.
The scheme is divided into two different parts — (i) a federal
compact, which contains the fundamental principles and which can
exclusively be amended by means of a universal treaty, and (2) a
statute of the League which may be changed under certain conditions
by a specified majority of the States.
The purpose of this distinction is to give the component States
a guarantee that they will not incur any unforeseen obligations in
entering the League, and on the other hand to provide that the
League of Nations is capable of being developed and is not bound
in every circumstance by the requirement of the unanimous assent of
all nations concerned.
IL
The scheme is based on the idea that the States of the League
may on no account recur to self-help for the settlement of their
disputes. The procedure of arbitration and mediation should insure
a final and enforceable decision in all cases in which conciliation is
not possible (cf. Federal compact art. 2-3, statute art. 30, 33, 43,
52).
The scheme does not go beyond providing institutions for the
maintenance of peace and the development of international law.
The material bases of a durable peace (democratic reform of foreign
politics, equality of rights, economic freedom, international labour
rights) are merely laid down as a programme in a declaration which
precedes the federal compact. The immediate and general solution
of these questions, which cut deeply into the constitutional law and
the economic politics of the States of the League, would delay and
a. See Diary, p. 106, and note a to that page.
390 DOCUMENT 288
complicate considerably the attainment of the proposed aims (fed-
eral compact A-E ) .
III.
The League of Nations must be founded on the principle of
equality of States. This does not prevent the special position of the
individual States from being taken into consideration in the system
of the League (cf. statute art. 2). Small States, that can offer
durable guarantees for their impartiality — especially Switzerland
whose traditional neutrality is laid down in the Swiss constitution
and has been recognized by international law — are particularly ap-
propriate for receiving the residence of permanent international in-
stitutions; their representatives should be given a special position in
certain bodies of the League, f. i. in the Council of Mediation and
in the Chancery (cf. statute art. 3, 8, 9, 27). In order that these
States should be enabled to preserve entirely their independence,
their territory should at all events be inviolable and remain outside
any military enterprises (Federal compact art. 6).
In the organisation of the Council of Mediation, and especially
of the Permanent Delegation of this Council allowance might be
made to the fact that some States are much better able than others
to enforce peace and international right within the League of Na-
tions (statute art. 9, 49, 63). Moreover, in important decisions of
the Congress of States and of the Council of Mediation, the different
size of the States of the League is being taken into consideration
through the provision contained in the scheme that not only the
votes of the States as such shall be counted, but besides the number
of the populations which are represented by these States (cf. Statute
art. 60, 63). This solution excludes the possibility of a predomi-
nance of the small States over the great Powers as well as the
contrary. The number of one hundred millions as highest total
which may be counted for the population of one country, has been
chosen as representing the average number of the populations of
the Great Powers and their colonies (art. 25 of the Statute).
DOCUMENT 288 391
Finally, the unrestricted conclusion of treaties between a great or
small number of States Is by no means excluded, as long as they
are not inconsistent with the purposes of the League.
IV.
The Members of the League must endeavour to follow a
constantly peaceful policy also towards the States which have not yet
entered the universal alliance (cf. Federal Compact art. 7). A
perfect organization for the maintenance of peace is however only
possible within the League of Nations; the League should conse-
quently be open to all States that can offer guarantees for the fullfil-
ment of the duties the membership involves (cf. Statute art. 7).
In case objections should be raised against the admission of a State,
the Congress shall resolve upon this question with a majority of the
votes of the component States, which must represent at the same
time the majority of the population of the League (Statute, art.
60B).
V.
a) In the system of the League of Nations the Council of Medi-
ation represents the stable element and insures through its composi-
tion a permanent contact with the different Governments as well as
between the States themselves. This Council is no government in
itself but it is appropriate for continually watching politics and for
influencing them in favour of the maintenance of good relations be-
tween the States.
The Council of Mediation does not only provide the members
of the commissions of conciliation^ which have to be chosen out of
it by the parties in conflict (Statute art. 10), but it settles besides
by means of its Permanent Delegation all international disputes,
which can neither be solved by conciliation nor by arbitration (cf.
Statute art. 39, 49 to 55) . Through its composition the Delegation
offers security for the impartiality of the decisions of mediation as
392 DOCUMENT 288
well as for the enforcement of the settlement through the States of
the League and consequently for the maintenance of peace.
b) The organisation of judicial procedure within the League
of Nations recognizes in the first place the right of the parties to
form tribunals according to their own free choice (cf. Statute art.
37 & 46) ; moreover, it puts at their disposal a permanent tribunal,
the International Court, which is besides competent in all cases, in
which the parties can not be brought to an agreement on the forma-
tion of a special tribunal (Statute art. 37 & 39) .
In the composition of the International Court neither the prin-
ciple of equal representation of all nations nor the difference between
big and small States should be taken into consideration. The pro-
posed system of election of judges insures on one hand the
collaboration of eminent personalities (cf. Statute art. 13), whereas
on the other hand the system of recusation in the composition of the
different benches aims at the greatest possible impartiality in judg-
ment (cf. Statute art. 13) . The difficulties that thwarted the project
of the second Hague Conference could for the greatest part be
overcome through this provision as well as through the dispositions
of procedure contained in the scheme (Statute art. 40 to 48).
c) In the Court of Conflicts (Statute art. 17), which Is partly
established on the same lines as the tribunals of arbitration, the
judicial and the political element are likewise represented by Mem-
bers of the International Court and by plenipotentiaries at the Coun-
cil of Mediation. The activity of the Court of Conflicts Is only
called upon in exceptional cases.
d) The Congress of States differs from the most international
conferences which have hitherto taken place not only In the fact that
it is assembled in regular intervals, but especially in its power to
reach universally binding decisions on certain matters, which are
either fixed In the Statute — that is to be adopted in the same time
as the federal compact — or else in later unanimously adopted treaties
(Statute art. 60B). Even In matters in which the ratifying power
DOCUMENT 288 393
of the component States is being reserved (Statute art. 60C), the
reaching of decisions of the Congress, which are upheld by strong
majorities, should be facilitated as far as possible (Statute ) .
e) Provisions concerning the sanctions have only been made as
far as the question of competence is involved. In this respect the
Council of Mediation must be assured the greatest possible liberty.
By means of publication of the decisions of the League and by pre-
ventive measures (cf. Statute art. 50 and 59), the submission of
the States in fault will generally be obtained under the influence of
public opinion. In case this should not be sufficient, the Council of
Mediation will determine in each case separately the moment for
action and the methods to be applied.
394
DOCUMENT 289
Proposed Procds-Verbal of the League of Nations Cammission,
Session of February 3
CONFERENCE
DES
PRELIMINAIRES DE PAIX
EPREUVE.
COMMISSION
De la Societe DES Nations*
La Conference des Preliminaires de Paix, dans sa seance pleni-
ere du 25 Janvier 19 19 (Protocol n° 2) a decide de nommer, pour
I'etude de la constitution de la Societe des Nations, une Commission
composee de quinze membres a raison de deux membres pour cha-
cune des Grandes Puissances (£tats-Unis d'Amerique, Empire Bri-
tannique, France, Italie, Japon) et de cinq membres elus pour I'en-
semble des Puissances a interets particuliers. Dans la reunion tenue
par ces dernieres Puissances, le 27 Janvier 19 19, la Belgique, le
Bresil, la Chine, le Portugal et la Serbie ont ete choisies pour de-
signer chacune un Representant (voir annexe 6 du Protocole n° 2) .
Le composition de la Commission, a la suite de la designation
de ses Representants pour chacun des fitats interesses, se trouve ainsi
etre la suivante :
£tats-Unis d'Jmerique:
Le President des £tats-Unis;
Hon. Edward M. House.
Empire Bntannique :
The Rt. Hon. the Lord Robert Cecil, K. C, M. P.;
Lt. -General the Rt. Hon. J. C. Smuts, K. C, Ministre de la
Defense de TAfrique du Sud.
a. See Diary, p. 106, and Memorandum Regarding the Covenant, Vol. I, pp. 348,
349, et seq.
DOCUMENT 289 395
France :
M. Leon Bourgeois, ancien President du Conseil des Ministres,
ancien Mlnlstre des Affaires etrangeres;
M. Larnaude, Doyen de la Faculte de droit de Paris.
Italie :
M. Orlando, President du Conseil des Ministres;
M. Scialoja, Senateur du Royaume.
Japon :
Le Baron Makino, ancien Ministre des Affaires, etrangeres,
Membre du Conseil diplomatique;
Le Vicomte Chinda, Ambassadeur extraordinaire et Plenipo-
tentiaire de S. M. I'Empereur du Japon a Londres.
Belgique :
M. Hymans, Ministre des Affaires etrangeres, Ministre d'fitat.
Bresil:
M. Epitacio Pessoa, Senateur, ancien Ministre de la Justice.
Chine :
M. Wellington Koo, Envoye extraordinaire et Ministre pleni-
potentiaire de Chine a Washington.
Portugal :
M. Jayme Batalha Reis, Envoye extraordinaire et Ministre
plenipotentiaire du Portugal a Petrograd.
Serbie :
M. Vesnitch, Envoye extraordinaire et Ministre plenipoten-
tiaire de S. M. le roi de Serbie a Paris.
La Commission tient sa premiere seance le 3 fevrier 19 19.
La seance est ouverte a 14 h. 30 a PHotel Crillon sous la pre-
sidence de M. Wilson, President des £tats-Unis.
39^ DOCUMENT 289
PROCES-VERBAL N*' I.
Seance du 3 Fevrier 19 19.
Sont presents:
Le President Wilson et le Colonel House {l^tats-TJnis d'Atne-
rique) ; MM. Leon Bourgeois et Larnaude (France) ; Lord Robert
Cecil et le Lt.-Gen, Hon. J. C. Smuts (Empire Britanntque) ; MM.
Orlando et Scialoja (Italie) ; le Baron Makino et le Vicomte Chinda
(Japon) ; M. Hymans (Belgique) ; M. Epitacio Pessoa (Bresil) ;
M. Wellington Koo (Chine) ; M. Jayme Batalha Reis (Portugal) ;
M. Vesnitch (5^r^jV).
Le President soumet a la Commission un pro jet de Pacte, dont
le texte figure en annexe ; il est convenu que ce projet servira de base
aux deliberations de la Commission.
Une discussion generale preliminaire est ouverte sur la procedure
a adopter.
La reunion s'ajourne au lendemain 4 fevrier 19 19, a 20 heures
30.
ANNEXE AU PROCES-VERBAL N° L
Projet de Pacte.
PREAMBULE.
Afin d'assurer la paix et la securite internationales et aussi dans
le but d'instaurer la cooperation internationale, les Puissances signa-
taires du present Pacte, s'interdisant de recourir a I'emploi de la
force armee, s'engageant a I'observation de relations loyales,
justes et honnetes entre nations, etablissant une claire conception de
I'esprit du droit international devant servir de regie de conduite
entre les Gouvernements, s'obllgeant au maintien de la justice et au
respect scrupuleux dans les relations entre peuples organises dans
toutes les obligations des traites, adoptent les clauses suivantes pour
la constitution de la Societe des Nations :
DOCUMENT 289 597
ARTICLE PREMIER.
Selon les clauses du present Facte, Faction des Hautes Parties
contractantes s'exercera par des reunions de leurs delegues, par des
reunions, a intervalles plus rapproches, d'un Comite executif ou
seront representes les £tats plus particulierement interesses dans les
questions en discussion et par un Secretariat international permanent
etabli dans la capitale de la Societe.
ART. 2.
Des Assemblees generales des Delegues se reuniront lorsqu'il y
aura lieu, dans le but de traiter des questions appartenant a la
sphere d'action de la Societe.
Les reunions generales des Delegues se tiendront dans la capitale
de la Societe ou en tel autre endroit juge convenable et ne com-
prendront pas plus de deux representants de chacune des Hautes
Parties contractantes.
Les Ambassadeurs ou Ministres des Hautes Parties contrac-
tantes auront qualite pour agir comme leurs representants.
Dans les reunions generales des Delegues, toutes les questions
de procedure, y compris la nomination des Comites charges de I'ex-
amen de questions speciales, seront reglees par I'ensemble des Dele-
gues, et une decision sera prise a la majorite des voix des membres
presents a I'Assemblee.
ART. 3.
Les representants des fitats adherant a la Societe, directement
interesses par des questions appartenant a la sphere d'action de la
Societe, se reuniront en Comite executif lors-qu'il sera juge
necessaire.
Les £tats-Unis d'Amerique, la Grande-Bretagne, la France,
ritalie, le Japon seront consideres comme directement interesses
dans toutes les questions appartenant a la sphere d'action de la
Societe.
Des invitations seront addressees a toutes les Puissances dont
398 DOCUMENT 289
les interets seront directement en jeu, et aucune decision, prise lors
d'une Assemblee, ne liera un fitat qui n'aurait pas ete invite a cette
reunion.
Ces Assemblees se tiendront dans tel endroit qui pourra etre
designe ou, en cas de desaccord, a la capitale de la Societe, et tout
sujet concernant les interets de la Societe ou portant sur des ques-
tions appartenant a sa sphere d'action ou qui pourraient affecter la
paix du monde, y sera traite.
ART. 4.
Le Secretariat permanent de la Societe se tiendra a ,
qui sera considere comme le siege de la Societe. Le Secretariat
comprendra les secretaires et le personnel necessaires, sous la direc-
tion generale et le controle d'un Chancelier de la Societe, qui sera
designe par le Comite executif et par lequel ils seront nommes, sous
reserve de I'approbation du Comite executif.
Le Chancelier remplira les fonctions de Secretaire dans toutes
les Assemblees generales des Delegues ou du Comite executif.
Les frais du Secretariat seront supportes par les fitats adherant
a la Societe sur la meme base que la repartition des frais de I'Union
Postale international entre ses membres.
ART. 5.
Les representants des Hautes Parties contractantes et les mem-
bres fonctionnaires (officials) de la Societe beneficieront des privi-
leges et immunites diplomatiques ; il sera accorde aux batiments oc-
cupes par la Societe, par ses membres (officials), ou par les repre-
sentants assistant a ses reunions, le privilege de rextraterritorialite.
ART. 6.
L*admission a la Societe d'fitats n'ayant pas signe le present
Facte necessite le consentement des deux tiers, au moins, de I'en-
semble des Delegues.
La Societe n'admettra aucun £tat qui ne se conformerait pas
DOCUMENT 289 399
aux princlpes que pourra etablir la Societe en ce qui concerne ses
forces navales et militalres ainsi que ses armements.
ART. 7.
Les Hautes Parties contractantes s'engagent a respecter et pre-
server contre toute agression exterieure I'lntegrite territorlale et
rindependance politique existante de tous les fitats adherant a la
Societe.
ART. 8.
Les Hautes Parties contractantes reconnaissent le principe que
le maintien de la Paix necessitera la reduction au minimum com-
patible avec la securite interieure des armements nationaux; et que
I'execution des obligations internatlonales aura a etre assuree par
Taction commune ; le Comite executif elaborera les plans appropries
permettant cette reduction. II se renseignera egalement quant a la
possiblllte d'abollr le service milltaire obligatoire dans le but d'y
substituer le systeme du volontariat, et aussi relativement a lequipe-
ment militaire et naval qu'il sera raisonnable de maintenir.
Les Hautes Parties contractantes reconnaissent egalement qu'une
libre et entiere publicite devra etre donnee en ce qui concerne les
questions relatives aux armements ainsi qu'aux programmes mili-
talres et navals nationaux.
ART. 9.
Toute guerre ou menace de guerre, qu'elle affecte directement
ou non i'une des Hautes Parties contractantes est ici declaree comme
interessant la Societe et les Hautes Parties contractantes se reservent
le droit de recourir a toutes mesures qui leur paraitront propres et
efficaces pour sauvegarder la paix des nations.
II est egalement ici declare et convenu que chacune des Hautes
Parties contractantes devra attirer Tattention de Tensemble des
Delegues ou du Comite executif sur toutes les circonstances qui, en
quelque lieu que ce soit, menaceraient de troubler la paix interna-
tionale ou le bon accord entre les nations sur lequel est fonde la paix.
400 DOCUMENT 289
ART. 10.
Les Hautes Parties contractantes conviennent que s'il venait a
s^elever entre elles des differends ne pouvant etre aplanis par les
precedes ordlnaires de la diplomatie, elles ne recourralent en aucun
cas a la force armee avant d'avoir soumis les questions et les faits du
litige a I'arbitrage ou a une enquete du Comite executif et seulement
trois mois apres le jugement des arbitres ou la decision du Comite
executif; elles ne pourront avoir recours a la force armee contre
un membre de la Societe qui s'en rapporterait au jugement des
arbitres ou a la decision du Comite executif.
ART. II.
Les Hautes Parties contractantes conviennent que lorsqu'il
s'elevera entre elles un differend ou une difficulte susceptible d'etre
soumis a I'arbitrage et ne pouvant etre regie par la diplomatie, elles
soumettront la question pleine et entiere a I'arbitrage et s'en tien-
dront de bonne foi au jugement rendu ou a la decision qui sera prise.
ART. 12.
Le Comite executif elaborera les plans pour la creation d'un
Tribunal international permanent; ce Tribunal, une fois constitue,
aura quallte pour entendre et juger toute question que les Parties
reconnaitront devoir etre soumlse a I'arbitrage en conformite de
Tartlcle precedent.
ART. 13.
S'il venait a s'elever, entre les fitats ayant adhere a la Societe,
quelque disaccord susceptible de conduire a une rupture, qui ne soit
pas soumis a I'arbitrage comme prevu ci-dessus, les Hautes Parties
contractantes conviennent qu'elles soumettront I'objet du litige au
Comite executif; n'importe laquelle des Parties en desaccord pourra
en aviser le Chancelier qui prendra toutes les dispositions pour qu'il
soit procede a une enquete et a un examen approfondis. A cet
effet les Parties conviennent de communlquer au Chancelier un etat
DOCUMENT 289 401
de leurs revendications ainsi que tous les faits et documents s'y
rattachant.
Lorsque les efforts du Comite executif tendront au reglement
du desaccord, un proces-verbal indiquant la nature du desaccord et
les termes du reglement et donnant les explications jugees utiles sera
prepare pour publication. Si le desaccord ne peut etre regie, un
rapport du Comite sera public faisant ressortir, avec tous les faits
et explications necessaires, les recommandations que le Comite con-
sidererait comme justes et appropriees au reglement du desaccord.
Si le rapport est approuve a runanimite par les membres du Comite,
n'etant pas parties au desaccord, les Hautes Parties contractantes
conviennent qu'aucun d'eux n'entrera en guerre avec une Partie
s'etant conformee a ses recommandations. Si ce rapport ne peut
etre approuve a I'unanimite des membres, il sera du devoir de la
majorite de faire une declaration, indiquant ce qu'ils croient etre
les faits de la controverse et contenant les recommandations qu'ils
considerent comme justes et appropriees.
Le Comite executif peut dans tous les cas, en vertu de cet article,
soumettre le differend a I'Assemblee des Delegues. Le differend
pourra ainsi etre soumis a I'Assemblee, a la requete de I'une ou
I'autre des Parties au desaccord. Dans tous les cas soumis a TAs-
semblee des Delegues, toutes les clauses de cet article relatives a
Taction et au pouvoir du Comite executif s'appliqueront egalement
a Taction et aux pouvoirs de I'Assemblee des Delegues.
ART. 14.
Dans les cas ou la Societe considererait que Tune des Hautes
Parties contractantes a rompu ou ignore les engagements pris par
elle selon Tarticle 10, cette partie sera ipso facto consideree comme
ayant commis un acte de guerre envers tous les autres membres de la
Societe, ce qui Texposera immediatement a la rupture de toutes rela-
tions commerciales ou financieres, a Tinter diction de toutes relations
entre ses citoyens et les citoyens de la Societe et a la cessation dans
402 DOCUMENT 289
la mesure du possible de toutes relations financieres, commerciales ou
personnelles entre ses citoyens et ceux des autres fitats, qu'ils soient
ou non membres de la Societe.
Dans ce cas il sera du devoir du Comite executif de specifier
I'importance des contingents militaires ou navals que chacun des
membres de la Societe devra fournir pour constltuer la force armee
destinee a proteger les engagements de la Societe.
Les Hautes Parties contractantes conviennent en outre qu'elles
s'entr'aideront en ce qui concerne les dispositions financieres ou
economiques qui seront prises aux termes de cet article pour reduire
au minimum les pertes et Inconvenients resultant des mesures pre-
scrites et qu'elles s'entr'aideront pour resister a des mesures prises
a I'egard de I'une d'elles par I'fitat qui a rompu ses engagements;
elles s'engagent egalement a permettre aux forces des Hautes Par-
ties contractantes qui coopereront pour proteger les engagements de
la Societe le libre acces de leur territoire.
ART. 15.
En cas de desaccord entre un £tat membre de la Societe et un
autre qui n'y aurait pas adhere ou entre plusieurs fitats n'etant pas
membres de la Societe, les Hautes Parties contractantes conviennent
que cet £tat ou ces £tats seront invites a devenir ad hoc membres
de la Societe; sur leur acceptation de cette invitation, les clauses ci-
dessus seront appliquees avec telles modifications qui seront jugees
necessaires par la Societe.
Des I'envoi de cette invitation, le Comite executif instituera une
enquete sur les faits et les causes du desaccord et conseillera telle
solution qui lui semblera la meilleure et la plus efficace en la circon-
stance.
Si une Puissance ainsi invitee a participer a la Societe refusait
de devenir membre et prenait une attitude agressive a I'egard d'un
£tat adherant a la Societe, ce qui pour un fitat adherant a la Societe
constituerait une infraction a I'article 10, les clauses de I'article 14
seront applicables a I'fitat ayant pris cette attitude.
DOCUMENT 289 403
ART. 16.
Les Hautes Parties contractantes coniient a la Soclete la surveil-
lance generale du commerce, des armes et munitions avec les pays
ou, dans I'interet commun, ce controle est necessaire.
ART. 17.
En ce qui concerne les territoires qui appartenaient autrefois a
I'Empire allemand ou a la Turquie, et qui sont habites par des popu-
lations encore incapables de s'assurer le benefice d'une administration
stable, les Hautes Parties contractantes conviennent que le bienetre
de ces populations constitue un depot sacre pour la civilisation et
impose aux fitats adherant a la Societe I'obligation de les aider et
les guider dans le developpement de leur administration. lis recon-
naissent que toute ligne de conduite, eu egard a F administration
et au developpement economique, devrait etre basee en premier lieu
sur les interets bien consideres des populations elle-memes, sur le
maintien du systeme de la "porte ouverte" et sur les memes facilites
pour toutes les Hautes Parties contractantes quant a I'emploi et au
developpement des resources economiques du territoire. Aucune
force militaire ou navale ne sera constitute par les habitants de ces
territoires en dehors de celle necessaire a la defense et a la police
interieure.
ART. 18.
