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THIRD SESSION, FORTY-SECOND CONGRESS.

EXECUTIVE DOCUMENTS

PRINTED BY ORDER OF

THE HOUSE OF REPRESENTATIVES.

1872-'73.

IN TWELVE VOLUMES.

Yolnme 1 . . . . No. 1, part 1, Foreign Relations, parte 1, 2/^3, 4, 5, and 6.
Yolnme 2.... No. 1, part 2, War, parts 1 and 2.
Yolume 3.... No. 1, part 5, Interior, parts 1 and 2.

Yolnme 4 No. 1, parts 3, 4, 6, and 1, and No. 2.

Yolnme 5.. ..No. 3 to No. 19, inclnsive, except No.'S.

Yolnme 6.... No. 5 and No. 190, with which is bonnd Mis. Doc. No. 44.

Yolnme 7 . . . . No. 20 to No. 91, inclnsive.

Yolnme 8 . . . . No. 92 to No. 150, inclnsive.

Yolnme 9.... No. 151 to No. 210, inclusive, except Nos. lOO^and 190.

Yolnme 10.... No. 160, Commercial Relations.

Yolnme 11... -No. 211 to No. 242, inclusive, except No. 240.

Yolume 12 No. 240, Coast Survey.

WASHINGTON:

OOYERNMENT PRINTING OFFICE.

1873.

f LIBRARY S

{ OK 1»i£

lELAHO STANFORD JUNIOR .

L UiNJIVERStTY. J

/?.7r^

:z-

INDEX

THE EXECUTIVE DOCUMENTS

OF THE

HOUSE OF EEPRESENTATIVES OF THE UMTED STATES

FOR THE

THIRD SESSION OF THE FORTY-SECOND CONGRESS.

Title.

Vol.

Abbott, Nathan B., letter from Secretary of War relating to bill

of the House No. 3041, for the relief of

Agricnltore, Department of, letter from the Commissioner of
Agricultare transmitting list of articles purchased and dis-
posed of by his Department since last inrentory

Annapolis, letter from the Secretary of the Treasury trans-
mitting a bill for the relief of the collector of customs for the

district of

Appraisement of squares in Washington, letter from the Sec-
retary of the Interior relative to payment of persons assisting

in making

Appropriation bill, letter from the Secretary of the Interior
transmitting draught of an amendment to section 5 of the

legislative

Appropriations, letter from the Secretary of the Treasury trans-
mitting estimates of

index of the above

letter from the Secretary of the Treasury trans-
mitting statement of unexpended balances of.

Architect of the Capitol Extension, annual report of the

Army, letter from the Secretary of War transmitting state-
ment of expenditures for Army contingencies for year

1872

clothing, letter from the Secretary of War transmitting
estimate to carry out plans for the preservation of . . .
property, letter from the Secretary of War relative to
the repeal of section G act of May 8, 1872, relating to

moneys or proceeds of

retired list, letter from the Secretary of War relative to

the

Artesian well, letter from the Secretary of War relative to an,

on the Fort D. A. Russell military reservation

Assistant treasurer, New York City, letter from the Secretary

of the Treasury transmitting draught of

a bill for relief of the

San Francisco, letter from the Secretary
of the Treasury relative to the payment

of forged checKs by the

Attorney-General, communicates relative to swamp-lands on

the Potomac River

transmits list of clerks appointed in his De-
partment during year 1872

Part.

6
6

9
3

/ I

No.

186

129

139

157
1

118
189

198
239

33
110

174

Page.

199

851

INDEX.

Title.