Les Hautes Parties contractantes s'efforceront d'etablir et de
maintenir des heures raisonnables et des conditions humaines de
travail pour tous les individus dependant de leurs juridictions re-
spectives; elles exerceront leur influence en faveur de I'adoption et
du maintien d'un systeme semblable et des memes garanties partout
ou s'etendront leurs relations industrielles et commerclales. lis
nommeront egalement des commissions pour etiidier les conditions
de I'industrie et du travail au point de vue international et prendre
des decisions a ce sujet, y compris I'extension et ramelioration des
conventions en cours.
404 DOCUMENT 289
ART. 19.
Les Hautes Parties contractantes sont d'accord de ne faire aucune
loi interdisant le libre exercise des cultes ou y mettant entrave et de
n'etablir aucune distinction de droit ou de fait, a I'egard des per-
sonnes qui pratiqueraient une religion speciale, ou une croyance ne
portant pas atteinte a I'ordre public ou aux principes publics de
morale.
ART. 20.
Les Hautes Parties contractantes se mettront d'accord quant
aux dispositions qu'il conviendrait de prendre en vue d'instituer et
de maintenir la franchise du transit et un traitement equitable pour
le commerce de tous les fitats adherant a la Societe.
ART. 21.
Les Hautes Parties contractantes conviennent de faire enregis-
trer et publier sans delai par le Chancelier tout traite ou conven-
tion Internationale passee entre les £tats membres de la Societe.
ART. 22.
Les Hautes Parties contractantes sont d'accord individuellement
pour que le present Pacte abroge toutes obligations inter se qui
seraient en contradiction avec ses clauses; elles s'engagent solen-
nellement a ne prendre a Tavenir aucun engagement en contradic-
tion avec les clauses dudit Pacte.
Au cas ou Tune des Puissances signataires du present Pacte ou
admise par la suite dans la Societe se trouverait anterieurement liee
par certains engagements en contradiction avec les termes dudit
Pacte, il serait de son devoir de prendre des dispositions Immediates
en vue de se degager de ces obligations.
./'■
405
DOCUMENT 290
DRAFTING THE LEAGUE COVENANT'*
(For Release in American Papers of Sunday, Feb. 23.)
NOTE: The following material has been prei>ared to answer
many questions as to the procedure by which the Covenant of the
League of Nations was drawn up. Owing to its length, its release
has been set for the American papers of Sunday, February 23rd»
which will allow the use of reduced press cable rates. It is issued
for the confidential information of correspondents on the same
understanding as material given out verbally at the Conference and
with the express understanding that no statements included will be
ascribed to any member of the Mission or Government, who as-
sume no responsibility therefor.
During the past two weeks, meetings of nineteen men have
been held in Colonel House's room on the third floor of the Hotel
Crillon, the workshop of the American Commission to Negotiate
Peace. There the Commission on the League of Nations drew up
its Covenant.
There is nothing particularly impressive about Room 351. It is
the kind of reception room that may be found in many a French
hotel. It is large, high and decorated in the rather elaborate French
style. But whatever its appearance may be while it is being used
for everyday purposes, it assumed a wholly different look during
the meetings of the Commission. In the center of the room, a big
round table covered with red cloth. Around the table, nineteen
chairs for the nineteen members of the Commission. Slightly be-
hind yet scattered through this circle of seats, a number of other
chairs for French and English translators. In the comers, three
or four desks, and around the walls occasional chairs for any secre-
taries whom the members might care to bring with them. All in
a. Author, W. H. Shepardson. See Diary, p. 106, and Memorandtjra Regarding
the Covenant, p. 350.
406 DOCUMENT 29O
all, the tables might have been laid for a meeting of the Cabinet
or an American board of directors.
In this room the Commission met ten times during eleven days.
They came together in the morning, afternoon or evening at hours
which would not conflict with the program of the Peace Conference
itself, whose work envisaged their own, or with that of the Su-
preme War Council, then engaged upon pressing questions relating
to the renewal of the Armistice. It might be figured out that
the meetings averaged three hours in length ; but it is hardly appro-
priate to speak of averages in this connection. No time was set
by the Commission for the termination of the day's work. There
was a job to be done, and a man's own time was a secondary consid-
eration. Nobody looked at the clock.
It appears inconceivable that a constitution of the League of
Nations could have been drawn in thirty hours. It was done, but
the bald statement is misleading, for it fails to take certain things
into account. It says nothing, for instance, of a single expedient
by which the task of the Commission was cut clearly in half.
Whether one spoke in English or in French, it made no difference.
As he talked there might be heard the low hum of interpreters trans-
lating his remarks word by word and phrase by phrase. Every
moment of the thirty hours was made to work, and no time was
lost in the slow but prevailing process of retranslation.
It fails likewise to reckon in all the thought which had previously
been given to the subject. Each one of the statesmen who sat
around the table had formulated definite ideas on the subject, and
came to the conferences with an illuminated and active mind. Even
before America's entry into the war. President Wilson had stood
before the Senate and had advocated the formation of a League of
Nations. During the war he had developed his plan in long con-
versations with his closest advisors. After the Armistice he had
come to Europe, the first president to leave the United States, to
DOCUMENT 290 407
urge the consideration of the League as the first and basic problem
of the Peace. Colonel House sat beside him at the table.
Lord Robert Cecil, with his scholarly mind, his practical sense
and his large vision, was ably seconded in presenting the point of
view of the British Empire by General Smuts, the great Boer
leader of other days, a member of the British War Council and
the author of a widely read pamphlet on the League idea. Leon
Bourgeois, well advanced in years of service at the Hague Confer-
ences in the interests of peace, had with him Larnaude, Dean of the
Faculty of Law at the Paris School of Law. Orlando, Italy's vivid
prime minister and an eminent jurist as well, had Senator Sclaloja
as his colleague in expressing the mind of the Government at Romej
while Baron Makino, Japanese Foreign Minister, and Viscount
Chlnda, her ambassador at London, contributed the keen and quiet
opinion of the Far-Eastern country.
Though these five Powers were each represented by two mem-
bers on the Commission, its deliberations were not dominated by
their views. There also sat down to the table Hymans, the Belgian
Foreign Minister; Senator Pessoa of Brazil; V. K. Wellington
Koo, China's Minister at Washington; Kramaf, Prime Minister
of the Czecho-Slovak Republic; Venlselos, Prime Minister of
Greece; DmowskI, President of the Polish National Committee;
Jayme Batalha Rels, Portuguese Minister to Petrograd; Diamandy,
Minister Plenipotentiary of Roumania, and Vesnitch, Serbian Min-
ister at Paris. They Included representatives of the Far East, South
America, and the oldest and the newest States of Europe. This
striking group of statesmen, so keenly interested that they presented
an unbroken record of attendance at the meetings, contributed to
the discussions a force and vision which rivalled that of the Greater
Powers.
The meetings were business-like to a degree. The members in-
variably came together on the hour, exchanged a word of greeting
as they made their way to their seats, took the documents of the
408 DOCUMENT 29O
day out of their portfolios, and proceeded with the next article.
Each of them found on the table before him all new papers upon
which discussion might depend. Every day, as the Commission
made progress through the draft, there was laid at each place a
revised copy indicating just what had been accomplished on the day
before. If there were amendments to be proposed by any member,
he saw to It that they were typewritten and distributed so that each
of his colleagues might examine their merits in advance.
The meetings were marked by extreme simplicity. Diplomatic
dress had disappeared with the diplomacy of the past. Each man
wore what was convenient — dinner-coat, morning-coat or business
suit — and the business suit prevailed. There was none of that
sense of the overwhelming significance of the task which is some-
times the death of decision. They went about the matter in a com-
monplace way.
There were no orations. There was no spinning out of useless
technical distinctions. Plain speaking prevailed. From the first
it was agreed that the meetings should consist of informal inter-
changes of Ideas of which no stenographic report was to be kept.
In fact, it was not until the third meeting that Secretaries were
named, and even then with instructions to record only amendments
proposed, conclusions reached, and a brief analysis of the argu-
ments in order that the trend of thought might be clear. The men
wanted to think aloud. Their work was one which called for the
frankest and freest examination of all phases of the project. They
wanted to shake off the reticence which Is provoked by the presence
of the court-stenographer. They gave up the privilege of perpet-
uating their words in order that they might speak with absolute
freedom.
President Wilson presided over every meeting except the last.
He induced discussion where it was needed. He checked It when
It ran too far or became involved In technicalities. He was sym-
pathetic toward every view put forward. He was decisive when
DOCUMENT 290 409
he spoke for the United States. Throughout the meetings he se-
cured the delicate balance of practical good sense. At one moment
when Imagination had led the Commission far into the future, a
smile came over his face as he remarked, "Gentlemen, I have no
doubt that the next generation will be made up of men as intelli-
gent as you or I, and I think we can trust the League to manage its
own affairs." And the Commission came back to the thing in
hand.
The first meeting, that of the 3rd of February, was very brief.
The Commission came together; the President spoke a few words
and laid before them a draft plan which they agreed to use as the
basis of discussion. So day after day the Draft was held up to
the light and criticised and amplified. On the evening of February
1 2th, at the end of the eighth meeting, the first reading was com-
pleted.
Though the project emerged unchanged in principle, the draft
had been altered in many details and there were before the Com-
mission various proposed amendments and changes In phraseology.
It was decided to put the Covenant into the hands of a Drafting
Committee composed of MM. Lamaude, Lord Robert Cecil, Veni-
selos and Vesnitch for a thorough overhauling.
Late the following evening their work was finished, and the
printing press was busy all through the night so that the amended
draft might be on the table the next morning. In addition to
the satisfaction of a job well done, the American soldiers who set
the type and corrected proof and ran the press will treasure the
letter of thanks which the President sent them before he sailed.
The second reading began on Thursday at ten o'clock, but by one,
only the first seven Articles had been finally adopted. Perhaps
with the assurance that the 13th could not fail to mark another
momentous event, the President excused himself and left to attend
a critical meeting of the Supreme War Council that afternoon at
the Quai d'Orsay.
41 DOCUMENT 29O
The Commission resumed their work at 3 -.30 in the afternoon
under the leadership of Lord Robert Cecil. One by one they took
up the remaining Articles; one by one they were passed upon. At
7 148 Lord Robert, sitting low in his chair and holding the lapels
of his coat, read the Twenty-sixth Article :
"Amendments to this Covenant will take effect when
ratified by the States whose representatives compose the
Executive Council and by three-fourths of the States whose
representatives compose the Body of Delegates."
"Is there any objection to this Article?" He waited a moment.
"If not, it is adopted. Gentlemen, our work is done. The Presi-
dent of the United States will report our conclusions to a plenary
session of the Conference tomorrow."
They left the room.
411
DOCUMENT 291
Secretary's Notes^ of a Conference Held in Colonel House's Rooms
at the Hotel Crillon, Paris^ on Monday, February 3rd, 1919
at 2:30 p. m. to Draft a Plan for the Lea^e of Nations
Present:
United States of America
President Wilson
Colonel House
British Empire
Lord Robert Cecil
Lt. General Hon. J. C, Smuts
France
M. Leon Bourgeois
M. Lamaude
Italy
M. Orlando
M. Senator Scialoja
Japan
M. Viscount Chlnda
M. Otchiai
Belgium
M. Hymans
Brazil
M. Epitacio Pessoa
China
Dr. H. E. Wellington Koo
Serbia '
M. Vesnitch
Portugal
M. Jayme Batalha Reis
President \yilson urged the great importance of the present
undertaking, the most difficult thing ever undertaken in international
a. See Diary, p. 106, and Memorandum Regarding the Covenant, Vol. I, p. 3S4.
412 DOCUMENT 29 1
relations. It is intolerable to have a situation presented such as
existed at the beginning of this war. The great nations did com-
bine against the Central Empires. By so doing they became con-
scious of their common interests. A basis was laid for the League
of Nations. The League of Nations is no longer optional; it is
compulsory. The constitution for it must be thought out by the
delegates. The League must not only function but must also accom-
plish the objects foreseen for it.
It has been studied for some time theoretically. The students
must now address themselves to a practical plan rather than a
theoretical one. Plans have been formulated by various nations.
There is no idea that the nations preparing them will fight for their
own particular plans. They are all for a common purpose. There
have been informal conversations which have shown that there is
accord. At a meeting of the President, Colonel House, Lord Rob-
ert Cecil and General Smuts it was suggested that the various plans
be reduced to one simple skeleton. This has been done. The Presi-
dent suggested that this draft thus made be taken piece by piece
and discussed. He urged that the main thing was to get some-
thing definite right away and then to make progress.
M. Leon Bourgeois thought that it would be difficult to pro-
ceed until an opportunity had been offered to examine the draft.
Signor Orlando agreed to discuss the draft that had been arrived
at in the informal conversations. He further agreed that it should
be discussed first in a general manner and then specifically. He
thought that it should be translated into French and that the dele-
gates should be allowed twenty-four hours to study it.
M. Leon Bourgeois agreed with Signor Orlando in regard to
the discussion of general principles. He then said that if these meet-
ings were to be more than formal that a secretariat of the com-
mission should be presented.
Lord Robert Cecil thought that there had already been a great
deal of discussion and that he thought the commission should get
■'_/'
DOCUMENT 291 413
down to details. He did not favour meeting today to arrange
formalities, tomorrow for general discussion and the next day for
details. The whole world is watching what is taking place in this
commission.
President Wilson said that this was called an informal meeting
for two reasons: first, there was no time to organize; second, if
the meetings are formal with secretaries each day's proceedings
will be the subject of discussion. The task of this commission is
much like that of the Commission that drew up the constitution of
the United States. The proceedings of that body were withheld
from the public until its whole work was accomplished. The Presi-
dent hopes this commission will likewise proceed in a sufficiently
informal manner to safeguard its processes. It was, therefore,
called informal in order to keep its proceedings from general dis-
cussion. The President feels strongly on this subject. The frank-
est discussion Is required.
M. Hymans wanted a general discussion which needs not neces-
sarily be formal. He did not ask for delay but believed that time
should be given to read over the various drafts and study them.
M. Leon Bourgeois stated he did not mean by an organization
of the secretariat that the proceedings of the mission should be
given to the public, but that the secretaries should be present for
the purpose of assisting the commissioners.
He believed that the consideration of the text of the draft
article by article should be put over for a day until an opportunity
had been afforded for studying it. He believed that the discussion
of it, article by article, should be preceded by a general discussion.
Lord Robert Cecil saw no advantage in a general discussion
when no differences of opinion had been shown to exist.
Signor Orlando thought a general discussion unnecessary be-
cause the powers have come to an understanding on general princi-
ples in the informal conferences. He thought that the mission could
pass to a discussion of the articles.
M. Hymans suggested that without having a general discus-
414 DOCUMENT 291
sion if any member wished to make a general declaration of princi-
ples he should be permitted to do so.
M. Vesnitch raised two questions: first, as to the representa-
tion of the small nations in the League of Nations, and, second, as
to whether the organization should be called the "Society of Na-
tions" or the "League of Nations." He thought that the word
"League" implied force.
Dr. Wellington Koo wished to know the feeling of the commis-
sion as to furnishing the nations not represented with copies of the
plans discussed.
President Wilson objected to this on the grounds that it would
lead to publicity.
Lord Robert Cecil called attention to the fact that M. Vesnitch's
discussion on the representation of the smaller nations might well
have been arrived at under the detailed discussion of Article 3 of
the draft rather than under the general discussion of principles.
President Wilson stated that the question of representation of
the small nations was one of the most delicate ones to be dealt
with. In case of war the great nations would have the greater
burden in upholding any member of the League who might be at-
tacked. Of course, the smaller nations would also be interested
but would not be called upon as heavily as the greater nations.
Signor Orlando suggested taking up the subject raised by M.
Vesnitch as to a name. He thought that the word "League" was
already associated with the project. He also thought that the
word "League" had in It the idea of something binding and stated
that he preferred it to the word "Society."
M. Leon Bourgeois preferred the word "Society" for the rea-
son that historically speaking the word "League" brings with it the
idea of strife. Leagues have always been formed with the idea
of an enemy before one. He thought that the idea of a society
meant that the organization was not against anyone.
M. Jayme Batalha Rels suggested calling the organization a
"Society of States" rather than of nations.
DOCUMENT 291 415
Lord Robert Cecil thought that the difference between the words
"Nations" and "States" w.as a very small one.
He asked what suggestion should be given to the Press about the
meeting.
President Wilson suggested the following: "We met to com-
pare views as to how to proceed and decide upon a procedure which
would advance the matter."
M. Leon Bourgeois went into a discussion as to the order in
which nations should be admitted into the League. He thought
that the Allied Nations should be admitted first and later the neu-
tral nations. After the enemy nations have complied with all the
terms which will be required of them by the Treaty of Peace they
could be considered as free nations and might be admitted.
M. Hymans and M. Jayme Batalha Reis argued that more
than twenty-four hours' time should be allowed in order to permit
the delegates to read over the various plans and study them.
Signor Orlando urged the necessity of hurrying.
M. Leon Bourgeois asked time to have the plans translated, to
study them and to consult with his government.
President Wilson stated that if the delegates consulted with
their governments they would not arrive anywhere. There is no
use consulting one's government about each particular point. The
duty of the delegates is to form a plan and to present it to their
governments.
The meeting adjourned to meet at 8:30 p.m. February 4th at
the same place.
The following communique was issued to the press:
"The commission met to compare views as to procedure
and to arrive at a method of procedure which would facili-
tate progress.
"It was agreed that an accord in principle had! been
reached by the resolution previously passed by the Confer-
ence, and that discussion should proceed accordingly at the
next meeting, which will be held at the Hotel Crillon to-
morrow evening at 8 o*clock."
4i6
DOCUMENT 292
The C&mmission of the League of Nations^
Meeting of February 3, 1919,
At The Hotel Crillon at 2:30 p. m.
Present:
United States of America
President Wilson
Colonel House
British Empire
Lord Robert Cecil
Lt. General Hon. J. C. Smuts
France
M. Leon Bourgeois
M. Lamaude
Italy
M. Orlando
M. Senator Scialoja '
Japan
M. Viscount Chinda
M. Otchiai
Belgium
M.. Hymans
Brazil
M. Epitacio Pessoa
China
Dr. H. E. Wellington Koo
Serbia
M. Vesnitch
Portugal
M. Jayme Batalha Reis
a. See Diary, p. 106, and Memorandum Hoarding the Covenant, Vol. I, p. 354.
^
DOCUMENT 29:2 417
The Commission met for the first time. President Wilson took
the chair.
President Wilson addressed the Commission and laid before
the meeting a Draft Covenant, the text of which is contained in the
Annex, which it was agreed should form the basis of the Com-
mission's deliberations.
A general discussion followed dealing with the procedure to
be adopted.
The meeting adjourned to meet at 8.30 p. m. February 4th at
the same place.
(Joint Secretaries of the Commission appointed February 5th.)
4i8
DOCUMENT 293
Letter of Mr. Grew
American Commission
to Negotiate Peace.
Paris, February i, 19 19.
My dear Mr. Miller:
I take pleasure in informing you that at a meeting on January
31 of the American Commissioners, a recommendation that one set
of the secret notes of the informal meetings of the four Allied
Great Powers and the United States at the Quai d'Orsay should
be sent to you was approved. Accordingly every effort will be made
hereafter to see that you are supplied promptly with the notes above
mentioned.
At my earliest opportunity I shall also see that you are sup-
plied with a complete file of the notes which have been thus far
prepared.
In order to guard against leakage or loss, every precaution is
taken to insure the safe delivery of these secret documents to the
persons addressed, and I should be grateful if you would inform
me of the name of any person or persons in your office whom you
will authorize to receive them for you in the process of distribution.
Very sincerely yours,
J. C. Grew,
Secretary.
Mr. David Hunter Miller,
4 Place de la Concorde,
Paris.
a. See Diarj'i P- 107. For reply see Document 294.
419
DOCUMENT 294
Letter to Mr, Grew*
Paris, 3 February 19 19.
My dear Mr. Grew :
I thank you for your letter of February ist, informing me that
at a meeting of the American Commissioners a recommendation
that one set of the secret notes of the Informal meetings of the Four
Allied Great Powers and the United States, at the Quai d'Orsay,
should be sent to me, was approved.
I note that my file of these papers will be completed, and, in-
deed, some of them have already been received.
Pursuant to your request I append the nam€S of the follow-
ing persons in my office whom I have authorized to receive these
papers for me in the process of distribution :
Lieutenant J. F. Manly
Mr. Hall Kinsey
Mr. Malcolm D. Simpson
Mr. J. J. McNemey
Very sincerely yours,
David Hunter Miller.
Honorable Joseph C. Grew,
Secretary, American Commission
to Negotiate Peace,
Hotel de Crillon.
a. See Diary, p. 107. This is the reply to Document 293.
420
DOCUMENT 295
AMERICAN COMMISSION TO NEGOTIATE PEACE
U. S. COURIER SERVICE.*
Berlin, 3 February 19 19
Summary of First Reports From Officers Sent to Berlin With Capt.
Gherardi to Establish Courier Service Between Germany
and Paris
/. Observations in Cologne.
Cologne is occupied by the Second British Army under conm-
mand of General Plummer. In the city itself are the Scots and
Irish Guard Regiments, the Grenadier and the Coldstream Guards.
Col. David H. Biddle is the American Liaison Officer at Second
Army Headquarters, Hotel Excelsior, Cologne.
Accommodations can be had at the British E. F. C. Club at
the station. The Germans in Cologne appear to be in an unhealthy
condition. The children especially appear to be "pinched."
The British regulations are that all Germans must be off the
streets by 9 :oo P. M. Restaurants are closed to them at 8 :oo P. M.
All Germans in uniform are required to salute all Allied officers.
It is understood that these rules are more stringent than those in
force at Coblenz. The stores appear to be prosperous. Many cigar
stores were observed but there is a shortage of food and nothing
but light wines can be obtained at the cafes. The population ap-
pears to be apathetic and depressed.
//. En Route from Cologne to Berlin.
The train (Spa-Cologne-Berlin Express) is operated under the
terms of the armistice. It has a sleeping car but no dining car.
Only tea and coffee can be obtained on it. Schedule time between
Cologne and Berlin — about 14 hours.
The route of the train from Cologne passes through Hagen,
Arnsberg, Gottingen, Magdeburg and Potsdam.
a. See Diary, p. 107.
DOCUMENT 295 421
///. Observations in Berlin,
Aside from a few attempts at "jostling," the party met with no
discourtesy.
There are, apparently, aside from those who have been living
there for many years, less than a dozen Americans in Berlin, exclu-
sive of the party of the American Commission to Negotiate Peace.
General Harries has a party of about six persons. Mr. W. H. Hus-
bands of the American Red Cross has a small party and there are
a few newspaper reporters.
It is said that there are about 1,000,000 men under arms in
Germany. The officers are elected by the Soldiers' Council (So-
viets), but are apparently always from the officer class. Almost
none have been elected from the ranks.
It is commonly said that the ability of the government to hold
the people depends upon its ability to feed them. There has been
no serious trouble since the first week in January.
The Americans are all getting "passes" for Berlin, without
which it is not advisable to circulate in the city to any great extent.
Outside of the dance halls, there appears to be little danger. of
getting into serious trouble. Allied officers can go to the Opera
and the theatres unmolested. Workmen occupy the Royal Box at
the Opera.
There Is a serious outbreak of influenza in Berlin. About 2000
deaths from it are reported per day.
There is said to have been a slight change during the past
two weeks in the attitude of the people tending toward a reversion
to the "Prussian Spirit."
Food Is scarce and prices are high.
IF. Schedule of Routes between Paris and Berlin.
(i) Via Nancy, Metz, Treves and Cologne. (One change at
Treves.) Schedule Time — 44 hours. Actual time by first courier —
49 hours.
422 DOCUMENT 295
Leave Berlin 8:47 P.M. Arrive Cologne 10:44 A.M.
Leave Cologne 7:22 P.M. Arrive Paris 5:00 P.M.
Leave Paris 8:15 P.M.
Leave Cologne 12:49 A.M. Arrive Berlin 2:00 P.M.
(2) Via Brussels, Charleroi, and Cologne. (Change at Brus-
sels, Charleroi and Cologne.) Time — 60-66 hours.
Leave Paris 6:45 A.M. Arrive Brussels 10:30 P.M.
Leave Brussels 7:30 A.M. Arrive Charleroi 10:30 A.M.
Leave Charleroi 4:00 P.M. Arrive Cologne 5:00 A.M.
Leave Cologne 12:49 A.M. Arrive Berlin 2:00 P.M.
Return trip information not yet available.
(3) Via Berne, and Munich. Time — 92 hours.
Leave Paris 8:25 P.M. Arrive Berne 4:00 P.M.
Leave Berne 6:00 A.M. Arrive Munich 11:30 P.M.
Leave Munich 7:25 P.M. Arrive Berlin 10:30 A.M.
Officer Courier Service between Paris and Berlin, via Cologne,
operated three times per week, will be established at once. The
schedule will be announced in the next courier bulletin. The Head-
quarters of the Courier Service in Berlin are at present in the
Esplanade Hotel, Bellevue Strasse. They will probably soon be
transferred to the building of the old American Embassy.
Amos J. Peaslee,
Major, U. S. A.
Director of U. S.
Courier Service.
AJP/HJH.
^r
4^3
DOCUMENT 296
Report of PoIish-Czecho-SIovakiaii Agreement*
Feb. 3, 1 9 19.
The Representatives of the Great Powers, having been informed
of the conflict which has arisen between the Czechs and Poles in the
Principality of Teschen, in consequence of which the mining district
of Ostrawa-Karwin and the railway from Oderberg to Teschen
and Jablungkau has been occupied by the Czechs, have declared
as follows:
In the first instance they think it necessary to remind the nation-
alities who have engaged to submit the territorial questions which
concern them to the Peace Conference, that they are, pending its de-
cision, to refrain from taking as a pawn or from occupying the ter-
ritories to which they lay claim.
The representatives take note of the engagement by which the
Czech Delegates have declared that they were definitively stopping
their troops on the line of the railway which runs from Oderberg
to Teschen-Jablungkau.
Pending the decisions of the Peace Congress as to the definitive
assignment of the territories that part of the railway line to the
North of Teschen and the mining regions will remain In the occupa-
tion of Czech troops while the southern section of the line starting
from and including the town of Teschen down to Jablungkau will
be entrusted to the military supervision of the Poles.
The undersigned consider it indispensable that a Commission
of Control should be immediately sent to the spot to avoid any con-
flict between the Czechs and Poles in the region of Teschen. This
Commission, apart from the measures that it will have to prescribe,
will proceed to an enquiry on the basis of which the Peace Confer-
ence may form its decision in fixing definitively the respective fron-
a. See Diary, p. 107.
424 DOCUMENT 296
tiers of the Czechs and Poles in the contested zone. The seat of
this Commission will be situated in the town, of Teschen,
In order to seal the Entente between two friendly nations which
should follow a policy in full accord with that of the Allied and
Associated Powers, the representatives of the Great Powers register
the promise of the Czech representative that their country will put
at the disposition of the Poles all its available resources in war
material and will grant to them every facility for the transit of
arms and ammunition.
The exploitation of the mines of the Karwin-Ostrawa district
will be carried out in such a way as to avoid all infraction of
private property while reserving any police measures which the
situation may require. The Commission of Control will be empow-
ered to supervise this and if necessary to secure to the Poles that
part of the output which may be equitably claimed by them to meet
their wants.
It is understood that the local administration will continue to
function in accordance with the conditions of the pact of the 5th
November, 19 18, and that the rights of minorities will be strictly
respected.
Pending the decision of the Peace Congress, political elections
and military conscription will be suspended in the Principality of
Teschen.
No measure implying annexation of all or of a part of the said
Principality either to the territory of Poland or of Czecho-Slovakia
taken by interested parties shall have binding force.
The Delegates of the Czech Nation engage to release immedi-
ately with their arms and baggage the Polish prisoners taken dur-
ing the recent conflict
WooDROw Wilson
D. Lloyd George
V. E. Orlando
G. Clemenceau
Roman Dmowski
E. Benes
425
DOCUMENT 297
Memorandum of Transmittal*'
Paris, 3 February 1919
From: David Hunter Miller and
Major James Brown Scott,
Technical Advisors.
To : Honorable Joseph C. Grew, Secretary.
Subject: Documents regarding the Revision of Treaties of April
19, 1839.
1 . In accordance with your request, we have the honor to hand
you herewith for transmission to the Office of the Secretary of
State, a Summary'* of the important points raised in these docu-
ments,*^ together with a statement of our views upon the juridical
aspect of the subject matter thereof.
2. The documents regarding the revision of the Treaties of
April 19, 1839, are returned herewith.
David Hunter Miller,
James Brown Scott,
Technical Advisors.
Enclosures.
a. See Diary, p. 108.
b. Document 301.
c Documents 299, 300, 301.
4^6
DOCUMENT 298
CONFIDENTIEL
Revision des Traites du 19 Avril 1839«
Le 26 juillet 19 17, a la seance de cloture de la Conference des
Allies reunie au Ministere des Affaires Etrangeres a Paris, le Min-
istre des Affaires Etrangeres de Belgique s'exprima comme suit:
'*Le statut international etabli en 1831-1839 pour gar-
antir la securite de la Belgique est devenue caduc par la
violation du traite collectif par deux de ses signataires. II
doit etre revise. A cet effet, il est desirable que les puissances
garantes restees fideles a leurs engagements reunissent bientot
leurs representants pour examiner avec la Belgique les stipu-
lations du traite nouveau qui doit remplacer I'ancien * * *
et deliberer sur nos revendications;"
AInsi, la resolution de la Belgique de poursuivre a la conclusion
de la Paix la revision des traites du 19 avril 1839, fut portee a la
connalssance de tous les gouvernements allies des 19 17.
Au lendemain de I'armistice, le gouvernement du Roi chargea
ses representants a Londres et a Paris, de rappeler cette decision aux
gouvernements aupres desquels ils sont accredites.
Plus recemment, donnant suite a I'intention qu'il avait exprimee
en 19 17, il invlta les memes gouvernements a deliberer avec lui au
sujet de la revision des traites de 1839.
Le 19 avril 1839 ^^^ grandes puissances de I'epoque (Autrlche-
Hongrie, France, Grande-Bretagne, Prusse et Russie) imposerent a
la Belgique et a la Hollande un systeme conventionnel par lequel
1° — elles fixaient les limites territoriales des deux Etats en par-
tageant entre eux les provinces qu'elles avaient reunies en 18 15
pour en former le royaume des Pays-Bas.
a. This is a Belgian Memorandum. With it were Documents 299 and 300. For
a summary of this paper, see Document 301. See also, Diary, p. 108.
DOCUMENT 298 427
2° — elles reglaient une serie de questions Interessant la Belgique
et la Hollande, telles que le partage des dettes et le regime des fleuves
qui separaient ou traversaient les deux nouveaux royaumes.
3° — elles imposaient a la Belgique la neutralite permanente.
4° — elles plagaient sous leur garantie I'ensemble des arrange-
ments conclus sous leurs auspices entre la Belgique et la Hollande.
Le systeme fut consacre par trols conventions principals dont
une signee par les cinq grandes puissances avec le Roi des Pays-Bas,
la seconde par le Roi des Pays-Bas avec le Roi des Beiges, la
troisieme par le Roi des Beiges avec les cinq puissances.
Toutes ces conventions furent imposees a la Belgique comme a
la Hollande. Le trcdte hollando-belge pas plus que les autres ne
fut le resultat d'une libre negociation entre ces deux Etats. Sa con-
clusion ne fut acquise qu'au prix d'une pression exercee sur Tun et
sur I'autre par le concert des puissances.
Pendant pres de huit ans — de 1831 a 1839 — la Hollande
resista a leur volonte. Quant a la Belgique, elle ne s'inclina devant
les exigences de TEurope qu*avec de vives repugnances. Elle
n'accepta la neutralite obligatoire, consideree par elle a juste titre
comme une limitation de la souverainete, et qui lui paraissait une
humiliation, que parce qu'elle fut induite a penser que ce statut la
mettrait definitivement a Tabri du danger d'etre entramee dans des
confiits armes entre les grandes puissances. Elle ne se resigna au
demembrement de son territoire que parce qu'en s'obstinant a de-
fendre son integrite territoriale contre la volonte de FEurope, elle
risquait de provoquer une conflagration generale. Les protestations
du Parlement beige et du Roi Leopold Premier lorsqu'il signa les
traites de 1839 ^" ^^^^ ^^'^' belles des organes autorises des pro-
vinces arrachees a la Patrie, ne sont pas moins formelles et decisives
a cet egard.
Les sacrifices de territoires et de souverainete consentis par les
Beiges le furent en vain. Une guerre eclatant entre les grandes
puissances pour des causes auxquelles la Belgique etait etrangere a
428 DOCUMENT 298
ravage notre pays. AInsI s'est abattu sur notre peuple le peril meme
dont la neutralite perpetuelle devait a tout jamais le preserver.
Le systeme a done fait faillite et les motifs qui ont determine
les Beiges a accepter les trattes de 1839 ont cesse d'exister.
L'evenement de 19 14, le fait que le fleau de la guerre a ete
dechaine sur nos provinces par deux des puissances qui nous avaient
garantis contre cette calamite, a remis en question I'ensemble des
arrangements qui n'avaient ete consentis par nos peres que dans le
but d'assurer la paix.
Les notes^ historique et juridique qui accompagnent le present
memoire montrent, pour autant que ce soit necessaire, quelles furent
les pensees inspiratrices des auteurs du systeme conventionnel de
1839; leur lecture permettralt a ceux qui eprouveraient quelques
doutes a cet egard, de se convaincre de I'unite de ce systeme et de
Timpossibillte de considerer aucune partie des accords dont il s'agit
comme etant aujourd'hui a I'abri de la necessite d'une revision.
Les evenements de 1830 avaient oblige les Puissances signataires
des traites de 18 15, relatifs a la constitution du royaume des Pays-
Bas, de reviser ces traites. La guerre de 19 14 a place ces puissances
dans une situation, analogue. EUe a porte aux conventions du 19
avril 1839 une atteinte si profonde que le systeme dont ces conven-
tions formaient la base et etaient 1' expression s'est ecroule: ce systeme
doit faire place a un systeme nouveau.
Deux des puissances signataires des accords de 1839, ont viole
directement leurs engagements; I'une au moins, TAutriche-Hongrie
a cesse d'exister; toutes deux sont vaincues et reduites a mercl.
Une troisieme, la Russie, est defaillante et incapable soit de
s'acquitter de ses obligations soit de discuter a leur sujet. II n'y a
pas a se preoccuper de ces trois puissances. La revision des traites de
1839 doit se faire sans elles, sinon contre deux d'entre elles.
Le systeme qui doit remplacer celui de 1839 ^^^^ ^^^^ arrete de
commun accord par la France et la Grande-Bretagne avec la Bel-
a. Documents 299 and 300.
DOCUMENT 298 429
gique d'une part, avec la HoUande d'autre part. Des Taccord
realise il pourra €tre notifie aux Puissances ennemies vaincues et a
la Russie pour autant que celle-ci survive a la crise ou elle se debat.
Le traite impose a la Belgique en 1839 a ete un traite de defaite.
Les Grandes Puissances qui avaient cree le royaume des Pays-
Bas en 18 15 pour constituer un element definitif d'equilibre et de
paix dans I'Ouest de I'Europe, avaient, des le moment oil elles
s'etalent vu obligees de reconnaitre la separation de la Belgique et
de la Hollande, eprouve plus de confiance dans le Roi Guillaume
(proche parent des souverains de Prusse et de Russie) que dans ses
sujets beiges revoltes.
La Hollande avait joui d'une independance complete pendant
plus d'un siecle et demi. Elle avait fait ses preuves de maturite
politique.
La Belgique qui, a vrai dire, avait forme longtemps avant la
conquete frangaise, une entite politique distincte des grandes puis-
sances auxquelles une simple union de couronnes I'avait rattachee,
avait cependant vecu sous un regime tel qu'on pouvait se demander
dans les conseils de I'Europe comment elle userait et s'accommoderait
d'une entlere autonomie.
Apres la courte et malheureuse compagne des 10 jours d'aout
1 83 1, les defiances des grandes puissances envers les Beiges, tout au
moins en ce qui touchait leurs capacites militaires, s'accentuerent.
Sous I'infiuence de ces sentiments la Conference de Londres
decida de fortifier la moitie hoUandaise de I'ancien royaume des
Pays-Bas au detriment de la moitie beige, malgre la protestation
unanime des habitants de celle-ci.
Le Luxembourg oriental avec la forte position strategique de
son chef-lieu fut donne au Roi de Hollande et rattache, pour plus
de surete encore, (car le danger militaire de I'epoque semblait etre
du cote de la France) a la Confederation Germanique qui y mit une
gamison prussienne.
430 DOCUMENT 298
Le Limbourg oriental avec I'importante place forte de Maes-
tricht, clef mlUenaIre du passage de la Meuse, fut attrlbue au Roi
Gulllaume et rattache de meme a la Confederation Germanique.
Enfin tous les arguments que les Beiges firent valoir pour obtenir
la rive gauche du Bas-Escaut (Flandre Zelandaise) furent systemati-
quemcnt ecartes et cc territoire laisse a la HoUande bien qu'il cut
appartenu jadis a la Flandre, qu'il lui eut ete reuni sous le regime
frangais et que la nature, la geographie et la strategie elemen-
taires eussent recommande d'attribuer a la Belgique ce complement
logique de ses provinces flamandes.
La neutralite conventionnelle et la garantie des Grandes Puis-
sances devaient former compensation aux faiblesses de la constitution
territoriale que I'Europe ne craignit point d'imposer a la Belgique.
La guerre de 19 14-19 18 a mis en lumiere les erreurs de 1839:
deux des Puissances garantes de I'independance et de la neutralite
beiges ont porte la guerre et la devastation dans nos provinces
precisement parce que nous refusions de trahir les devoirs de la
neutralite, qu'elles-memes nous avaient dictes. Dans le but d'envahir
la Belgique d'abord et la France ensuite, elles se sont emparees
sans coup ferir du territoire neutre et desarme du Grand Duche de
Luxembourg; cette vieille province beige enlevee a la Belgique dans
le dessein de mieux assurer la defense commune devint le champ
de concentration des armees qui se preparaient a envahir notre terri-
toire. Anvers ne put etre secourus par les forces des pays associes
a la Belgique parce que la souverainete de la Hollande sur les deux
rives de I'Escaut et la neutralite de ce pays empechaient le passage
par le fleuve de troupes ou de materiel de guerre.
La Hollande qui devait etre la moitie la plus solide de la Bar-
riere et qui avait regu a cet effet tous les territolres enleves ou
refuses a la Belgique n'a pas joue le role en vue duquel elle avait
ete constitute. Elle a pu rester jusqu'au bout a I'ecart du conflit
mondial, tandis que la Belgique devait defendre contre la Germanie
entiere son territoire strategiquement mutile et anormalement faible
DOCUMENT 298 431
et soutenir tout le fardeau des devoirs imposes en commun a elle et
a la Hollande par les traites de 18 15 et de 1839.
Ce simple expose montre que la guerre a ete la faillite de
I'oeuvre de 1839 dans toutes ses parties.
En reconnaissant I'impossibilite de faire revivre la neutralite
permanente conventionnelle de la Belgique, les Puissances alliees
ont deja admis en principe la necessite de reviser les traites de 1839.
En effet, la disparition de cette clause essentielle implique logique-
ment la necessite de rendre a la Belgique des elements indispensables
de solidite et d'equilibre dont la Conference de Londres — evidem-
ment desireuse de faire oeuvre durable — n'aurait pu la depouiller si
elle n'avait cru y suppleer en dotant le nouvel Etat beige du regime
de la neutralite perpetuelle sous la garantie de toutes les puissances.
Depuis 19 14 des declarations repetees des organes autorises des
gouvemements britannique et frangais ont donne a la Belgique la
conviction que ces deux grandes et nobles nations se sont assigne
comme tache essentielle la reparation du tort que lui ont cause la
violation du droit et I'abus de la force dont elle a ete la victime.
Au milieu des epreuves qu'il a traversees, le peuple beige a puise
dans la confiance inebranlable qu'il accorde a la Grande-Bretagne
et a la France, Penergie qui lui permit de resister a Taction de-
moralisante de la domination etrangere, prolongee pendant quatre
annees.
L'agression de I'AUemagne n'a pas eu pour seul effet de tarir
les sources de la vie economique de la Belgique: dans le domaine
politique elle a detruit le fondement sur lequel a repose pendant
quatre-vingts ans I'independance de la Belgique.
Au moment ou sonne I'heure du reglement, la Belgique adresse
un appel pressant a la Grande-Bretagne et a la France. Elle compte
sur leur initiative et sur leur concours actif pour obtenir, non seule-
ment la reparation des dommages resultant d'une guerre dont la
garantie collective des Puissances ne I'a point preservee, mais aussi
432 DOCUMENT 298
le redressement de I'erreur et de rinjustlce commlses a son egard en
1839 et dont les consequences I'ont conduite au bord de rabime.
Si la Paix a venir ne devait point donner pleine satisfaction a
cette juste revendication, la Belgique sortirait de cette guerre morale-
ment diminuee et la victoire a laquelle par son sacrifice total elle
a largement contribue, loin d'assurer definitivement son independ-
ance, lui creerait des conditions d' existence plus precaires encore que
celles que lui avaient assignees son ancien statut international issu
d'une defaite.
Une objection pourrait a premiere vue etre soulevee contre toute
revision des traites de 1839 qui forcerait la HoUande a renoncer
a des avantages concedes a cette epoque. C'est que cette Puissance
est restee en dehors de la guerre mondiale.
L' objection est specieuse. Que la Hollande soit restee neutre,
il n'en subsiste pas moins que la guerre a entraine la violation et la
destruction d'un systeme conventionnel auquel elle etait partie, et
que dans ce systeme dont la force des choses impose la revision, la
Hollande avait regu des avantages en vue d'hypotheses que les
evenements n'ont point realisees;
La Hollande — cela a ete dit plus haut — a regu une configuration
determinee dans la pensee qu'en cas de conflagration europeenne,
elle aurait un role a jouer. (x)
Les circonstances lui ont permis de ne pas jouer ce role et de
rester neutre.
(x) Pendant la quinzaine qui a precede I'ouverture des hostilites, plusieurs
indices ont revele que la Hollande se sentait jusqu'a un certain point solidaire
de la Belgique en cas de conflit. Elle fit des ouvertures caracterisees a Bruxelles
en vue d'une defense concertee, mais le matin du 3 aout 1914 le Ministre des
Affaires Etrang^res des Pays-Bas regut I'assurance solennelle et categorique du
Ministre d'Allemagne que, si la Hollande voulait rester neutre, son integrity lui serait
garantie; A partir de ce moment elle se desinteressa du sort de la Belgique. Le
Ministre des Affaires Etrangferes se borna 4 exprimer au Baron Fallon des con-
doleances pour le malheur qui frappait son pays. II ne protesta point contre la
violation des traites de 1839 dont elle etait signataire. En Janvier 1918 dans une
depeche relative au transit par la Hollande, de sables et graviers employes k des
usages militaires par les Allemands en Belgique, M. Balfour a charge le Ministre
britannique a La Haye d'attirer I'attention du Gouvernement neerlandais sur la
position speciale creee k la Hollande vis-a-vis de la Belgique, dans les questions
de neutralite, par le fait que la Hollande est partie au traite de 1839. C'etait recon-
naitre que la Hollande ne pouvait se considerer, en I'qccurrence, comme un neutre
ordinaire. ■-^, ..-■:-.....■.. '.■.^, :,■-.,. -r..,., -.■,,.. ..^ . ... ... , ,. -r.-..-
DOCUMENT 298 433
On pourrait douter qu'elle eut eu le droit de se tenir en dehors
du conflit au point de ne meme pas protester contre la violation de
la neutrality beige qui etait etablie par I'article 7 du traite hollando-
belge du 19 avril 1839.
Sans appuyer sur cette consideration, ni faire grief a la Hollande
de son attitude, il nous parait legitime de penser que les puissances
interessees et victorieuses ont le droit de reviser les concessions que
I'Europe lui a faltes indument. Si Ton admet que pendant la guerre
la Hollande n'a eu aucune obligation du chef des traites de 1839,
le moins que Ton puisse dire apres la guerre est qu'elle n'a pas le
droit de s'opposer a leur revision.
L'Europe a pris a la Belgique des parties importantes et meme
essentielles de son territoire au point de vue strategique dans la
pensee que la Belgique ne serait point capable de les defendre.
La Belgique a le droit de dire qu'on I'avalt mal jugee. II ne lui
sled point de formuler une appreciation sur la maniere dont elle a
rempli son propre role de barriere et dont elle s'est acquittee de ses
devoirs en defendant son territoire malgre les vices de sa conforma-
tion strategique. Mais si I'Europe reconnait qu'elle nous a autrefois
mal juge, le fait que les Pays-Bas sont restes neutres doit-il I'em-
pecher de reparer ses torts envers nous?
S'il devait en etre ainsi, les Beiges s'etonneraient a bon droit de
la difference qu'ils ne manqueraient pas de relever entre I'absence de
menagements temoignee a leur egard en 1831-1839 et la considera-
tion exageree accordee a la Hollande en 19 18 par les grandes Puis-
sances dont la Belgique a servi la cause.
Le Gouvemement Beige croit superflu d'affirmer que le regle-
ment des questions que pose la revision du systeme de 1839 doit,
dans sa pensee, et pour autant qu'elles interessent la Hollande, etre
negoclees avec elle dans 1' esprit arnica! qui correspond au caractere
des relations des deux Etats. Le respect mutuel de la dignlte et des
interets des parties en cause presldera a cette negociation. Si les
434 DOCUMENT 298
Grandes Puissances alHees estiment que la sauvegarde de la Paix
dans I'avenir aussi bien que les interets essentiels de la Belgique
exigent certaines concessions de la part de la HoUande, la Belgique
sera la premiere a demander que la HoUande regoive des compensa-
tions comportant pour elle des avantages certains et durables. La
Belgique soutiendra dans ce cas I'interet de la Hollande comme s'il
y allait de son propre interet.
Ces compensations pourraient consister en territoire aujourd^hui
allemand mais de population hollandaise tel que la Gueldre prus-
sienne et la Frise orientale — ou en territoire colonial — ou en indem-
nites pecuniaires — ou en garantie de paisible possession des colonies
actuelles des Pays-Bas. Cette derniere garantie est tres probable-
ment desiree par le Gouvemement neerlandais. Elle n'exclurait pas
d*autres compensations.
Si les grandes puissances alliees offraient a la Hollande des
compensations adequates pour des cessions ou retrocessions a la
Belgique qu*elles jugeraient indispensables, et si la Hollande refusait
obstinement una combinaison avantageuse pour elle autant que pour
la Belgique, il deviendrait fort difficile de repondre que les relations
d*amitie auxquelles le Gouvernement du Roi attache pour sa part
une importance primordiale, ne seront point soumises dans Tavenir
a une serieuse epreuve. C'est le souci de ces bonnes relations autant
que celul de sa securite qui oblige la Belgique a exposer franchement
la situation aux deux seules Puissances garantes des traites de 1839
qui ont ete fideles a leurs engagements et qui ont interet comme
elle-meme au redressement des torts d'autrefois.
Quellcs sont done, demandera-t-on, les solutions nouvelles que
le Gouvernement du Roi espere voir apporter aux differents prob-
lemes regies par les traites de 1839 et qui sont remis en question?
I. — Statut international de la Belgique,
Le Gouvemement du Roi a deja eu I'occasion de prendre acte
i. • ' • _, ■ ■ •. "
DOCUMENT 298 435
de radhesion donnes par le Gouvernement de la France et de la
Grande-Bretagne a I'idee que I'independance de la Belgique ne doit
plus a I'avenir subir de restrictions ni etre soumise a des conditions.
Cette independance doit etre complete, au meme titre que celle des
Pays-Bas, de la Suede ou du Danemark. II appartiendra a la nation
beige dans ce statut nouveau, de juger si son interet lui commande
selon les circonstances, une politique de neutralite ou une politique
d' alliances.
II n'est pas impossible que le Gouvernement neerlandais essaie de
soutenir que la neutralite permanente jadis imposee a la Belgique,
mais qui fait specifiquement I'objet d'une disposition du traite
hollando-belge (Art. 7) servait I'interet hollandais. Le Gouverne-
ment du Roi compte sur I'appui de la France et de la Grande-
Bretagne pour faire comprendre au Gouvernement des Pays-Bas
que, dans la revision des traites de 1839 I'interet neerlandais ne
pourra jamais etre considere comme primant I'interet beige et que
lorsque les deux gouvernements ne seront pas d'accord sur les solu-
tions, I'interet de la Belgique sera au contraire considere comme
preponderant. Au demeurant s'il est possible a la Hollande
d'affirmer que la neutralite beige servait son interet cUe ne saurait
le demontrer. II lui serait en effet impossible de prouver que sa
situation eut ete moins favorable dans I'hypothese ou la Belgique
aurait eu en aout 1914 I'appui de certaines alliances ou bien encore
dans I'hypothese oii la neutralite beige eut ete volontaire au lieu
d'etre conventionnelle.
Au surplus, I'affirmation d'un interet hollandais a la neutralite
conventionnelle de la Belgique ne serait, le cas echeant, qu'une
simple tactique : la Hollande cederait sur ce terrain, dans le but de
se creer par cette concession apparente des titres a une compensation
immediate.
II. — Question de VEscaut.
Les inconvenients du regime de I'Escaut ont ete sommairement
436 DOCUMENT 298
exposes par une note du Gouvernement beige remise aux Gouverne-
ments brltannique et frangais en 1916.
lis peuvent etre rames aux points suivants: la Belgique n'a pas
le controle d'un fleuve qui est la seule vole d'acces au port d'Anvers.
Si certains droits ont ete reconnus a la Belgique en 1839 pour assurer
en temps de paix la liberte de la navigation commerciale du fleuve
dans son parcours neerlandais, la Hollande possede en temps de
guerre le droit de faire respecter sa neutralite sur le fleuve et peut
aussi rendre Tarrivee de secours a Anvers impossible par la voie
normale. Meme en temps de paix la Hollande conserve assez de
droits souverains pour se trouver a meme de mettre a la navigation
commerciale des entraves considerables et pour empecher, si elle le
veut, toute amelioration du cours du fleuve qui impliquerait des
travaux de rectification des berges sur son territoire. De tels travaux
peuvent devenir indispensables dans un avenir rapproche, a raison
de la tendance a I'augmentation constante du volume des navires de
commerce et du regime hydrographique tres capricieux d'un fleuve
a maree. Enfin la Hollande n'ayant aucun Interet au balisage, a
Teclairage de I'Escaut ou a son approfondissement n'execute les
travaux d'amelioration indispensables que sur les instances souvent
longues et penibles de la Belgique, et aux frais du royaume voisin.
Pour que la Belgique regolve satisfaction, pour que Anvers soit
a Tabri de toute surprise prejudiciable dans Tavenir, il faut que la
situation ancienne soit renversee: au lieu que le course hollandais
de I'Escaut soit sous la souverainete hoUandaise avec quelques servi-
tudes en faveur de la Belgique, il faut que la Belgique, en fait
seule interessee soit mise pratiquement a meme de disposer de
I'Escaut jusqu'a la mer comm€ si elle en etait souverain, sauf a stlpu-
ler telles restrictions a ce droit de disposition qui sauvegarderalent
les rares interets hollandais sur le fleuve. Le controle beige doit
etre tout aussi complet sur le canal qui relie Gand a Terneuzen
jusqu'a son point de jonction avec le fleuve en territoire neerlandais.
Au point de vue de sa defense la Belgique doit pouvolr s'appuyer
a tout le cours du has fleuve.
DOCUMENT 298 437
III. — Limb our g et Meuse.
Enfin la prosperite de la Belglque dependant de celle d'Anvers
et celle-cl dependant des voies de communication qui amenent a ce
port les marchandises de ['Europe occidentale et centrale, il faut
que la Belgique ait la posslbilite de mettre en communication par
route, par chemln de fer et par canal, son grand port avec toutes
les regions qui peuvent allmenter le trafic de ses navires. A ce point
de vue la region industrielle et miniere de la province rhenane (Cre-
feld, StoUberg, Munchen, Gladbach, Neuss, etc.) qui seralt natur-
ellement tributaire d'Anvers par la voie du Limbourg neerlandais,
ne peut dans les conditions actuelles etre reliee a ce port si les Hol-
landais s'opposent a la construction des routes, des voies ferrees et
surtout des canaux necessaires. II serait d'autant plus injuste de
prolonger cette situation que le port d'Anvers a ete en realite ferme
pendant 4 ans de guerre et que durant cette periode les ports de
Rotterdam et d'Amsterdam se sont developpes anormalement et
ont fait des benefices tels qu'ils ont pu s'equiper selon tous les progres
de la science moderne. lis ont pris sur Anvers une avance qu'il
sera bien difficile au port beige de regagner meme si les meilleures
conditions lui sont assurees.
II faut done que la Belgique soit en mesure de pouvoir faire
passer a travers le Limbourg neerlandais toute route, canal ou voie
ferree qui lui semblerait utile au developpement de son commerce
maritime ou de son Industrie. Les traites de 1839 lui avaient deja
reconnu cette faculte (voir art. 12 du tralte Hollando-belge) , mals
la Belgique n'en retire qu'un avantage mediocre reduit a la con-
cession du chemln de fer d'Anvers a Gladbach insuffisant pour les
besoins actuels du commerce, a laquelle la HoUande souscrlvit en
(x) Extrait du Procls-yerbal des ratifications de la Convention du 13 Janvier
1873 : "Avant de proceder a I'echange des ratifications les soussignes croient utiles
de^ rappeler que d'apres les declarations des deux gouvernements aux Chambres
Legislatives, la concession de Tetablissement d'un chemin de fer Anvers-Gladbach
par le Duche de Limbourg en passant par Ruremonde, comme elle est stipulee par
le traite du 13 Janvier 1873 constitue I'execution pleine et entilre de I'article 12 du
traitedu 19 avril 1839."
438 DOCUMENT 298
Au point de vue strategique, la cession, par les traites de 1831-
1839, d'une partie du Limbourg a la HoUande a cree une situation
anormale dont la guerre a revele le danger.
La configuration du territoire rend impossible la defense du
Limbourg hollandais par I'armee neerlandaise, de meme qu'elle
rend impossible la defense du Limbourg occidental par I'armee
beige, celle-ci ne pouvant s'etablir sur la rive orientale ni disposer
de la tete de pont de Maestricht.
En 19 14, la Hollande n'a pas entrepris d'assurer la defense du
Limbourg cede. II a dependu de la seule volonte de I'AUemagne
que ce territoire ne fut pas envahi. Les incidents recents de 19 18
ont ete plus significatifs encore. La Hollande a reconnu Pimpuis-
sance ou elle etait de defendre son territoire limbourgeois en lais-
sant les troupes allemandes qui evacuaient la BelgiquCj le traverser
impunement.
Ainsi Ton ne saurait contester ni dissimuler que les evenements
de la guerre ont mis en relief la question du Limbourg.
IV. — Luxembourg.
Le Luxembourg cede au Roi des Pays-Bas en 1839 est devenue
en 1867 un etat independant et neutralise. En 1890, la couronne
passa a une dynastie purement allemande. Le Gouvernement du
Roi a expose a ses allies ses vues sur Tavenir de cet Etat qui decidera
lui-meme de son sort dans la mesure de ce que peut permettre la
securite elementaire de la Belgique. A cet egard, le Gouvernement
du Roi estime qu'Il est impossible de permettre que le Luxembourg
reste neutre et desarme, ni qu'il conserve avec I'AUemagne les liens
economiques qui le rattachaient a I'Empire avant la guerre. Sur ce
dernier point le Gouvernement du Roi sait que les intentions du
Gouvernement luxembourgeois lui-meme correspondent avec ses
propres desirs. La Belgique denonce en outre a ses allies la neces-
site d'etre mise a I'abri du risque de voir un pays dont le statut inter-
national affecte ses interets essentiels soumis encore dans I'avenir a
une influence etrangere.
DOCUMENT 298 439
Les limites entre la Belgique et la Prusse telles qu'elles etaient
tracees avant la guerre etaient un legs des traites de 1815. La
guerre permet de les remettre en question.
Pour compenser la Prusse de certains territoires saxons aux-
quels elle renongait, les Puissances deciderent en 18 15 de detacher
des anciennes provinces beiges attribuees au Roi des Pays-Bas, une
dizaine de cantons (Rolduc et Eupen, du Duche du Limbourg; Mal-
medy separee de Stavelot — St. Vith, Schleyden, Cronenburg, Bit-
bourg, Arzfelt du Duche du Luxembourg, etc.).
Le Gouvemement beige a le droit de reclamer aujourd'hui con-
tre un demembrement du territoire national qui s'est fait, sans tenir
compte d'aucune consideration autre que I'interet de la Prusse, et de
demander la restitution des cantons dont il s'agit. La limite orien-
tale de la Belgique est si rapprochee de Liege, que les armees alle-
mandes ont pu attaquer cette place forte le 4 aout 19 14, quelques
heures apres avoir franchi la frontiere.
Le canton de Malmedy est entierement wallon et deja de nom-
breux habitants ont petitionne pour son incorporation dans le terri-
toire beige. Pendant la guerre, des sujets allemands originaires de
Malmedy et meme d'autres cantons voisins ont reclame la protec-
tion du Gouvemement du Roi. Plusleurs ont combattu dans I'armee
Rationale. ^^ it
Si, pour un motif quelconque, la Belgique ne pouvait recouvrer
la totalite des cantons donnes a la Prusse en 18 15, le Gouvemement
du Roi insisterait tres vivement en tous cas pour que Malmedy avcc
la Wallonie prussienne redevint beige.
II exigerait que le petit territoire, dit neutre, de Moresnet, fut
definitlvement reconnu comme beige. La Belgique et la Prusse y
exergaient une souverainete indivise avant la guerre.
Cette anomalie qui ne saurait se prolonger, provenait du fait
que deux descriptions de la frontiere separative du royaume des
Pays-Bas et de la Prusse, contenues dans les traites de 181 5, ne
coincidalent pas exactement mais se contredisaient pour une petite
440 DOCUMENT 298
section de la frontiere. Le territoire compris entre les deux lignes
a ete depuis revendique par les puissances voisines qui, ne pouvant
s'accorder sur une formule de partage, deciderent d'y exercer les
pouvoirs souverains en commun, ou plutot alternativement.
Pendant la guerre, les Allemands ont traite Moresnet comme
territoire prussien. Le Gouvernement du Roi possedait des avant
la guerre, une petition signee par les chefs de 600 families — :1a to-
talite de la population — reclamant I'Incorporation a la Belgique si
I'anomalie datant de 18 15 ne devait pas se pro longer.
Que la Belgique recouvre tous les cantons donnes a la Prusse
en 18 15 ou que la frontiere de 18 15 ne subisse point d'autre altera-
tion que celle qui concerne Malmedy et Moresnet, il restera tou-
jours entre la Belgique et le Rhin une large bande de territoire sur
laquelle le Gouvernement du Roi n'a aucune revendication a elever.
Mais, dans I'ignorance ou il est des idees qui regnent tant chez
les habitants de la Prusse rhenane que chez les Gouvernements al-
lies au sujet de I'avenir de ce pays, le Gouvernement du Roi croit
devoir faire connaitre des a present que la Belgique demande a etre
entendue quand les Allies examineront ce probleme, afin qu'elle
puisse discuter avec eux les questions d'ordre politique, economlque
et militaire qui I'interessent dans la region du Rhin qui prolonge a
I'Est le territoire beige.
' 441
DOCUMENT 299
Note Juridique« sur la Revision des Traits de 1839.
/ ere Partie: Le fondement et la portee de la revision.
2 erne Partie: Procedure a suivre en vue de la revision des traites —
Le role de la Grande-Bretagne et de la France dans
les negociations.
PREMIERE PARTIE.
LE FONDEMENT ET LA PORTEE DE LA REVISION.
Le Gouvernement du Roi estlme qu'Il y a lieu de proceder a une
revision generale du regime instaure par les traites de 1839.
Cette revision sMmpose :
1. au regard de tous les Etats signataires des traites;
2. relatlvement a toutes les clauses qui en font Pobjet.
LES TRAITES DOIVENT ETRE REVISES A L'eGARD DE TOUTES ET DE
CHACUNE DES PARTIES CONTRACTANTES.
Deux puissances, TAUemagne et TAutriche, signataires du traite,
Tont ouvertement viole. La Belgique a le droit Incontestable de
le tenir pour resilie a leur egard et meme d'en poursulvre a leurs
torts la revision complete.
Une troisieme puissance, la Russle, a refuse de continuer a rem-
plir les obligations resultant pour elle du traite et a perdu de ce
fait le droit de partlciper a sa revision.
Les deux puissances qui se sont acqulttees de leurs engagements,
I'Angleterre et la France, ont deja marque leur adhesion a I'abandon
d*une stipulation essenrielle du traite de 1839, ^^^^^ ^^ conceme la
neutralite perpetuelle. II n*appartlent plus desormais qu*a ces deux
puissances de partlciper, de commun accord avec la Belgique et avec
a. See Diary, p. 108. This accompanied Document 298.
442 DOCUMENT 299
la Hollande, a la revision des traites de 1839 et a leur remplace-
ment par un regime nouveau.
La necessite d'une revision generale des traites de 1839 s'im-
pose forcement a I'egard de la Hollande comme a I'egard de toutes
les autre s Puissances signataires de ces traites. Bien qu'elle soit
restee neutre dans le conflit europeen, la Hollande ne peut se sous-
traire aux consequences qu'entraine la destruction d'un regime con-
ventionnel a I'etablissement duquel elle a participe.
C'est ce que demontrent les considerations suivantes.
Premier Argument:
Le traite hollando-belge impose a la Hollande et a la Belgique
par le concert des puissances, ne peut survivre a la dissolution du
systeme politique europeen sous 1' influence duquel il a pris naissance.
Le traite hollando-belge n'est, a proprement parler, I'oeuvre ni
de la Belgique ni de la Hollande. II est, dans son economie ge-
nerale, comme dans chacune de ses dispositions essentielles, I'oeuvre
collective des puissances qui Vont impose d'autorite a ces deux Etats.
C'est ce qui ressort clairement:
I. — de la pensee generale qui a guide les cinq puissances representees
a la Conference de Londres;
2. — de la procedure qu'elles ont adoptee pour imposer leurs vues
a la Belgique et a la Hollande;
3. — enfin de la forme meme qu'elles ont donnee aux traites.
I. — En 1830, comme en 1 8 14, les puissances se sont propose
pour but essential de concilier I'existence d'une Belgique indepen-
dante avec I'etablissement d'un juste equilibre en Europe et avec
le maintien de la paix generale. Ces vues se trouvent exposees dans
le protocole du 20 decembre 1830 qui, en constatant la faillite de
I'union hollando-belge de 18 15 assigne pour mission a la conference
"de discuter et de concerter les nouveaux arrangements les plus
propres a combiner I'independance future de la Belgique avec les
DOCUMENT 299 443
Stipulations des traites, avec les interets et la securite des autres
puissances et avec la conservation de Tequilibre europeen."
Ces considerations d^interet general europeen dominent toute
I'oeuvre des traites de 1831 et de 1839. Elles sont a la base des
clauses du tralte hollando-belge du 19 avril 1839.
2. — ^La procedure suivie au cours des negociations met en plein
relief le role absolument preponderant des puissances dans la nego-
ciation des traites de 1839.
Des 15-20 decembre 1830, la conference de Londres s'erige en
arbitre entre la Belgique et la Hollande. Devant I'antagonisme
sans cesse renaissant des pretentions adverses elle place les deux
parties en presence de "decisions irrevocables" ; elle leur notifie for-
mellement "sa determination immuable" d'en assurer I'execution au
besoin par la force armee. Telle fut d'une fagon generale et sous
reserve de fluctuations passageres la procedure suivie dans I'elabora-
tion des traites de 1831 et de 1839.
Dans leur teneur definitive, ces traites constituent indiscutable-
ment un arbitrage impose par les grandes puissances, organes de
VEiirope, a la Belgique et a la Hollande.
3. — La forme meme ou structure exterieure des traites de 1839
acheve de mettre en lumiere Taction dominante exercee par le con-
cert des puissances dans leur elaboration.
Par le premier de ces traites le roi des Pays-Bas s'engage vis-a-vis
des puissances, a convertir immediatement en traite avec le Roi des
Beiges les 24 articles annexes. La politique d'arbitrage force des
puissances triomphe ainsi des resistances hollandalses comme elle
avalt triomphe, en 1831, des resistances de la Belgique. Sous Vap-
parence exterieure d'une convention lihrement consentie, le traite
hollando-belge est , dans sa teneur et sa substance, V expression des
volontes irrevocables des puissances europeenes.
D'autre part, dans le traite conclu entre les puissances et la Bel-
gique, comme dans le traite conclu entre les puissances et la Hol-
lande, on trouve une disposition identlque: "Les articles annexes
444 DOCUMENT 299
(les 24 premiers articles du traite hollando-belge) sont consideres
comme ayant la meme force et valeur que s'ils etalent Inseres tex-
tuellement dans le present acte; ils se trouvent ainsi places sous la
garantie de leurs dites Majestes." Ainsi, reserve faite de la clause de
garantle, les trols traltes distincts en tant qu 'Instruments dlplo-
matiques ont un contenu identique. Rien ne marque mieux la com-
plete subordination des clauses du traite hollando-belge aux decisions
des puissances. Dans la reallte des choses, la signature de ce traite
par les representantes de la Belglque et de la Hollande n'a eu
d'autre signification que celle d'une adhesion forcee de ces deux Etats
a une reglementatlon generale imposee d'autorlte par le concert
europeen/^^
Deuxieme Argument:
La Belgique trouvait dans les stipulations du traite hollando-
belge une certaine somme d'avantages ou de profits, rigoureusement
compenses par des sacrifices etendus et par des obligations onereuses.
Avantages et inconvenlents, profits et pertes procedaient dans une
large mesure de la situation generale faite a la Belgique par les
traites vis-a-vis de VEurope. Ceci est partlcullerement sensible pour
la stipulation essentielle qui fait Fob jet de T article 7, celle de la
neutrallte perpetuelle, stipulation qui avait pour objet d'asslgner a
la Belgique une "place inoffensive" en Europe et de creer entre
elle et tous ses garants des "liens identiques."
Les evenements qui se sont deroules depuls le mols d*aout 19 14,
ont bouleverse completement I'economle essentielle du regime in-
staure par les traltes de 1839. Pour etre restee fidele aux obliga-
tions de la neutrallte perpetuelle que lui avatent imposee les puis-
sances, notre pays a ete voue par deux d'entre elles, a toutes les
(1) Cfr. La note adressee le 25 octobre 1831 par la conference aux pl6nipo-
tentialres hollandais et beige et accompagnant renvoi des 24 articles (annexes B
et C au protocole 49) : "ces articles seront insirh mot pour mot dans un TraitS
direct entre la Hollande et la Belgique lequel ne renfermera en outre que les stipula-
tions relatives a la paix et a I'amitie que subsisteront diesormais entre les deux pays
et leurs souverains."
_/"
DOCUMENT 299 445
horreurs de la guerre. De ce fait, la Belgique a perdu a tout jamais
une partie absolument essentielle des avantages que le traite de 1 839
devait lui assurer; elle ne peut, en logique ni en equite, etre tenue de
continuer a subir vis-a-vis de la HoUande les clauses onereuses dont
les puissances lui avaient, en retour de ces avantages, impose I'ac-
ceptation.
Conclusion:
Les trois traites du 19 avril 1839 forment un seul tout. On ne
peut envisager le traite hoUando-belge comme une convention in-
dependante des traites signes le meme jour par les plenipotentiaires
des puissances avec la Hollande d'une part, avec la Belgique d'autre
part. Ce traite ne peut survivre a la destruction du systeme politique
qui en a dicte les clauses^ ni a la perte des avantages d'ordre general
europeen qu'il confer ait a la Belgique.
LE TRAITE DE 1 839 A ETE VIOLE DANS UNE DE SES CLAUSES ES-
SENTIELLES. CETTE VIOLATION DONNE A LA BELGIQUE
LE DROIT DE DENONCER LE TRAITE TOUT ENTIER,
D^EN POURSUIVRE LA REVISION DANS
TOUTES SES DISPOSITIONS.
Examinons d'abord le fondement de cette these au regard des
principes du droit des gens (i). Nous envisagerons ensuite les
consequences qui resultent de son application au traite de 1839 (2).
i) Tout traite de droit international, comme tout contrat de
droit prive, est conclu sous la condition implicite d'observation fidele
par chacune des parties; en d'autres termes, la condition resolutoire
est sous-entendue dans les conventions intematlonales comme dans
les contrats synallagmatiques du droit civil. L'inexecution du traite
par I'une des parties autorise les autres contractantes a se liberer de
leurs obligations conventlonnelles en denon^ant le traite.
Ce princIpe est universellement admis, les divergences n'existant
que sur le point suivant. Certains auteurs n'admettent le droit a
446 DOCUMENT 299
la denonciation du traite dans son ensemble que lorsque la viola-
tion affecte I'une de ses clauses fondamentales, lorsqu'elle a pour
consequence de depouiller la partie lesee de Tun des avantages es-
sentiels que lui assurait la convention. Comme representants de
cette premiere opinion on peut citer: Georges Fred, de Martens
(Droit des Gens, par. 59), Hall (International Law, p. 361), P.
Cobbett (Cases and opinions on international law, I, p. 327).
D'apres d'autres auteurs, au contraire, toute violation du traite
donne indistinctement ouverture a sa resolution, quand bien meme
cette violation n'affecterait qu'une clause d'interet secondaire. 11
semble bien que cette opinion est celle de la majorite des auteurs.
Oppenheim (International Law, 2eme edition, T. I., par. 547).
Rivier (Droit des Gens, II, p. 135). ^^>
2) Les stipulations du traite de 1839 forment un tout indi-
visible. Ce traite a ete viole au prejudice de la Belgique dans I'une
de ses dispositions essentielles. La Belgique a done le droit incon-
testable d'en exiger la revision dans toutes et dans chacune de ses
clauses.
La procedure d'arbitrage par laquelle les puissances ont im-
pose a la Belgique et a la Hollande I'acceptation des 24 articles
demontre le bien-fonde de cette these. Tous ces articles indistincte-
ment, ceux memes d'interet secondaire, ont ete presentes aux deux
parties comme intangibles. Le protocole du 14 octobre (No. 49)
ne fait plus la distinction qu'etablissaient les protocoles des 20 et
27 Janvier entre les questions essentielles, objet de decisions ir-
(1) Voici comment s'exprime Rivier: "L'inexecution du traite de la part de
I'un des Etats contractants donne k I'autre Etat le droit de le tenir pour resilie,
et d'exiger, s'il y a lieu, des dommages et interets. L'indivisibilit6 reprend ici le
dessus. Si I'une quelconque des clauses meme celle qui semble la moins importante,
est violee, il n'y a plus de surete quant aux autres. On peut dire que chaque clause
forme comme une condition de toutes les clauses. II n'y a pas lieu de distinguer
entre articles principaux et accessoires, connexes et non connexes. Ces distinctions
n'ont rien k faire ici, oh il s'agit de security et de confiance. Tous les articles
ont a ce point de vue la meme valeur, lis constituent tin "ensemble indivisible."
La meme ou I'on n'apergoit pas imm^diatement un lien direct entre certains articles
on peut dire que tous sont unis "par ce rapport commun que les contractants les
ont passes en vue les uns les autres par maniere de compensation" (Rivier, II, p.
136), On ne peut disjoindre arbitrairement des clauses qui sont la resultante de
vues coordonnees et de concessions r^ciproques."
DOCUMENT 299 447
revocables, et les questions secondaires, objet de simple proposi-
tions. Les 24 articles ont ete imposes en bloc a la Belgique et a la
HoUande la conference refusant formellement aux plenipotentiaires
hoUandais et beige le droit d'y apporter un amendement quelconque.
Parmi les clauses du traite de 1839 dont la Belgique est au-
torisee, en vertu de ces principes, a poursuivre la revision, figurent
les stipulations relatives a ses limites territoriales. Les frontieres
actuelles de la Belgique lui ont ete imposees par les Puissances, au
nom de considerations d'ordre europeen. Leur trace s'inspire de
preoccupations politiques abolles et de defiances injustifiees. Craig-
nant de voir la Belgique entrainee vers la France, les Cours du
Nord ont cherche a prendre contre elle des garanties territoriales;
sous couleur de proteger les interets de la Hollande elles ont favorise
ainsi la politique d'expanslon de la Prusse. La neutralite perpetuelle,
qui devalt dans une certalne mesure, faire contrepoids a la faiblesse
de cette constitution territoriale, n'a pas resiste a I'epreuve de la
guerre. Les frontieres insuffisantes assignees a la Belgique ne peu-
vent survivre a la disparition du regime qui a inspire leur trace.
Les considerations developpees ci-dessus conduisent logiquement
a une double conclusion: i. — ^indivisibilite des trois traites de 1839
entre eux et, par voie de consequence, revision necessaire du traite
hollando-belge ; 2, — indivisibilite de toutes les clauses du traite entre
elles entrainant la revision generate de toutes les questions qui en
font I'objet.
448 DOCUMENT 299
DEUXIEME PARTIE.
PROCEDURE A SUIVRE EN VUE DE LA REVISION DES TRAITES DE 1 839.
ROLE DE LA GRANDE-BRETAGNE ET DE LA
FRANCE DANS LES NEGOCIATIONS.
Les considerations exposees dans la premiere partie de cette
note conduisent a reconnaitre dans les traites de 1839 le fruit d*un
arbitrage impose a la Belgique et a la Hollande par les Grandes
Puissances au nom des interets generaux de I'Europe.
II en resulte, au point de vue de la revision de ces traites, une
double consequence :
i) d'une part, la revision de ces traites ne peut s*accomplIr sans
tenir compte des interets d'ordre europeen qui en ont dicte les
clauses;
2) d'autre part, cette revision appelle necessairement I'interven-
tlon de toutes les Puissances signatalres des traites, qui, restees fideles
a leurs engagements, ont conserve le droit d'en invoquer les disposi-
tions.
La Belgique a un droit incontestable, non seulement a la par-
ticipation, mais encore a Tappui actif de ses deux garants fideles dans
les negoclations qui auront pour objet de reviser a Vegard de la
Hollande un traite dont toutes les clauses lui ont ete Imposees et
dont elle a ete la victime.
Le traite hoUando-belge, nous I'avons demontre plus haut, n'est
pas la resultante d'un accord intervenu entre les deux Etats sur la
base de leurs Interets propres, toutes ses clauses ont ete imposees par
les Puissances; toutes ont ete subordonnees par elles aux exigences
supremes des interets generaux de I'Europe.
Que faut-il conclure de la?
La revision d'un traite de cette nature doit s'accomplir en tenant
DOCUMENT 299 449
compte a la fois : i ) du but essentiel qui en a dicte les clauses et
2) de la procedure qui a preside a son elaboration.
Une reglementation imposee d'autorite par le concert des Puis-
sances au nom des interets de I'Europe ne peut etre revisee:
i) qu'avec le concours des Puissances restees fideles a I'ordre
qu'elles ont etabli; et 2) en fonction des interets generaux qui ont
inspire leur oeuvre.
On ne saurait concevoir que la France et I'Angleterre se desinte-
ressent des consequences que la faillite du systeme de 1 839 entraine
non seulement pour la Belgique, mais aussi pour I'ordre europeen
dont elles s'etaJent constitutes les defenseurs. II leur appartient
de rectifier les erreurs commises au prejudice de la Belgique en 1839;
d'adapter notamment aux exigences d'un ordre politique nouveau
les arrangements territoriaux qui ont ete imposes a cette epoque a
notre pays; de faciliter enfin eventuelleraent par I'offre de certaines
compensations — la conclusion d'un accord egalement favorable aux
voeux des deux pays, aux interets de I'equilibre et de la paix de
I'Europe.
On ne saurait admettre que la revision du traite de 1839 ^'^c-
complisse par la voie de negociations separees entre la Belgique et
la HoUande dans lesquelles la Belgique se trouverait privee de
I'appui de ses garants. Une telle procedure doit etre rejetee, non
seulement a cause de la responsabilite assumee par I'Angleterre et
par la France dans I'etat de choses cree en 1839, mais encore en
raison de la nature des prohlemes que cette revision souleve.
La neutralite perpetuelle constituait I'une des pieces essentielles
du systeme de 1839; la France et I'Angleterre ont consenti des a
present a son abandon par la Belgique. On ne saurait toutefois
perdre de vue que ce regime, qui devait assurer a la Belgique une
"place inoffensive" en Europe, garantissait notre pays contre des
agressions exterieures et que c'est en consideration de cette securite
que les traites lui promettaient que ses frontieres ont ete tracees.
450 DOCUMENT 299
L'amelioration de notre constitution territorlale est done liee a
I'abandon de la neutralite perpetuelle; la Belgique a le droit d'in-
voquer I'appui de ses garants pour I'aider a trouver desormais dans
des frontieres mieux etablies une securite que la neutralite perpetu-
elle n'a pu lui procurer/^*
Tenant compte des considerations developpees ci-dessus, quelle
est la forme que devraient revetir les negociations destinees a assurer
la revision des traites de 1839?
La forme la mieux appropriee serait incontestablement celle
d'une conference restreinte a laquelle prendraient part les repre-
sentants de la Grande-Bretagne, de la France, de la Belgique et de
la HoUande. Le traite impose a la HoUande et a la Belgique par
les cinq grandes puissances serait revise ainsi de commun accord
par tous les Etats qui ont conserve le droit d'en invoquer les clauses.
II appartiendrait a la France, a I'Angleterre et a la Belgique d'in-
viter le Gouvemement des Pays-Bas a cette conference restreinte qui
aurait pour objet d'assurer une bonne liquidation du systeme de
1839. Cette conference serait precedee d'un echange de vues entre
la Belgique, la France et la Grande-Bretagne dans le but d'etablir
entre elles un accord sur les principes et sur les compensations a offrir
eventuellement a la HoUande.
L'accord realise serait impose aux Puissances ennemies et notifie
a la Russie.
(1) Renvoyer la Belgique a des negociations separees avec la HoUande, ce
serait inaugurer poitr la revision des traites une procedure absolument contraire a
celle qui a ete suivte pour leur conclusion. Dans cet ordre d'idees il est interessant
de rappeler que les pourparlers de 1831 furent marques par une proposition de
negociations directes, adressee par Lebeau au Ministre hollandais Verstolk. La
proposition visait notamment le reglement des questions territoriales. Or, les pleni-
potentiaires hollandais la denoncerent aussitot comma une atteinte aux prerogatives
de la Conference.
y
DOCUMENT 300
Note Historique sur la Revision des Trait^s de 1839
SOMMAIRE DE LA NOTE HISTORIQUE*^
I. — l'esprit des traites de 1839.
lis forment un compromis entre le fait nouveau de notre inde-
pendance et I'oeuvre du Congres de Vienne.
a) I'oeuvre du Congres de Vienne.
b) perturbation apportee dans cette ceuvre par la Revolution
beige.
c) la politique de la Conference de Londres.
d) le sort des revendications beiges.
e) I'erreur de la Conference.
II. — LA QUESTION DE L^ESCAUT.
a) d'oii provient et que signifie I'installation de la HoUande
sur la rive gauche du fleuve.
b) I'Escaut du Traite de Miinster a la revolution de 1830.
c) les pretentions de la Belgique et de la Hollande en 1830.
d) r attitude de la Conference.
e) caractere batard de la solution a laquelle elle s'est arretee.
III. — NOTRE FRONTIERE DE L'eST.
a) Toeuvre de 1815.
b) les revendications de la Belgique en 1830.
c) les solutions successivement admises par la Conference de
Londres.
d) la solution du traite de 1839 marque la victoire de la po-
litique germanique.
IV. LA NEUTRALISATION DE LA BELGIQUE.
NOTE HISTORIQUE.
l'esprit des TRAITES DE 1 839.
Le Congres de Vienne s'etait flatte de comprimer
L'oeuvredu ° . 1 1 t^
CongrSs de definitivement la puissance expansive de la France par
Vienne. , . . • . , m.
un ensemble de combmaisons terntonales et mili-
a. See Diary, p. 108. This accompanied Document 298.
452 DOCUMENT 3 00
taires. Dans le systeme qu'il avait institue, le royaume des Pays-
Bas, forme par Tadjonction de la Belgique a la HoIIande, jouait le
role d'une vaste tete de pont ouverte aux puissances coalisees, tandis
que la garde de la Moselle et du Rhin se trouvait confiee a la vigi-
lance de la Prusse. — A I'abri de ce rempart, les allies de Chaumont
esperaient jouir palsiblement du fruit de leurs victoires et pour-
suivre I'oeuvre de restauration dont la Sainte-AUiance devint Tor-
gane. —
La revolution beige de 1830 allait dejouer leurs
Perturbation calculs.
apportee dans
cette ceuvre Le royaume des Pays-Bas, piece maitresse de
par la revolu-
tion beige. I'edifice laborieusement echafaude quinze annees au-
paravant, se trouva detruit par la declaration de
notre independance ; — en meme temps que le probleme de notre
constitution territorial remettait en question les progres accom-
plis par I'Etat prussien dans sa marche vers la Meuse.
Les evenements dont Paris venait d'etre le theatre et les sym-
pathies non dissimulees de la Belgique nouvelle pour la France de
Louis-Philippe aggraverent encore Pinquietude que suscita dans les
Cours du Nord notre geste revolutionnaire,
L'Europe, contrainte de s'incliner devant le fait
La politique de accompli, n'eut d'autre souci que d'en attenuer les
la Conference ^ ^
de Londres. consequences. Elle comprit qu'il etait impossible de
retablir dans sa structure primitive le regime de 1815.
Mais elle employa ses efforts a en conserver autant que possible
I'esprit. Realiser par d'autres "arrangements" les fins poursuivies
au Congres de Vienne, "combiner I'independance de la Belgique
avec les stipulations des traites, les interets des puissances et la con-
servation de I'equilibre europeen," tel fut le programme de la con-
ference de Londres ^t>, plus particulierement celui de la Prusse, de
I'Autriche et de la Russie.
Tout r esprit des Traites de 1839 ^^t la, et c'est ce qui explique
leur faiblesse.
(t) voir notamment le protocole No. 7,
DOCUMENT 300 453
_ . , Dans une note remise le 3 Janvier 1831 aux deux
Le sort ocs
revendications Commissaires delegues a Bruxelles par la conference
beiges.
de Londres, le gouvernement beige resumait ses re-
vendications dans les termes suivants:
"II paraitra sans doute impossible que la Belgique con-
stitue un Etat independant sans la garantie immediate de la
liberte de I'Escaut, de la possession de la rive gauche de ce
fleuve, de la province du Limbourg en entier et du Grand
Duche de Luxembourg * * *."
La conference ne nous accorda la liberte de I'Escaut que dans des
conditions insuffisantes. Elle nous refusa la rive gauche du fleuve
et nous priva des positions les plus importantes du Limbourg et du
Luxembourg.
Enfin le statut de neutralite permanente qu'elle nous imposa vint
completer ce systeme d'amputations territoriales.
L'Europe de 1830 n'a pas compris que I'existence
L'erreur de la d'une Belgique llbre et forte est une condition sine
qua non de son propre equilibre. Par mefiance a
notre egard et a I'egard de la France, elle a pretendu realiser ce
paradoxe de reconnaitre notre droit a I'existence, sans nous donner
les moyens de remplir la mission que nous assigne notre position
geographlque.
Son oeuvre, congue, dans cet esprit, ne pouvait etre qu'une oeuvre
boiteuse.
La guerre a fait la preuve de sa fragilite.
IL
LA QUESTION DE l'eSCAUT.
II suffit de Jeter un coup d'oeil sur la carte pour
D'oi!l provient ^ , , , , .^ . , .„ .
et que signifie etre frappe du caractere artinciel et lUogique que
rinstallation de , , . 1 r •^ 1 u i
la Hollande sur presente en certains pomts la frontiere hoiiando-
la rive gauche
du fleuve. beige.
Nulle part cet illogisme n*eclate avec plus d'evidence que dans
la region des Flandres.
454 DOCUMENT 300
N'apparait-il pas, en effet, que la nature elle-meme a trace la
limite septentrionale de cette region en creusant le lit du Bas-Escaut
et qu'il a fallu meconnaitre ses donnees les plus claires pour detacher
de la Belgique I'etroite bande de terrain qui borde la rive gauche du
fleuve ?
Pourquoi cette parcelle des Flandres se trouve-t-elle incorporee
politiquement a un Etat dont I'etendue d'un veritable bras de mer
I'isole completement ? D'ou provient cette anomalie?
EUe est le vestige d'une politique qui remonte aux origines de
I'Etat neerlandais et qui procede a la fois d'un desir de destruction et
d'un souci de defense. La possession de la Flandre zelandaise sig-
nifiait pour les Provinces-Unies la maitrise du Bas-Escaut et par
suite, la possibilite de tuer Anvers au profit d'Amsterdam et des ports
de la Zelande.
Elle assurait d'autre part a la nouvelle Republique un precieux
glacis contre I'Espagne et contre la France. Envisagee sous ce
dernier aspect, la conquete de la rive gauche par les troupes de
Nassau apparait comme la premiere ebauche d'un systeme qui de-
vait recevoir son couronnement au debut du XVIIIeme siecle dans
les Traites de la Barriere. Elle implique I'utilisation du sol beige
comme d'un moyen de defense. Elle tend, selon I'expression de J. B.
Nothomb, a nous faire jouer le role de "fonds servant" au profit de
la Hollande (t) .
Des r instant ou la rive gauche de I'Escaut fut en
Trait6^de ^ ^^^^ pouvoir, les HoUandais revendiquerent une sou-
Revolution verainete sans limites sur la partie du fleuve coulant a
de 1830. Tinterieur de leurs frontieres.
(t) La rive gauche de I'Escaut, comme le Brabant septentrional et les enclaves
d'outre Meuse ou les Provinces-Unies etaient egalement installees, regut une admin-
istration speciale, correspondant au role subalterne qu'elle devait tenir dans I'etat
nouveau. On ne I'erigea pas a la dignite d'une province, on refusa de I'assimiler a la
nation proprement dite. Etait-elle autre chose qu'une digue, un rempart, une barriere?
Elle resta en marge du territoire national et fit partie des terres d'administration
commune, des "pays de generalite." Le Conseil des 9 membres qui I'administrait ne
siegeait meme pas sur son territoire. II fonctionnait k Middlebourg.
„/"
DOCUMENT 300 4^5
La Belgique, au contraire, n'a cesse de soutenir que le Bas-
Escaut, port d'Anvers sur la mer, devait rester librement ouvert
a la navigation. Ces deux theses, au cours de i'histoire, se sont
frequemment heurtees.
Le Traite de Mtinster (1648), faisant droit aux pretentions
hoUandaises, consacra la fermeture de I'Escaut, et ce fut la ruine
d'Anvers.
Confirme en 1785 par le Traite de Fontainebleau W cet etat
de choses dura jusqu'au jour ou la France revolutionnaire decreta
la liberation du fleuve (ler fevrier 1793), et comme complement
necessaire de cette liberation, exigea de la HoUande la cession de
la Flandre (Traite de La Haye de 1795).
Lorsqu'eclata la revolution de 1810, I'Escaut etait
Les pretentions ^ ^ '
de la Belgique Hbre. Mals, des le debut des hostilites, le gouverne-
et de la Hoi- ^
lande en 1830. ment de La Haye en ordonna la fermeture, et dans
plusleurs notes adressees a la conference de Londres, il reprit ses
anclennes pretentions a la souveralnete absolue en aval de Lille (Voir
notamment la note du 10 decembre 1830 — ^Annexe B au protocole
n°5)-
De son cote, la Belgique revendiqua Immediatement la liberte
complete de la navigation et la possession de la Flandre zelandaise.
Le 6 Janvier 1831, ses delegues remettaient a Lord Palmerston un
memoire qui s'exprimait comme suit:
"La ci-devant Flandre des Etats, reunle aux departements
de I'Escaut et de Lys en 1795, ne peut cesser de faire partie
de la Flandre Orientale et de la Flandre Occidentale, qui
remplacent aujourd'hul, sous une autre denomination, les
deux anciens departements beiges; sans la possession de la
rive gauche de I'Escaut, la Belgique serait a decouvert de ce
cote et la Hbre navigation du fleuve pourrait n*etre qu'une
stipulation illusoire.
•'Les Hollandais, maitres du pays situe sur cette rive, et
maitres par consequent de toutes les ecluses construites pour
(tt) Le Traite de Fontainebleau marqua I'echec de la politique de Joseph II
qui s'^tait efforce d'obtenir de la HoUande la liberation de I'Escaut.
456 DOCUMENT 300
I'ecoulement des eaux de la Flandre ci-devant autrichienne,
Inonderaient a volonte, comme ils I'ont fait a des epoques
anterieures, le sol dont se composerait le territoire beige.
"La ville de Gand, qui communique avec I'embouchure
de I'Escaut par le nouveau canal de Terneuzen, perdrait
tous les avantages commerciaux resultant pour elle de ce
moyen de grande navigation."
La conference, mise en presence de deux preten-
la conference, tions aussi contradictoires, s'effor^a de les concilier
par un moyen terme.
Ecartant de piano notre revendication de la rive gauche, et
repoussant sans plus d'hesitation les exigences de la HoUande, con-
siderees a juste titre comme incompatibles avec les principes
nouveaux du droit international aussi bien qu'avec I'interet com-
mun des nations commergantes, elle se borna d'abord a declarer
applicables a I'Escaut les articles 108 a 117 de I'Acte general de
Vienne (Bases de separation des 20-27 Janvier 183 1. Annexe A
au protocole n° 12).
Si la Conference s'en etait tenue la, elle eut traite I'Escaut
comme un fleuve international ordinaire, elle eut meconnu la situa-
tion anormale, exceptionnelle dans laquelle il se trouve par le fait
qu'une puissance etrangere, concurrente d'Anvers, y detient les is-
sues de ce port mondial, sans qu'aucun intiret personnel ne Vinclte a
favoriser son appropriation, voire simplement a prendre les mesures
que requiert son entretien.
La conference de Londres n'a pas verse dans cette erreur ou,
plus exactement, elle ne s'y est pas attardee.
Comprenant que, dans le cas special de I'Escaut, I'application
des principes de Vienne se heurteralt a des ecueils qui en briseraient
I'efficacite si I'on ne prenait soin de les renforcer par des garanties
complementaires, elle insera dans les XXIV articles d'octobre-
novembre 1831 une disposition nouvelle ainsi congue:
"En ce qui concerne specialement la navigation de
I'Escaut, il sera convenu que le pilotage, le balisage aInsi
DOCUMENT 300 457
que la conservation des passes en aval d'Anvers seront
soumis a une surveillance commune j * * * que des droits
de pilotage moderes seront fixes d'un commun accord et que
ces droits seront les memes pour le commerce hollandais et
pour le commerce beige."
Ainsi se trouvait consacre le principe de la "Surveillance com-
mune" — principe evidemment exorbitant du droit commun, si Ton
entend par droit commun le regime des fleuves ordinalres. Pendant
sept annees, le cabinet de La Haye ne cessa de soutenir que la con-
ference, par ces dispositions nouvelles, instituait sur le Bas-Escaut
une sorte de co-souverainete. II n'est pas contestable, en tous cas,
que I'exercice de la souveralnete hollandalse se trouvait restreint dans
une mesure beaucoup plus large qu'il ne I'eut ete par la seule appli-
cation des prlncipes du Congres de Vienne. Cette attitude de la con-
ference lul etait Imposee par la logique des choses; et c'est ce que
les diplomates de Londres repondlrent a la HoUande, qui leur pro-
posait en exemple le regime du Rhin:
***** Le commerce des principales villes de la Hollande
se fait par ce fleuve (le Rhin) , dit leur memoire du 4 Janvier
1832, et sur des batiments auxquels le gouvemement neer-
landais est interesse a ofi^rlr des facilltes. Le meme interet
n^existe pas sur I'Escaut * * * et le pilotage, ainsI que le
balisage semblaient y reclamer une garantie de plus. La con-
ference avait d'allleurs entendu la Hollande invoquer le droit
de cloture de I'Escaut, elle avait ete avertis que, faute d'en-
tretien des ballses, la navigation des passes de ce fleuve com-
mengalt a devenir difficile. II n'est done pas surprenant
qu'elle ait juge necessaires des stipulations destlnees a pre-
venir le renouvellement d'une telle difficulte (t)."
La conference tint bon et le tralte du 19 avril 1839 comme les
XXIV articles, etablit la surveillance commune du pilotage, du bali-
sage et de I'entretien des passes, la fixation d'un commun accord des
droits de pilotage et le droit reciproque de peche.
II va meme plus loin, car Texperience de sept annees qui s'etalent
(t) Bon Guillaume. L'Escaut depuis 1830. 1-46.
458 DOCUMENT 300
ecoulees depuis la redaction des XXIV articles avait fait apparaitre
aux yeux de la conference I'insuffisance de son systeme. Aussi s'etalt-
elle resolue a le completer par trois dispositions,* la premiere auto-
risant les deux pays a etablir des services de pilotage dans tout le
cours de I'Escaut et a son embouchure, — la deuxieme fixant le
montant du droit de tonnage a percevoir par la HoIIande, — la
troisieme obligeant le gouvernement neerlandais a ouvrir a la navi-
gation beige "d'autres voies aussi sures, aussi bonnes et commodes"
si des evenements naturels ou des travaux d'art rendaient un jour
impraticables les voies de navigation visees par le traite.
Precautions nouvelles, procedant toujours du meme point de vue.
La conference de Londres a done parfaitement
Caractere compris les difficultes qu'entraine la position de
batard de la ^ ^ ^ ^
solution a I'Escaut. EUe s'est rendu compte que, pour repondre
s'est arret^e. a cette situation particuliere, un regime special s'im-
posait. Mais elle n'a pas ose tirer de ses constatations les conse-
quences qui, loglquement, en decoulaient. Par crainte de deplaire a
la Hollande et aux cours du Nord qui encourageaient sa resistance,
elle a recule devant la seule solution du probleme qui soit conforme a
la nature des choses et aux interets du commerce mondial : I'attribu-
tion a la Belgique de la maitrise du Bas-Escaut appuyee par la pos-
session de la rive gauche.
La formule du traite de 1839 est une formule batarde. Le prin-
cipe modeme de la liberte des fleuves y coudoie certains vestiges du
systeme odieux qui avait consomme jadis la ruine d'Anvers par la
fermeture de I'Escaut. Ce melange d'elements contradictoires ne
pouvait etre que la source d'incessantes difficultes. Celles-ci ne
prendront fin que le jour ou I'autorite sur le Bas-Escaut sera at-
tribuee sans reserves, sans entraves, a I'etat qu'interesse directe-
ment la prosperite d'Anvers.
La "surveillance commune" imaginee en 1831 n'est qu'un pal-
liatif dont I'experience a montre I'insuffisance.
.^r
DOCUMENT 300 459
III
NOTRE FRONTIERE DE L'eST.
Notre frontiere de Test est entierement artificlelle. Elle ne cor-
respond ni a la delimitation des groupes nationaux, ni a des donnees
geographlques ou historiques. Exclusivement determinee par les
vues politiques et les convenances militaires de nos voisins, elle ap-
parait comme une survivance des traites de 1815, et la conference de
Londres a plutot empire qu'ameliore ici I'ceuvre du congres de
Vienne.
* * *
Le traite de Paris du 30 mai 18 14 prevoyait la
L'oeuvre ^ ^ t f j
de 1815. creation du Royaume des Pays-Bas. Des articles
secrets en reglaient sommairement les limites. Aux termes de I'un
d'entre eux, "les pays compris entre la mer, les frontieres de la
France telles qu'elles se trouvent reglees par le present traite, et la
Meuse" devaient etre reunis a la HoUande. L'article suivant portait
"Les frontieres sur la rive droite de la Meuse seront reglees selon les
convenances militaires de la HoUande et de ses voisins."
La question de la possession de la rive droite de la Meuse etant
ainsi reservee aux negociations futures, les allies reglerent par la con-
vention militaire du 31 mai 18 14 I'occupation provisoire des terri-
toires reconquis. Celle de la rive gauche du fleuve fut confiee aux
armees anglo-hollandaises; celle de la rive droite aux armees prus-
siennes.
Immediatement les efforts de la Prusse tendirent a convertir ce
droit d'occupation en un droit de souverainete.
lis se heurterent toutefois a I'opposition du Gouvemement
britannique: Wellington, en effet, caressait le projet de porter le
nouveau royaume des Pays-Bas jusqu'au Rhin, dans Tinteret de sa
defense militaire.
La politique anglaise et la politique prussienne entraient directe-
ment en conflit. Elles durent I'une et I'autre renoncer a la realisa-
tion integrale de leurs plans.
460 DOCUMENT 300
En vertu des articles 25 et 66 de I'acte final de Vienne (^), le
Royaume des Pays-Bas garda, dans leur ensemble, les anciens de-
partements de I'Ourthe et de la Meuse inferleure, ainsi que les deux
rives de la Meuse depuis Venloo jusqu'a Knock.
Neanmoins la Prusse, grace a son obstination tira de la com-
binaison certains avantages precieux dont patit notre frontiere de
I'Est.
Solidement assise sur le Rhin, elle se vit attribuer toute la partie
du Luxembourg situee sur la rive droite de la Moselle et sur la rive
gauche de la Basso-Sure et de I'Our. Elle mit la main sur Saint-
Vith, Reuland et tout le canton qui les entoure; s'empara de Mal-
medy, Cronenbourg, Biitgenbach, Elsenborn, du canton d'Eupen et
d'une partie du Moresnet. Plus au Nord, elle s'appropria Rolduc et
UBach et enfin les territoires de Haute-Gueldre bordant la rive
gauche du Zwalmen. Nous perdimes notre rempart de I'Eifel.
D'autre part, en vertu de I'article 67 de I'Acte de Vienne, la
Confederation germanique etendit son controle sur I'ancien duche de
Luxembourg.
Depuis le commencement du moyen age Thistoire du Luxem-
bourg s'etait confondue avec celle de la Belgique. C'est comma
province beige que la loi du 9 Vendemiaire, an IV, I'avait reuni a la
Republique Frangaise.^^^ C'est comme tel que I'Autriche I'avait
cede a la France par les traites de Campo-Formio et de Luneville.
C'est comme tel enfin que le traite de Londres de juin 18 14 I'avait
donne a la Hollande. Jusqu'en 18 15 le Luxembourg n'avait jamais
eu de rapports speciaux avec I'Allemagne.
Mais I'importance strategique du Duche n'avait pas echappe aux
Allies. Batie sur un rocher et entouree de vallees etroites sa capitale
etait consideree comme une citadelle inexpugnable. La situation du
Luxembourg decida de ses destinees au Congres de Vienne. Les
(1) Precises par les Conventions d'Aix-la-Chapelle et de Cloves de 1816.
(2) II forma les Departements des Forets et une partie de ceux de I'Ourthe
et de Sambr€ et Meuse.
DOCUMENT 300 461
Puissances alHees, apres Tavoir ecorne au profit de la Prusse (*)
exclurent du Royaume des Pays-Bas la plus grande partie de I'ancien
duche, celle qui avait forme le Departement des Forets de I'Empire
Frangais. Mais, par une sorte de tour de passe-passe, elles rendirent
ce territoire au Roi Guillaume, personnellement, en compensation de
ses principautes patrimoniales allemandes de Nassau-Dillenbourg,
Siegen, Hadamar et Dietz, auxquelles il renongait. L'ancien duche
prit le nom pompeux de Grand Duche de Luxembourg et dut entrer
dans la nouvelle Confederation germanique ; la ville de Luxembourg
devint une forteresse federale; le Roi des Pays-Bas, en sa qualite de
Grand Due, fit partie du College des Princes allemands de la Con-
federation.
Ainsi les Traites de Vienne, tout en refusant a la Prusse la
frontiere de la Meuse Ten rapprochalent sensiblement et ouvraient
a I'influence allemande certains points vitaux de notre systeme naturel
de defense.
Telle etait la situation lorsque la revolution beige
Les revendica-
tions de la yint remettre en question I'oeuvre de 18 15.
Belgique en
1830, Forte de ses droits historiques et voulant d'autre
part se constituer sur des bases capables d'assurer son independance,
la Belgique revendiqua immediatement la possession integrale du
Luxembourg et du Limbourg.
En ce qui concerne le Limbourg elle faisait valoir que cette
province avait toujours fait partie de son territoire. II est vrai que
la Hollande y avait possede jadis certaines enclaves groupees autour
de Maestricht, de Stevensweert et de Venloo. Mais ces enclaves
avaient ete cedees a la France par le traite de la Haye de 1795.
Parmi elles Maestricht occupait une situation speciale en ce sens que
la souverainete n'y avait jamais appartenu pleinement a la Hollande,
qui jusqu'en 1795 en partageait I'exercice avec les Princes Eveques
de Liege.
(1) La Prusse obtint en toute souverainete les cantons de Bitbourg, de Salnt-
Vith, de Schleiden et de Cronenbourg.
462 DOCUMENT 300
Quant au Luxembourg, ses negociateurs n'eurent guere de peine
a etablir, pieces en mains, que la fiction imaginee par le Congres de
Vienne pour le soumettre au controle de la Confederation germanique
n'avait pas affecte sa qualite seculaire de province beige.
De 1 815 a 1830, Luxembourg en effet n'avait cesse de partlciper,
en droit et en fait, a la vie politique et administrative du Royaume
des Pays-Bas. A aucun moment il ne fut considere par le Roi
Guillaume comme un etat distinct de ses autres possessions. Soumis
a la meme constitution, au meme ordre successoral, aux memes insti-
tutions, aux memes lois, il resta, ce qu'il avait toujours ete, partie
integrante de la Belgique. Ses deputes siegerent aux Etats Gene-
raux, ou ils furent comptes parmi les 55 representants acordes au
peuple beige.
Si les traites de Vienne I'avaient greve d'une servitude au profit
de la Confederation, pour le surplus aucune deviation ne s'etait
operee dans le cours de son histoire.
Les evenements eux-memes se chargerent d'ailleurs de prouver a
I'Europe que le Luxembourg etait bien reste beige. Spontanement
le Grand Duche s'associa au mouvement revolutionnaire de 1830 et
lui fournit des I'origine certains de ses chefs les plus eminents au
premier rang desquels se dessine la grande figure de J. B. Nothomb.
Dans le Limbourg comme dans le Luxembourg les revendications
de la Belgique independante ne faisaient que repondre aux voeux
librement et nettement exprimes des populations.
Le droit des peuples de disposer d'eux-memes eut suffi pour les
justifier.
Quelle que fut leur legitimite la Conference de
Les solutions Londres refusa de les admettre.
successivement
admises par la Son principal souci etait le maintien de la paix
Conference de ^ ^ ^ ^ ^
Londres. generale. Manoeuvree par la Prusse, elle y sacrifia
nos droits et nos interets.
Au cours des negociations, trois solutions recuelUIrent succes-
sivement son adhesion.
DOCUMENT 300 463
La premiere fut celle des "bases de separation" du mois de
Janvier 1831. Elle exclusit purement et simplement du territoire
beige le Grand Duche de Luxembourg. Quant au Limbourg, elle
se bornait a poser le principe d'un echange d'enclaves, sans prejuger
I'application qui en serait faite (').
La deuxieme solution — celle des XVIII articles du 26 juin 1831
— marque sur la precedente un notable progres en notre faveur.
Elle maintenait, il est vrai, pour le Limbourg le principe d'un
echange d'enclaves, mais dans des conditions nouvelles qui nous
permirent, de compter sur la possession integrale de cette province
("). D'autre part, elle detachait la question luxembourgeoise de
I'ensemble du probleme hoUando-belge, la soumettait a une nego-
ciation distincte et nous faisait esperer non seulement la possession
provisoire du Grand-Duche pendant tout le cours de cette negocia-
tion, mais encore son acquisition definitive.
La troisieme et derniere solution — celle des XXIV articles du
15 novembre 1831 reprise dans le traite du 19 avril 1839 — porte
la marque des revers subis par nos amies au mois d'aoiJt 1831 en
meme temps qu'elle enregistre une victoire nouvelle des pretentions
prussiennes. Une preoccupation la domine : celle d'etablir le con-
trole allemand sur les positions strategiques importantes du Lim-
bourg et du Luxembourg pour faire contrepoids a I'influence fran-
^aise, dans I'orbite de laquelle les cours du Nord craignaient de
nous voir un jour ou I'autre entraines.
(I) Nous avons rappele plus haut que les Provinces-Unies avaient possede
jadis dans le Limbourg certaines enclaves cedces a la France en 1795 par le Traite
de La Haye. La Conference, en assignant a la Hollande ses frontieres de i790,
aboutissait a considerer cette cession comme non avenue. De la, I'article 4 des
"bases de separation" ainsi congu : "Comme il resulterait * * * des bases posees
dans les articles 1 et 2 que la Hollande et la Belgique poss6deraIent des enclaves
sur leurs territoires respectifs, il sera effectue par les soins des cinq cours tels
echanges, arrangements, entre les deux pays, qui leur assureraient I'avantage
reciproque d'une entiere contiguite de possession et d'une libre communication
entre les villes et places comprises dans leurs frontieres."
(II) Les 18 articles assignaient a la Hollande ses possessions de 1/90, tout
le reste de Tancien royaume des Pays-Bas revenant a la Belgique. Or en 1790
certaines enclaves allemandes subsistaient encore en territoire hollandais, qui ne
furent cedees 4 la Hollande qu'en 1800. D'apres le systeme adopte par la Con-
ference, ces enclaves nous appartenaient done et leur ^change centre celles que
la Hollande pouvait revendiquer dans le Limbourg eut eu pour effet de nous
assurer toute I'etendue de cette province. C'est ce que les negociateurs beiges,
sp6cialement Nothomb, reussirent k faire admettre par la Conference.
464 DOCUMENT 300
Le Luxembourg fut coupe en deux trongons, I'un rattache a la
Belgique, I'autre continuant a faire partie, comme etat distinct, de
la Confederation germanique.
En compensation de ce pretendu cadeau, la Conference de
Londres nous enleva la partie septentrionale du Limbourg, toute la
rive droite de la Meuse ainsi que la position capitale de Maestricht.
Au point de vue beige, cette solution etait desastreuse. EUe
nous privait de territoires importants qui au cours de I'histoire
n'avaient cesse de faIre partie integrante de notre sol. EUe mena-
gait nos interets commerciaux et paralysait notre defense militaire.
, . , Au point de vue allemand elle constituait un re-
La solution du
Traite de 1839 marquable succes.
marque la vic-
toire de la Sans doute le Luxembourg se trouvait-il mor-
politique
germanique. cele. Mais la Confederation germanique en con-
servait tous les points essentiels, notamment la forteresse de Lux-
embourg. La partie qui nous etait laissee ne representait, au point
de vue economique et strategique, qu'une importance tout a fait
secondaire.
De plus, le Grand-Duche, detache de la Belgique, prive desor-
mais de toute liaison territorial avec la Hollande et reduit a des
proportions minuscules, ne pouvait manquer de tomber plus com-
pletement encore sous le controle allemand.^^*
De ce cote la Prusse ne perdait done rien a la comblnaison.
Elle y gagnait par contre, dans le Limbourg une position que
ni Tune ni I'autre des deux solutions precedemment envisagees par
la Conference ne lui permettait d'esperer.
Les articles 3 et 4 du Traite du 19 avril 1839, en etablissant
(I) La dissolution de la Confederation germanique en 1867 fit disparaitre le
Hen qui le rattachait primitivement a rAllemagne. Sous d'autres formes, et
par d'autres voies, I'influence allemande n'en continua pas moins a s'exercer dans
ie Grand-Duch6. En 1842, en effet, le Luxembourg etait entr6 dans le Zollverein.
D'autre part, la guerre franco -allemande de 1870 fournit a Bismarck I'occasion
de mettre la main sur le siseau du Guillaume-Luxembourg. Enfin I'avenement
au trone grand-ducal de la Branche allemande des Nassau y favorisa a son tour
la penetration germanique. Livre a toutes ces influences, neutralist et desarme
par le Traite de Londres du II mai 1867, comment le Luxembourg eut-il pu
resister a la formidable pression de son voisin de I'Est?
DOCUMENT 300 465
un rapport de compensation entre la cession d'une partie du Lux-
embourg et celle d'une partie du LImbourg, soudaient etroitement
I'une a Fautre ces deux questions.
Aux termes des articles 3 et 4 les territoires limbourgeois qui
nous etaient ravis se trouvaient cedes a titre "d'indemnite terri
toriale" au "Roi des Pays-Bas, Grand-Due de Luxembourg," qui
devait les posseder "soit en sa qualite de Grand-Due de Luxem-
bourg, soit pour etre reunis a la Hollande."
Par I'article 5, le Roi-Grand-Duc etait invite a s'entendre avec
la Confederation germanique sur les arrangements a prendre pour
I'application des articles precedents.
Ce n*est pas sans peine que Ton se mit d'accord sur cette for-
mule. La Hollande eut voulu se voir attribuer en toute souve-
ralnete le Limbourg septentrional et la rive droite de la Meuse.
Mais la Prusse, quel que fut le lien qui I'unissait a la Dynastie
de Nassau, quelque confiance qu'elle mit dans la politique du
Gouvernement neerlandais, entendait profiter de I'occaslon pour
s'assurer d'une fagon plus substantielle et plus certaine la con-
trole de notre defense mosane. Elle exigea que les droits federaux
dont se trouvait precedemment greve le Luxembourg wallon fus-
sent reportes sur la partie du Limbourg dont I'abandon nous etait
impose. La Hollande dut s'incliner devant les pretentions de la
Confederation germanique.
Le Limbourg, erige en duche, fut rattache a la Confederation.
Celle-ci, par un acte d'accession portant la date du 19 avril 1839
donna son agrement aux arrangements territoriaux conclus le meme
jour entre la Belgique et la Hollande sous I'egide et la garantie
des cinq cours representees a Londres. Cet acte fait apparaitre
sous son vrai jour la portee des combinaisons que la diplomatie des
grandes Puissances nous contraignait d*accepter. II en souligne le
caractere nettement germanique.
466 DOCUMENT 300
IV.
LA NEUTRALISATION DE LA BELGIQUE.
La Structure territoriale que les Traites de 1839 nous ont im-
posee precede de la mefiance que les Cours du Nord nous
temoignaient et de leur volonte de maintenir sous une forme nou-
velle la barriere que le Congres de Vienne avait dressee contre la
France.
La statut de neutralite permanente dont ils ont greve la Bel-
gique trouve son origine dans les memes sentiments et dans le
meme dessein.
"Les Beiges, ecrivait un des membres de la Conference de
Londres, ont ete de tout temps une nation inquiete et turbulente. II
semble necessaire de la condamner en quelque sorte a une existence
paisible et de la forcer a porter son attention entiere sur le com-
merce et I'industrie qui la rendraient tous les jours plus rivale de
la France et plus disposee a la Hollande."<^^
En nous mettant a I'ecart des mouvements de la politique inter-
national, en elevant autour de nous la cloison conventionnelle de
la neutralite, on voulait reduire autant que possible I'avantage que
la France pouvait retirer du bouleversement survenu dans I'oeuvre
du Congres de Vienne.
A la Belgique la neutralite permanente fut presentee comme un
gage d'inalterable securite. Placee sous la garantie des Puissances,
elle devait nous mettre a I'abri de toutes les convoitises etrangeres.
Des lors ne justifiait-elle pas I'attitude de la Conference dans le
reglement des contestations territoriales? Qu'importait la valeur
strategique de nos frontieres, si nous etions assures d'une paix sans
melange? On le voit, tout se tient et s'engrene dans le systeme
des traites de 1839.
* * *
(I) Rapport du Prince de Lieven, du 22 Janvier 1831, citant un propos de
Lord Palmerston.
DOCUMENT 300
467
Ce systeme n'eut pas le fruit de notre libre volonte, pas plus
qu'il n'est sorti de la volonte libre de la HoUande.
L'Europe Timposa au nom d'une conception politique aujour-
d'hui abolie.
Nous n'acceptames son verdict que la mort dans Tame.
"Sa Majeste desirant epargner a son peuple tous les
malheurs qu'entrainerait a sa suite I'execution forcee de ces
XXIV articles, et ne voulant pas exposer I'Europe a une
guerre generale, cede a la loi imperieuse de la necessite, ad-
here aux conditions dures et onereuses qui sont imposees a
la Belgique par la Conference de Londres. II a fallu toutes
ces considerations, il a fallu enfin une force majeure a
laquelle rien ne saurait resister pour que Sa Majeste put se
resigner a abandonner des populations genereuses qui I'ont
saluee a son avenement comme leur liberateur et leur sou-
tien, et qui pendant quinze mois, se sont impose toutes les
privations et ont montre un devouement a toute epreuve
pour le soutien d'une cause et d'un etat dont une necessite
cruelle leur impose la loi de ne plus faire partie."
Ainsi s'exprimait notre Plenipotentiaire a Londres, Sylvain
Van de Weyer, en adherant aux XXIV articles.
La Belgique depuis lors a fait ses preuves.
Elle renouvelle aujourd'hui sa protestation de 1831 et demande
reparation de I'erreur dont elle fut la victime.
'.'^i'. ■<'':{
468 - —
DOCUMENT 301
Abstract" of Confidential Memorandum^ Submitted to the American
Commission to Negotiate Peace by His Excellency the Belgian
Minister at Paris^ 17 January, 1919
The intention of Belgium to demand the revision of the Treaties
of 19 April, 1839 was brought to the notice of the Allied Govern-
ments at the close of their conference at Paris, 26 July, 19 17. Upon
the signing of the armistice, and since then, the Belgian Government
has invited France and England to join it in considering the re-
vision of the Treaties of 1839.
The Treaties of 1839 were not the result of a free negotiation
between Holland and Belgium, but were imposed upon each of
them by Austria, France, England, Prussia and Russia.
The opposition thereto of Holland continued from 1831 to
1839. Belgium only accepted the conditions imposed, including
her neutralisation, because she was led to believe that such an ar-
rangement would definitely protect her against the danger of be-
ing drawn into future wars between the Great Powers. She con-
sented to the dismembering of her territory only because of the risk
of bringing about a general European war attached to a further
resistance. The foregoing was borne out by the protest of the
Belgian Parliament, and of King Leopold the First, upon the sign-
ing of the Treaties of 1839, ^^^ ^y the authorized organizations
of the lost provinces.
By reason of the present war, from which Belgium was to be
protected, the arrangement has become bankrupt and the Treaties
of 1839 have ceased to exist, especially as the war was brought on
by two of the guarantor Powers.
The historical and juridical notes'' which accompany the present
a. See Diary, p. 108.
b. Document 298.
c Documents 299 and 300.
.r^-
DOCUMENT 301 469
memoire sufSciently show the purpose of the Treaties of 1839, as
well as the entirety of the arrangement, so that the revision of the
whole becomes necessary by reason of the failure of a part thereof.
The other Powers are equally interested with the Powers sig-
natory to the Treaties of 1839 in the new system which must re-
place the old.
This new system must be determined by France, Great Britain
and Belgium, and when agreed upon with Holland can be com-
municated to the enemy Powers which have broken, and to Russia
which has failed to discharge her obligations and her treaties.
If Holland had an historical right to independence, Belgium at
least had an historical right to autonomy.
The distrust of the great Powers in Belgian military capacity
was increased by the defeat suffered in 1S31 by the Provisional
Government.
The Conference of London accordingly strengthened the Dutch
half of the former Kingdom of the Netherlands at the expense of
the Belgian half, in spite of the protest of the inhabitants of the
latter.
The eastern half of the Grand Duchy of Luxembourg was
given to the Dutch dynasty and incorporated in the North German
Confederation which garrisoned the same.
The eastern part of Limbourg, including the forest of Maest-
richt, is the key to the line of the Meuse.
The neutralisation of Belgium, and its guarantee by the great
Powers, was intended to compensate Belgium for the weakness of
frontiers thus imposed.
The War of 1914-1918 has shown the errors of the arrange-
ment of 1839. The neutral and disarmed territory of the Grand
Duchy of Luxembourg was immediately occupied by Germany and
used as the natural field of concentration by the German armies.
470 DOCUMENT 3OI
Antwerp could not be relieved by reason of the sovereignty of Hol-
land on both banks of the Scheldt. The impossibility of the neu-
tralisation of Belgium in the future logically implies the necessity
of returning to Belgium the lost provinces of which she would not
have been deprived by the Powers in 1839 unless they had believed
that her neutralisation would prove efficacious. Belgium counts
on the initiative and cooperation of the French and Belgians in the
correction of the error and the injustice done her in 1839, ^^^ ^^"'
sequences of which have brought her to the verge of destruction.
Unless the peace fully satisfies the Belgian's just claims she will
be left morally stultified by the victory to which she has contrib-
uted, and her future existence would be even more precarious than
under the arrangement of 1839.
Holland, under the system of 1839, received advantages upon
an hypothesis which the course of events has not justified. She
was expected to play her part in a general European war, but cir-
cumstances have allowed her to remain neutral without doing so,
and without even protesting against the violation of the Treaties
to which she is a party, but Belgium will make no complaint on
Holland's attitude, unless she objects to the revision of the Treaties.
The rectification of the Belgian frontier should be the subject
of friendly negotiations with Holland which should receive com-
pensations in Prussian Gueldres and East Frisia, or in Colonial
territory or financial indemnities, or in the guarantee of the peaceful
possession by Holland of her Colonies, or otherwise. The main-
tenance of the friendly relations with Holland, so important to
Belgium, will become difficult, if the former obstinately refuses to
become a party to such an arrangement, and will be put to a serious
test.
The following expresses the solution which the Belgian Gov-
ernment hopes may be adopted :
DOCUMENT 301 471
1. Belgium must be free from her former neutralisation, and
must enjoy full sovereignty with other free nations.
2. For the commercial freedom of Antwerp, in peace, and its
safety in war, the position of Holland and Belgium on the Scheldt
must be reversed, sovereignty over that river passing to Belgium,
subject to such restrictions as are necessary to the protection of
Dutch interests therein. The territory on the left bank of the
Scheldt must become Belgian territory.
3. Since the prosperity of Belgium depends upon that of Ant-
werp, and that of the latter on the economic ways of communica-
tion feeding that port, Belgium must be in position to develop
such ways running East and West across Dutch Limburg, which
have hitherto been neglected by the Dutch, in order to reach Cre-
feld, StoUberg, Munchen, Gladbach, Neuss, etc., whose outlet is
naturally by way of Antwerp.
This would only be just, as Rotterdam and Amsterdam, which
compete with Antwerp, have received an unfair advantagfe-by the
closing of the Port of Antwerp during the four years of the war.
Furthermore, the strategical safety of the eastern Belgian frontier
is involved, for the entire line of the Meuse can be turned at any
time in the future at which Germany may choose to violate Dutch
neutrality for that purpose and seize Dutch Limburg, with its
bridgehead across the Meuse at Maastricht. Holland has admit-
ted her inability to defend southern Dutch Limburg by her consent
to the withdrawal of the German troops across that territory in
19 18. Thus the question of Limburg has been raised by the events
of the war of 1914-1918.
4. The Belgian Government has communicated to its Allies
its views on the Grand Duchy of Luxembourg, which will itself de-
cide its future within the limits which the safety of Belgium im-
poses. In this respect the Belgian Government deems the con-
tinued existence of its neutrality and Its guaranty to be impossible,
as well as the continued existence of its economic ties with the Ger-
472 DOCUMENT 3OI
man Empire. In this respect the Belgian Government knows that
the intentions of the Government of Luxembourg are in accord with
its own wishes.
In 18 15 the cantons of Rolduc and Eupen were detached from
the Duchy of Limburg; Malmedy was separated from Stavelot;
the districts of St. Vith, Schleiden, Cronenburg, Bitbourg, Arzfelt,
etc., from the Duchy of Luxembourg, and were assigned to Prus-
sia in compensation for her renunciation of claim to certain Saxon
territory.
The Belgian Government today has the right to reclaim from
Prussia such territory taken from it solely in the interest of Prus-
sia. Furthermore, the present eastern frontier of Belgium is so
close to Liege that the German army was able to attack that for-
tress on the 4th August 19 14, a few hours after crossing the fron-
tier.
The canton of Malmedy is entirely Walloon, and already many
of its inhabitants have asked for its union to Belgium. Th^ Prus-
sian and Belgian condominium over the small neutral territory of
Moresnet must be terminated in Belgium's favor.
Whether these latter claims of Belgium be granted in full, or in
part, in either event a large strip of Prussian territory will exist on
the left bank of the Rhine.
Under present circumstances Belgium demands to be heard
when the question of the positions relative to the left bank of the
Rhine come to be considered.
..uv
473
DOCUMENT 302
Summary of Juridical Note* upon Revision of the Treaties of 1839
Part I
The Basis and Extent of the Revision
A revision in respect of all Powers signatory to the Treaties
(Austria, Belgium, German Empire, Great Britain, France, Hol-
land, and Russia) of all clauses thereof is proposed by the Belgian
Government.
Belgium has the right to consider the Treaties at an end as far
as concerns Germany and Austria.
The right of Russia to participate in any revision of the
Treaties is denied by reason of her abandonment of her own per-
formance thereof.
Great Britain and France, who have fully performed, have ad-
hered to the abrogation of the stipulation for neutralization.
Two arguments are advanced in support of the proposition for
the necessity of the revision of the Treaties : ( i ) based upon the
proposition that the arrangement of 1839 was imposed both upon
Holland and upon Belgium as part of a European political system
which has passed away. (2) based upon the proposition that the
consideration received by Belgium for concessions in other respects
made to Holland by the Treaties of 1839 has failed when her neu-
trality was violated by Germany and Austria.
The violation of the Treaties of 1839 in respect to an essential
clause gives Belgium the right to denounce the Treaties in their en-
tirety, and to seek a revision thereof In all respects.
(i) The breach of a treaty In an essential respect gives the
other party thereto the right to denounce the same. The author-
ities are divided only on the question whether such violation must
be of an essential clause.
(2) The provisions of the Treaties of 1839 form an indivisible
whole.
a. Document 299. See Diary, p. 108.
474 DOCUMENT 302
Belgium has been prejudiced by the violation of an essential pro-
vision of the Treaties.
Accordingly, Belgium undeniably has the right to demand a
revision of the Treaties in all respects.
Part II
Procedure to be followed in the matter of the Revision of the
Treaties of 1839* ^^^ P^^^ ^f Great Britain and of
France in the Negotiations.
The Treaties of 1839 being imposed upon Belgium and Hol-
land by the Powers in the general interest of Europe, it follows ( i )
that in their revision the general European interest must be con-
sidered; and (2) the revision requires the participation of France
and Great Britain, who are responsible for the system set up in
Europe by the treaties, and who have not breached them.
The failure of the system of 1839 creates an interest for the
two Powers in adapting the territorial arrangements then imposed
upon Belgium to the new order.
The frontiers of Belgium having been established in 1839 ^"
consideration of their protection by her neutralization, the neces-
sity for an improvement of the territorial delimitation of Belgium
results from the abrogation of her neutralization; in this respect
Belgium has the right to demand the support of the two guarantee-
ing Powers.
The appropriate form for such revision will be the participa-
tion of Holland, at their invitation, with Great Britain, France, and
Belgium, in a limited conference. An exchange of views should
precede such a conference with Holland for the purpose of an
agreement upon the principles to be applied, and the compensation
to be offered to the latter.
The agreement reached with Holland would then be imposed
upon the enemy guaranteeing powers, and communicated to Russia.
22 January, igig*
.-/" '^ '■■■ ■
475
DOCUMENT 303
Summary of Historical Note" upon the Revision of the Treaties
of 1839
I.
THE SPIRIT OF THE TREATIES OF 1 839.
The work of the Congress of Vienna was the
the Congress joining of Belgium and Holland in the Kingdom of
of Vienna. ^^^ Netherlands established against France and
open to the Coalition of the other Great European Powers; the
protection of the Moselle and the Rhine being given to Prussia.
The Belgian revolution of iS-io destroyed this
Disturbance . .
of tMs work by arrangement, while Belgium's territorial delimita-
the Belgian
revolution. tion raised the question of Prussian encroachment
towards the Meuse. Sympathy between the revolutionary move-
ments of the day in France and in Belgium increased the concern of
Prussia and Russia.
The fait accompli made the re-establishment of
tiie^CoJSence the system of 1815 impossible. The Conference
of London. sought to preserve its spirit and achieve its object
by "such new arrangements as will be most proper to bring the in-
dependence of Belgium in line with the stipulations of the Treaties,
with the interests and security of the other Powers, and with the
maintenance of the balance of Power in Europe."t*>
"It will no doubt appear impossible that Bel-
The fate of the gium should constitute an independent State with-
Belgian claims. ^^^ ^^^ immediate guarantee of the freedom of the
Scheldt, of the possession of the left bank of this River, of
the entire province of Limbourg, and of the Grand Duchy
of Luxembourg." (**)
Only a limited and insufficient freedom of the Scheldt was ac-
corded. Its left bank, and the more important possessions of Lim-
a. Document .300. See Diary, p. 108. , , , ^ „ ^ ,„,^ „ „
(*) 7th Protocol of the Conference of London, 20 December 1830, Br. &
For. St. Pap., vol. 18, p. 749. ^ . ^ ^ t io«
(**) Belgian Note to the Conference of London, dated 3 January ISSh
476 DOCUMENT 303
bourg and Luxembourg were denied to Belgium by the Conference
of London.
Permanent neutralization completed tliis system of territorial
occupation.
The Europe of 1830 failed to grasp the neces-
the^C^erence sity for a free and strong Belgium. Prussia's and
o on on- Russia's distrust of France and Belgium resulted in
the paradox of the recognition of Belgium's right to existence with-
out according it the means of fulfilling the mission entrusted to it
by its geographical position. The unsoundness of this work has
been shown in the course of the present war.
IL
THE QUESTION OF THE SCHELDT.
. . , The artificiality of the Dutch position on the
The origin and ^ ^
significance of left bank of the natural riverain boundary is appar-
the Dutch posi- . .
tion on the left ent from the map. It is the expression of an abid-
bank of the '^ '^
river. ing Dutch policy in that it throttles the port of
Antwerp for the benefit of Amsterdam, and gives Holland a bridge-
head for its defense against France and Spain, and is thus a sur-
vival of the system of the "barrier."
The Dutch claim of full sovereignty for the
The Scheldt ^ . .
from the lower Scheldt, as against the Belgian claim of its
Treaty of Miin- ^ ^
ster to 1830. freedom, was established in the Treaty of Miinster
(1648), and confirmed by the Treaty of Fontainebleau (1785),
and lasted until revolutionary France freed the Scheldt, i Febru-
ary, 1793, and accordingly obtained the cession of the left bank
from Holland by the Treaty of The Hague (1795).
Upon the outbreak of the revolution in 1830,
DutdS^clahns ^^ Dutch closed the Scheldt, and presented their
^ ' claim to its control to the Conference of London. ^*>
(♦) See Note 10 Dec. 1830, Annex B, Protocol No. 5, Br. & For. St. Pap.,
vol. 18, p. 74a -, ,
DOCUMENT 303 477
Belgium claimed the left bank as necessary to the freedom of
the Scheldt, to the drainage of Flanders, and as containing the
canal which is the commercial outlet of Ghent.
"Without possession of the left bank of the Scheldt,
Belgian territory will lie open and the free navigation of
the River can be no more than an illusory stipulation.''^*'
The attitude of ^^ Conference compromised by applying to
the Conference, the Scheldt Articles 108 to 1 17 of the General Act
of Vienna. ^t^ The Conference added a condition, in view of the
special circumstances, in the following terms:
"As to that which specially concerns the navigation of
the Scheldt, it shall be agreed that the pilotage, the buoy-
ing, as well as the maintenance of the channels below Ant-
werp, shall be submitted to joint administration; * ^ *
that moderate pilotage fees shall be agreed on, and that
such fees shall be the same for Dutch and Belgian com-
merce."^1:>
"The commerce of the principal cities of Holland
passes by this river (the Rhine) , and by vessels in the offer-
ing of facilities to which the Dutch Government is inter-
ested. It has the same interest on the Scheldt * * *
and there the pilotage and buoying seem to demand an
additional guarantee. The Conference had furthermore
heard Holland on the right to close the Scheldt, and had
received notice that the failure to maintain the buoys was
making the navigation of the channels of that River diffi-
cult. Thus it is surprising that it had deemed necessary
stipulations intended to prevent a recurrence of such a dif-
ficulty."(§> ,
The Conference held its ground, and in the Treaty of April
I9j 1839, beside the joint administration of the pilotage, buoying,
maintenance of the channels, determination by common agreement
of fishing rights and rights of pilotage, established three additional
(*) Memoire of the Belgian Delegates to Palmerston, 6 Jan. 1831.
(t) Bases of Separation, 20-27 Jan. 1831, Annex A, Protocol No. 12, ibid.,
p. 761.
(§) Bon 'Giiillaume. L'Escaut depuis 1830, vol. 1, p. 46.
478 DOCUMENT 303
stipulations: the first, authorizing the two countries to establish
pilotage of the entire course of the Scheldt and of its mouth; the
second, limiting the pilotage fees chargeable by Holland; and the
third, obliging the Dutch to open "other equally safe, good, and
convenient ways of communication," if the navigation of the River
should become impracticable.
Although the Conference of London appre-
nS:ur?^Sf the ciated the difficulties of the position on the Scheldt,
adopted by the ^^^ support given to Holland by Prussia and by
Conference. Russia prevented the adoption of the natural solu-
tion required by the interests of the world's commerce, to wit: the
possession by Belgium, and the mastery of the Lower Scheldt based
upon her possession, of the left bank.
The stipulations of the Treaty of 1839 are incoherent; the
modern principle of the freedom of international rivers is opposed
in those stipulations by remnants of the odious system which once
ruined Antwerp by the closure of the Scheldt. This mixture of
contradictory elements has given rise to difficulties which will end
only when the control of the Lower Scheldt is assigned without
reservation and without limitation to the state directly interested
in the prosperity of Antwerp. The joint administration devised
in 183 1 is but a palliative, the ineffectiveness of which has been
demonstrated by experience.
IIL
OUR EASTERN FRONTIER.
Our eastern frontier is entirely artificial, having neither a na-
tional, geographical nor historical basis. A delimitation expres-
sive of the political views and military convenience of our neigh-
bors at the Congress of Vienna was made worse by the work of
the Conference of London.
„ In 181 c Prussia was attempting to convert its
The work ^ ^ .
of 181S. right of occupation of the right bank of the Rhine
DOCUMENT 303 479
Into sovereignty. The English Government was opposed thereto,
Wellington being desirous of extending the new Kingdom of the
Netherlands to the Rhine in the interests of its military defense.
The resulting compromise gave the old imperial French Depart-
ments of the Ourthe and the Lower Meuse to Holland, as well
as both banks of the Meuse from Venlooto Knock.
Nevertheless, Prussia succeeded in obtaining a strong position ;
solidly entrenched on the Rhine, she obtained that part of Luxem-
bourg on the right bank of the Moselle and on the left bank of
the Lower Sure, and of the Our, as well as the districts of Saint-
Vith, Reuland, Malmedy, Gronenbourg, Butgenbach, Elsenborn,
Eupen, Moresnet in part, Rolduc, and Ubach to the north, and
upper Gueldres on the left bank of the Zwalmen. We lost our
rampart of the Elfel.
By Article 67 of the Act of Vienna, the North German Con-
federation obtained control of the Duchy of Luxembourg, which
has a long historical relation to Belgium and to France, despite
the grant of its dynastic sovereignty to the King of the Nether-
lands. Although the Treaty of Vienna denied Prussia the fron-
tier of the Meuse, it opened vital points of our natural defensive
system to that Power.
In 1830 revolutionary Belgium claimed the
Belgian claims , ...
of 1830. Provinces of Luxembourg and of Limbourg in their
entirety. Limbourg had always been Belgian. It is true that once
it contained certain old Dutch enclaves about Maastricht, Stevens-
weert, and Venloo, but these had been ceded to France in 1795.
Maastricht, however, had never been wholly Dutch, which coun-
try until 1795 shared the condominium thereof with the Prince
Bishops of Liege.
The Belgian character of Luxembourg was recognized by the
King of the Netherlands by its administration as a Belgian Prov-
ince from 18 1 5 to 1830. Its representatives sat In the States Gen-
eral, and were included in the fifty-five representatives allotted to
480 DOCUMENT 303
the Belgian people. The popular feeling of its inhabitants was
expressed by their spontaneously joining the Belgian Revolution
of 1830.
By right of self-determination Limbourg thus also belonged to
Belgium, as it joined the Revolution of 1830.
These Belgian claims were denied by the Con-
solutions ference of London, which, determined to maintain
Co*r§erence ^ peace, and under Prussian pressure, sacrificed Bel-
o on on. g-^^ rights and interests. Three solutions were suc-
cessively adopted by the London Conference: i) the "bases of
separation," leaving Luxembourg outside of Belgian territory, and
proposing an exchange of enclaves in Limbourg; 2) the "XVIII
Articles," making the Belgian claims to Luxembourg subject to
special negotiation; 3) the "XXIV Articles," whose provisions
were expressed in the Treaties of 1831-39, and which were the
result of the defeat of the Belgian forces in August, 1831. These
express the concern of Prussia and Russia at popular sympathy for
Belgium and France, and the German control accordingly estab-
lished for the improvement of the strategical positions in Luxem-
bourg and Limbourg as a counter check to French influence in Bel-
gium.
Half of Luxembourg was given to Belgium, the other half be-
came a separate State and a member of the North German Con-
federation. Belgium lost the northern half of Limbourg, and the
entire right bank of the Meuse, including the vital position of
Maastricht. This solution was disastrous for Belgium, threaten-
ing her commercial interests and paralysing her national defense.
„, ^ ^ The North German Confederation held all the
The Treaty of ^
1839 as a Get- strategic parts of Luxembourg, Including its for-
victory. tress. Limbourg, as well, was forced to submit to
the Imposition of those servitudes to which the members of the
North German Confederation were subjected.
^r
DOCUMENT 303 4? I
IV.
THE NEUTRALIZATION OF BELGIUM.
The neutralization of Belgium also has its origin in the dis- ,
trust of Prussia and of Russia.
"The Belgians have at all times been a restless and
turbulent people. It seems necessary to condemn Belgium
to a sort of peaceful existence, and to force her to give
her entire attention to commerce and to industry which
will from day to day increase her rivalry with France
and her good will towards HolIand."^*>
The object of the neutralization of Belgium was to reduce, as
far as possible, the advantage which the natural sympathy of the
Belgian people might give to France.
It served as an excuse for ignoring the strategical weakness of
the frontiers imposed. Nor was that system willingly accepted
by Belgium.
"His Majesty, desiring to spare his people the misfor-
tunes which would follow in the train of the forceful execu-
tion of these XXIV Articles, and being desirous not to ex-
pose Europe to a general war, yields to the imperious law
of necessity, and adheres to the hard and burdensome con-
ditions which are imposed upon Belgium by the Conference
of London. These considerations, and a force superior
beyond hope of resistance, have been necessary in order
that His Majesty should be able to resign himself to the
abandonment of those generous populations which accepted
him upon his arrival as their liberator and their support,
and who during fifteen months have willingly undergone ^
every privation, and shown a devotion beyond all belief, in
the support of a cause and of a state to which they may
not belong by a law imposed upon them by cruel neces-
sity." (**)
(*) Report of the Prince de Lieven, dated 22 Jan. 1831, citing the proposal
of Palmerston's. , , „ . ,r j «r
(**) Statement of the Belgian plenipotentiary at London, Sylvan Van de Weyer.
in adhering to the XXIV articles.
482
DOCUMENT 304
Observations? upon the Memorandum Submitted to the American
Commission to Negotiate Peace by His Excellency
the Belgian Minister at Paris
17 January, 1919
By direction of the American Commission to Negotiate Peace,
the undersigned have prepared the following observations upon the
confidential memorandum,'' and upon two notes'" in support thereof,
juridical and historical, submitted by the Belgian Minister at Paris
to the Commission. A brief summary of the more important points
therein presented is appended hereto.
The conclusions at which the undersigned have arrived, and
which are to be more fully set forth in this memorandum, are as
follows :
1. That of the Powers signatory to the Belgian Treaties of
1839 o"ly Belgium, France and Great Britain severally have ful-
filled their obligations thereunder. Austria, Germany, Russia and
Holland have either violated severally the expressed provisions of
the Treaties, or have failed severally in the performance of the
duties which they had thereby assumed.
2. That Belgium upon the conclusion of Peace will be pos-
sessed of the right to denounce the Treaties and each and every
part thereof.
3. That the claim of Belgium to a revision of the provisions of
the Treaties of 1839 has a quasi-juridical basis, to be viewed in the
light of justice both to Holland and to Belgium, under existing
circumstances.
4. That the revision of the Treaties is not a question concern-
ing only Belgium, France and Great Britain, and in the second In-
stance Holland, but on the contrary is one of general interest; ac-
a. Signed by James Brown Scott and D. H. M. Prepared by Mr. Warrin.
See Diary, p. 108.
b. Document 298.
c. Documents 299 and 300.
DOCUMENT 304 483
cordingly, that question is for the consideration of the Conference
of Paris, pursuant to the procedure of which in normal course, and
in the first instance, it will come to be considered by the Five Great
Powers, including the United States of America, and by Belgium,
as a lesser Power directly interested.
It is not the intention of the undersigned to express any opinion
upon the policy which may be deemed advisable to be pursued by
the United States of America or by the Allied and Associated
Powers in the settlement of such" questions relative to Belgium as
may be presented to the Peace Conference. If the following con-
siderations supporting the four conclusions above stated appear to
be favorable or unfavorable to Belgian claims, or to the adoption
of one policy rather than another, that fact results from the nature
of the juridical case. The undersigned submit the same for such
consideration as the juridical aspect of the present situation of
Belgium may be deemed to merit.
INTRODUCTORY NOTE UPON THE TREATIES OF 1 839
The international arrangement, made for a European object,
which established the independent Kingdom of Belgium, and pro-
vided for its security, is expressed in three treaties executed at
London, 19 April, 1839; together they form the fundamental in-
ternational statute of Belgium.
The first was a treaty between Austria, France, Great Britain,
Prussia and Russia, called the Five Powers, and Holland. The
latter thereby recognized the dissolution of the former union of
Holland with Belgium, and undertook to agree with Belgium upon
certain Articles annexed to the Treaty, which were made a part
thereof, and which were expressly guaranteed to Holland by the
five Powers.
The second was a treaty between Belgium and Holland embody-
ing the Articles mentioned.
The third was a treaty between Belgium and the five Powers ex-
484 DOCUMENT 304
pressly making the Articles mentioned a part thereof, and estab-
lishing the guarantee thereof to Belgium by the five Powers.
The Articles mentioned, briefly summarized,
1. defined the territorial limits between Belgium and Hol-
land, Prussia, Luxemburg and France,
2. made provision in several respects relative to the sepa-
ration of Belgium from Holland, including the naviga-
tion of the Scheldt, the restriction of the port of Antwerp
,' V to the uses of commerce, the commercial communication
through Maastricht and Sittardt, and the apportionment
of the public debt,
3. provided for the independence and for the perpetual neu-
tralization of Belgium, and imposed upon her the duty to
observe neutrality towards all other states.
The guarantee of the five Powers to Belgium and to Holland
respectively relates to each of the Articles mentioned; and the
manner of its expression accounts for the existence of three Treaties
instead of one ,* but the arrangement is entire.
I. THE VIOLATION OF THE TREATIES OF 1839
As far as concerns the German Empire and Austria it is enough
to cite the Declaration of War against Belgium by these two guar-
antors of her perpetual neutrality, on the 4th and 28th of August,
1914, respectively.
On the date that Belgian neutrality was violated that country
appealed to the other guaranteeing Powers, namely France, Great
Britain and Russia, to cooperate in the defense of her territory in
accordance with the provisions of the Treaty of 1839.
M. Davignon, Belgian Minister for Foreign Affairs, to British,
French, and Russian Ministers at Brussels.
Brussels, August 4, 19 14.
Sir,
The Belgian Government regret to have to announce to
your Excellency that this morning the armed forces of Ger-
many entered Belgian territory in violation of treaty en-
gagements.
DOCUMENT 304 485
The Belgian Government are firmly determined to re-
sist by all the means in their power.
Belgium appeals to Great Britain, France, and Russia
to cooperate as guaranteeing Powers in the defense of her
territory.
There should be concerted and joint action, to oppose
the forcible measures taken by Germany against Belgium,
and, at the same time, to guarantee the future maintenance
of the independence and integrity of Belgium.
Belgium is happy to be able to declare that she will
undertake the defence of her fortified places.
(The Belgian Grey Book, No. 40.) ,
The response of Great Britain, of France, and of Russia to this
appeal was received the following day:
Count de Lalaing, Belgian Minister at London, to M. Davignon,
Belgian Minister for Foreign A fairs.
London, August 5, 19 14.
{Telegram.)
Great Britain agrees to take joint action in her capacity
of guaranteeing Power for the defense of Belgian territory.
The British fleet will ensure the free passage of the Scheldt
for the provisioning of Antwerp.
(The Belgian Grey Book, No. 49.)
Communication of August 5, from Sir Francis Villiers, British
Minister at Brussels, to M. Davignon, Belgian Minister
for Foreign A fairs.
I am instructed to inform the Belgian Government that
His Britannic Majesty's Government consider joint action
with a view to resisting Germany to be in force and to be
justified by the Treaty of 1839.
(The Belgian Grey Book, No. 48.)
M, Davignon^ Belgian Minister for Foreign A fairs, to the Belgian
Ministers at Paris, London, and St. Petersburg.
Brussels, August 5, 19 14.
Sir,
I have the honour to inform you that the French and
Russian Ministers made a communication to me this morn-
486 DOCUMENT 304
ing informing me of the willingness of their Governments to
respond to our appeal,. and to co-operate with Great Britain
in the defense of Belgian territory.
(The Belgian Grey Book, No. 52.)
As far as concerns France and Great Britain, their entire com-
pliance with the terms of the Treaties and their full discharge of
the obligations assumed by them as guarantors thereof, is admitted
by Belgium, to whom they are in that respect bound, and any ques-
tion thereof is precluded by that admission.
As far as concerns Russia, no doubt exists as to her compliance
with all the terms of the Treaties, except the guaranty. The dis-
charge of the obligation assumed by her as a guarantor, however,
must remain incomplete by reason of her withdrawal from the joint
action undertaken with France and England, and from the war, be-
fore the expulsion of the forces hostile to Belgium from the terri-
tory of the latter.
As far as concerns Holland, the passage with her consent and
across her territory of a part of the German Army 12 November,
19 1 8, would appear to have been a violation on her part of the
Treaties of 1839.
Although not a guarantor of the stipulations of those Treaties,
Holland had thereby agreed, equally with the Five Powers, that
Belgium should form an independent and perpetually neutral State,
and that the latter should be bound to observe such neutrality
towards all other States. Furthermore, Holland had accepted
from the Five Powers the guarantee of the arrangement so agreed
to. Holland thus definitely recognized the special contractual status
of Belgium as a neutralized State, as well as all her own rights and
duties implied in such recognition.
In direct violation of the Treaties, Germany was engaged in
the destruction by force of arms of the perpetual neutrality of Bel-
gium ; In direct performance of the Treaties Belgium, and her guar-
antors France and Great Britain, were engaged in opposing upon
DOCUMENT 304 487
Belgian territory the armed forces of Germany so engaged. The
state of war thus existing on Belgian territory between Belgium
and her two faithful guarantors on the one hand, and her two faith-
less guarantors on the other, was rightful on the part of the former,
and wrongful on the part of the latter, as far as concerned all states
privy to the Treaties.
Bound by that fact, and concluded by that privity, every un-
neutral act of Holland In aid of the wrongdoers constitutes a vio-
lation by Holland of her own engagements under the Treaties of
1839; ^"d Holland's consent to the passage across her territory of
German armed forces would seem unquestionably to be such an
unneutral act; there can be no doubt but that the withdrawal of
German forces, supplies and stores from territory upon which they
were about to become subject to capture was thereby facilitated to
a substantial degree.
The long-standing principle that a neutral Power may not al-
low the movement of troops or convoys, either of munitions or of
supplies, across its territory was included among the declaratory
provisions of the Hague Convention of 1907, relative to The
Rights and Duties of Neutral Powers.
Nor can the armistice in existence between belligerents furnish
justification. The duties of neutrals arise from the existence of a
state of war, and remain unaffected by the conclusion of an armis-
tice between belligerents; nor can Holland avail herself of the
special plea that the unneutral act In question was in furtherance of
the very operation required of the German army by the terms
of the armistice. The Allied and Associated Powers in deciding
what terms they should Impose had an unqualified right to rely upon
Holland's strict observance of neutrality; in defense of her wrong-
ful departure from the duties of a neutral, Holland cannot be heard
to search their motive in imposing such terms.
Nor does the subsequent permission accorded by Holland to the
Allied Powers to use Dutch communications in supplying their ar-
488 DOCUMENT 304
mies of occupation improve Holland's position relative to her prior
violation of the Treaties of 1839. Whatever ground for objection
thereto Germany may have by reason of the general rules of inter-
national law, she can have no ground of objection by reason of the
Treaties, which she was herself the first to violate.
2. Belgium's right to denounce the treaties in all
RESPECTS.
The Treaties of 1839 will become voidable by Belgium upon
the termination of the existing state of war; for the mutual obliga-
tions thereunder of Belgium on the one hand, and of France and
Great Britain on the other, may be said to subsist as long as the
German and Austrian declarations of war against Belgium are out-
standing. With such reservation as to France and Great Britain,
Belgium's rights of denunciation are already complete.
It is universally recognized that treaties are voidable when the
parties thereto fail to observe the same in their essentials.
This ground for the denunciation by Belgium of the Treaties
of 1839 exists. Germany and Austria have failed to observe the
Treaties in the essential of the neutrality of Belgium. Further-
more, the events which have made the Five Power guarantee im-
possible of restoration have made an essential change in the circum-
stances and conditions relative to which the Treaties were entered
into and which obtained until 19 14.
Thus Belgium has a right to denounce the Treaties in all re-
spects. First, there can be no question but that the breach of a
stipulation which is material to the main object of the Treaties
liberates the party other than that committing the breach from every
contractual obligation assumed by it thereunder. And second, the
changed circumstances as to the guarantee affect every clause of the
Treaties because the performance of every clause was expressly
guaranteed.
An additional ground Is the fact that the guarantee was a mate-
DOCUMENT 304 489
rial part of the consideration received by Belgium for the several
obligations assumed by her under the Treaties.
The effect of the caducity of the Treaties will be to leave Bel-
gium' a sovereign and independent Kingdom within the territorial
limits defined by the Treaties of 1839. The frontiers of Belgium
existing prior to the outbreak of the war will continue to remain
her frontiers until the conclusion of peace, and even thereafter, un-
less modified by the Treaty of Peace.
Nor will the transitory and dispositive provisions of the
Treaties of 1839 relating to the separation in 1831, of Belgium
from Holland, and now fully executed, be disturbed.
All other provisions of the Treaties will, however, necessarily
fail, including among the more important, the perpetual neutraliza-
tion of Belgium, the regime of the Scheldt, and the restriction of
the Port of Antwerp to the uses of commerce.
The foregoing is a brief statement of the strictly juridical as*
pect of the proposed revision of the Treaties of 1839.
3. THE QUASI-JURIDICAL BASIS OF THE BELGIAN CLAIM TO A
REVISION OF THE TREATIES OF 1 839.
However, the continuance in future of the neutralization of
Belgium and its guaranty, as the same existed prior to 19 14, is ad-
mittedly impossible, and that impossibility alone suffices to make
the Treaties of 1839 voidable by the aggrieved party, namely Bel-
gium. The acquisition by Belgium of such a right from the exist-
ence of such a fact has a quasi-juridical consequence which may be
said to modify the force of the strictly juridical conclusion expressed
as to the survival of the territorial limits of Belgium after the cadu-
city of the Treaties.
The following observations thereon may be deemed appropri-
ate. Although the argument does not proceed upon the principles
of International law which have come to be recognized as such uni-
versally, it nevertheless is fully sustained by what have been called
principles of natural justice, which are equally well recognized in
490 DOCUMENT 3O4
all the great systems of municipal law, and which are derived from
the conscience of mankind.
Nor has the contention ever in modern times been seriously ad-
vanced that the so-called principles of natural justice can be dis-
regarded in the field of international law.
The principles in question are those which either indemnify
the party aggrieved by the breach of a contract from which the im-
possibility of its further performance ensues, or require the restora-
tion of the position existing at the time the contract was made, either
by the return of the consideration, or of its equivalent.
In applying these principles to the present case of Belgium it is
not necessary to make further mention of the breach of the con-
tract, namely the destruction of the perpetual neutrality of Belgium.
It must be borne in mind, however, that whatever advantages she
derived from the respect which her neutralization enjoyed prior to
19 14 have been more than offset by the harm she has suffered in
the past four years during the process of its destruction, and in her
own expenditure of blood and treasure in its defense.
Otherwise their application rests upon the following facts:
In 1 83 1 the Belgian provinces, which had become a part of the
Kingdom of the Netherlands under the sovereignty of William of
Nassau-Dietz as a result of the events of 18 14 and the Treaty of
Vienna, revolted, and established a provisional government. The
Dutch dynasty proceeded to suppress this revolt by force of arms,
and the military resources of the Provisional Belgian Government
were inadequate to a successful resistance.
The only avenue of escape which appears to have been open to
Belgium lay in the perpetual neutralization, which the Five Powers
were willing to guarantee in consideration of the acceptance by Bel-
gium of territorial limits excluding a large part of Limburg and of
Luxemburg, which had made common cause with the other Belgian
provinces of the revolution, and excluding the south bank of the
Scheldt.
DOCUMENT 304 491
The foundation of the present Belgian territorial claims thus
rests in part upon an alleged failure of consideration, namely the
violation and permanent destruction of her guaranteed neutrality,
which was deemed essential to her existence as an independent State
within the territorial limits imposed upon her therewith.
In this connection it is proper to say a word upon the lapse of
time between 183 1 and 19 14. If the guaranteed neutralization of
Belgium had been destroyed within a year or two of its creation, her
claims to the territory excluded would not have been prejudiced by
the creation and failure within that time of such a regime. Al-
though at the present day the more than eighty years which have
elapsed cannot be said to have had no effect upon the force of these
territorial claims, yet, on the other hand, if the neutralization of
Belgium had survived the present war only to meet with destruc-
tion at the hands of two of her guarantors fifty years hence, still at
that future date it could not justly be said that such claims then
reviving would be entirely without force by reason of the lapse of
time.
For such claims to continue, despite lapse of time, they must
embrace the essential element of vitality, namely, justice. And in
the light of justice, both to Belgium and to Holland, must such
claims be examined, in the quasi-juridical aspects now considered.
Accordingly the present situation on the Scheldt with the pos-
session by Holland of territory on the left bank, hindering the com-
mercial development of Antwerp, and impairing its military value
as a fortress; the question of the Dutch retention of Limburg,
hindering the development of the economic channels running East
and West across that territory, and down the Meuse, and com-
prising the defensive strength of the line of that river to the South;
and the question of the continued independence of Luxembourg,
with the economic and strategical elements involved therein, arise
for solution. Only a just solution can in future assure the con-
tinuance of friendly relations between Belgium and Holland in the
492 DOCUMENT 304
full measure that is so important to the welfare of each, and the
adjustment with Holland sought by the Belgian Government is a
friendly one. The preferences of the population of these territories
with respect to nationality are also to be considered as a just factor
in the solution of these questions. The quasi-juridical aspect here
meets the political.
From these quasi-juridical observations, Belgium may be said
to have something in the nature of a present right to the considera-
tion of her territorial claims. It follows that the Powers who
guaranteed her neutrality and were parties with Belgium to the
Treaties, or, like Holland, were privy to the Treaties without guar-
anteeing the same, have something in the nature of a present duty
to find and accept a solution which will relieve Belgium from the
prejudice she will otherwise suffer from the permanent loss of the
guarantee of her neutrality. The only difference in this respect
in the position of the Powers privy to the Treaties of 1839 from
that of the other Powers allied and associated with Belgium is that
the similar duties of the latter are not derived from the Treaties,
but nevertheless exist to the extent of the interest of such other
Powers in the existence of an independent Belgian State.
The basis of the solution of the Belgian question, accepted as
one of the bases of the Peace not only by the Allied and Associated
Powers, but by Germany and Austria as well, is as follows:
VII. Belgium, the whole world will agree, must be
evacuated and restored, without any attempt to limit the
sovereignty which she enjoys in common with all other free
nations. No other single act will serve as this will serve to
restore confidence among the nations in the laws which they
have themselves set and determined for the government of
their relations with one another. Without this healing act
the whole structure and validity of international law is for-
ever impaired.
In this the impossibility of the continuance in future of the
DOCUMENT 304 493
neutralization of Belgium is recognized, and the restoration which
shall be made to her by the Peace is expressly qualified. It is to be
the healing act which will restore the confidence among the Nations
in international law.
Although any further definition of that healing act is entirely
a matter of policy, it may be proper to observe that, from the
juridical standpoint, due regard for the so-called principles of nat-
ural justice may be said to be implied because essential to the res-
toration of the public confidence in nnternational law. For those
principles are acknowledged and accepted as an expression of the
conscience of mankind in the municipal law and life of every civi-
lized nation. Due consideration of the Belgian claims arising there-
from appears from that point of view to be part of the American
Program of the Peace, which has been accepted by the Powers.
"An evident principle runs through the whole program
I have outlined. It is the principle of justice to all peoples
and nationalities, and their right to live on equal terms of
liberty and safety with one another, whether they be strong
or weak. Unless this principle be made its foundation no
part of the structure of international justice can stand."
(From President Wilson's address to Congress, Jan-
uary 8, 1918.)
4. THE REVISION OF THE TREATIES A QUESTION OF GENERAL
INTEREST.
The procedure suggested in the memorandum submitted by the
Belgian Minister at Paris that the revision of the Treaties be un-
dertaken in the first instance only by those who were parties thereto
probably will not be maintained after the establishment of the regie-
ment of the Conference of Paris.
A word may be said, however, upon the historical fact that the
Belgian Question is one of general interest.
The permanent neutrality of Belgium, confirmed and established
by the Treaties of 1831 and 1839 as a principle in the public law of
Europe, is a direct outgrowth of the failure and collapse of Castle-
494 DOCUMENT 304
reagh's plan for the aggrandizement of the Kingdom of the
Netherlands by joining the Belgian Provinces thereto, a plan which
has been well called "an arrangement for an European object."
Castlereagh In 18 15 sought to safeguard the low countries by an in-
crease of their capacities for self defense, and having failed, Pal-
merston and Talleyrand in 1 830-1 839 sought to achieve the same
object by placing an appropriate inhibition upon the Powers in the
matter of the neutralization of Belgium.
It Is in her relation to such "European Object," and in the as-
sumption of her duties in that respect, that Belgium found the oc-
casion for the international recognition of her sovereignty, and of
her independence. Belgium's discharge of those duties has been
conscientious and unfailing In the faithful maintenance and defense
of her neutralization in every eventuality.
The new dispositions about to be made by reason of the destruc-
tion of the arrangement of 1 831-1839 will have to find new safe-
guards for the Independence of Belgium, which by Its acts has de-
served well of the Society of Nations. It may perhaps be suggested
that Belgium has as much to fear from the friendship as from the
enmity of its neighbors.
But this time the new arrangement will not be for "an Euro-
pean," but for a world-wide, interest; not In support of the balance
of power in Europe, but in • connection with the formation of a
League of Nations.
DOCUMENT 304 495
Summary of the Important Points Raised in the Memorandum
Submitted to the American Commission to Negotiate Peace
by His Excellency the Belgian Minister at Paris^
January 17, 1919, and in the Historical and
Juridical Notes Submitted Therewith
By direction of the American Commission to Negotiate Peace,
the undersigned have prepared the following Summary of the im-
portant points raised in the Memorandum'' submitted to the Com-
mission by His Excellency the Belgian Minister at Paris, January
17, 1919, and in the historical and juridical Notes'* submitted there-
with.
I. THE QUESTION OF THE SCHELDT.
A modification of the situation existing on the Lower Scheldt
prior to the outbreak of the present war is sought by Belgium, by
reason (i), of the opportunity thereby afforded the Dutch of
prejudicing Antwerp to the advantage of Amsterdam and Rotter^
dam, by the pursuit of an obstructionist poHcy in the matter of the
administration of the navigation of the Scheldt by the joint Belgian
and Dutch Commission, and (2), by reason of the closing of
Antwerp both as a commercial and as a military port at all times
of Belgian belligerency and Dutch neutrality, by reason of the
latter's possession of territory on the south bank of the Scheldt.
II. THE QUESTION OF LIMBOURG.
A modification of the territorial and economic situation of the
southern part of Dutch Llmbourg, existing prior to the outbreak of
the present war, between Holland and Belgium, Is sought by Bel-
gium ( I ) , by reason of the opportunity thereby afforded the Dutch
of prejudicing Antwerp to the advantage of Amsterdam and Rot-
terdam, by refusing to do the necessary in the matter of the normal
development of the natural lines of commercial communication
which cross the southern part of Dutch Llmbourg from east to
west and connect the German territory on the east and southeast
a. Document 298.
b. Documents 299 and 300.
49^ DOCUMENT 304
with Antwerp, Its normal port of outlet; and (2), by reason of the
impairment of the defensive strength of the present and possible
eastern frontiers of Belgium and of the line of the Meuse, which
results from the Dutch possession and inability to defend the south-
ern part of Dutch Limbourg, with its bridgehead at Maestricht,
on the western bank of the Meuse.
III. THE QUESTION OF LUXEMBOURG.
A modification of the situation existing as to the Grand Duchy
of Luxembourg prior to the outbreak of the present war Is sought
by Belgium by reason (i), of the impairment of the defensive
strength of Belgium's eastern and southeastern frontier which
would result from the continued independence of this natural field
for the concentration of hostile armies, or of Its possession by
France, whereby southeastern Belgium would be entirely enclosed
by French territory; and (2), in the last respect of the more normal
position in which the large Catholic population of the Grand Duchy
would find itself by the reunion under Belgian sovereignty of the
Grand Duchy and Belgian Luxembourg, of which it was a part in
1839.
IV. THE QUESTION OF BELGIAN NEUTRALITY.
The future guaranty of Belgian neutrality having become im-
possible in the course of the events consequent upon Its violation by
two of her guarantors, Belgium advances a semi-juridical claim to
the southern part of Dutch Limbourg, to the Grand Duchy of Lux-
embourg, and to the south bank of the Scheldt, founded (i), as to
the first two, upon the fact that the whole of the Belgian Provinces
of Limbourg and Luxembourg, which had joined the Belgian Revo-
lution of 1830, were excluded from Belgian territory as delimited
by the Powers which agreed to the neutralization of Belgium and
guaranteed the same in 1 83 1 , and again in 1839; and ( 2 ) , upon the
necessity for a strategically sound frontier which arises from the
loss of the protection which her perpetual neutralization was in-
tended and expected to afford.
David Hunter Miller
James Brown Scott
Live Music Archive
Librivox Free Audio
Metropolitan Museum
Cleveland Museum of Art
Internet Arcade
Console Living Room
Books to Borrow
Open Library
TV News
Understanding 9/11