Attornej-GeneraPs Department, letter from the Attorney-Gen-
eral transmitting list of clerks appointed in his Department
daring the year 1872

Antobees, Charles, letter from the Secretary of the Interior
rel%tive to the claim of

Baca, Jos<5 A., and Homaldo, letter from the Secretary of the
Interior relative to the claim of

Bank, letter from the Comptroller of the Currency transmitting
copies of all papers relating to the failure of the Merchants^
National, of the District of Columbia

Banking facilities, letter from the Secretair of State transmit-
ting communication from the consul at Hong-Kong, China,
and a letter from the Secretary of the Treasury, in relation
to, between the United States and the East

Bark Jewess, letter from the Secretary of the Treasury relative
to Senate bill 1] 44, granting an American register to the

Bernstein, Bemhard, message from the President of the United
States transmitting a letter from the Secretary of State rela-
tive to the claim of

Board of Public Works, report of the, of the District of Co-
lumbia

Bounty, letter from the Secretary of War transmitting petition
of honorably discharged soldiers of the Regular Army relative
to

Bridge, letter from the Secretary of War transmitting a report
locating a, across the Mississippi River at La Crosse,

Wisconsin

letter from the Secretary of the Interior transmitting a
petition of a citisen of the Chickasaw country pray-
ing for a charter for a toll, across Red River

California, letter from the Secretary of the Interior relative to
the status of military reservation No. 7, opposite

Mare Island

letter from the Secretary of War relative to the
military reservation No. 7, near Mare Island. ....

Canal, letter from the Secretary of War relative to the con-
struction of a, around the falls of the Saint Mary's River,
Michigan

Capitol extension, annual report of the architect of the

Cavalry, letter from the Secretary of War relative to a bill for
the relief of Company H, Second

Census, letter from the Secretary of the Interior relative to
maps to illustrate volumes of the Ninth

Centennial Commission, report of the president of the, of the
United States

Census, letter from the Secretary of the Interior relative to an
appropriation for expense of maps to illustrate the volumes
of the Ninth

Cheyenne River agency, letter from the Secretary of the
Interior relative to an appropriation for removal of the

Chickasaw Nation, letter from the Secretary of the Interior
transmitting an act of the legislature of the, to adopt the
negroes of Uie w

China, letter from the Secretary of State transmitting com-
munications from the consul at Hong-Kong, China, and
the Secretary of the Treasury, relative to banking facilities
between the United States and the East

Chippewa lands, Wisconsin, letter from the Secretary of
the Interior transmitting an estimate of appropriation to
defray the expenses of appraisal and sale of the

Vol.

Part.

No.

174

mi
4

228

170

159

197

212

7
3

""■"5"

84
1

mt
/

207

159

• ■ • • . •

Page.

851

INDEX.

Titles.

Civil employes, Navy Department, letter from the Secretary

of the Navy transmitting^ list of

Civil service, letter from the Secretary of the Interior relative

to questions propounded by the examiners to
candidates for appointment in his Department.,
letter from the Secretary of War, transmitting
questions propounded by the examiners to
candidates for appointment in his Depart-
ment

letter from the Secretary of War relative to

questions in use in his Department

letter from the Postmaster-General relative to

the questions in use in his Department

letter from the Secretary of the Treasury relative

to questions in use in his Department

Cladeck, John J., letter from the Secretary of War relative to

bill of the House for the relief of

Clerical force, letter from the Acting Secretary of the Interior

relative to an increase of, in Interior Department

Clerks, letter from the Secretary of State relative to appoint-
ment of, in his Department during year 1872

letter from the Secretary of the Treasury transmitting
list of, in his Department appointed during the

year 1872

letter from the Attorney-General transmitting list of,

appointed in his Department during year 1872

Clerks and other employes, letter from the Secretary of War,

transmitting list of, in his De-
partment for 1872

Clerks and emploj<5s, letter from the Postmaster-General trans-
mitting list of, in his Department for

year 1872

letter from the Secretary of War trans-
mitting list of, appointed in his De-
partment during year 1872

letter from the Secretary of the Navy
relative to, appointed in his Department

during the year 1872

letter from the Secretary of the Interior
relative to, appointed during year 1872

in his Department

Clothing, letter from the Secretary of War recommending the
passage of an act authorizing the issue of, to cer-
tain enlisted men of Battery F, First Artillery, and

Company B, First Infantry

letter from the Secretary of War transmitting state-
ment of, necessary to be manufactured for issue to

troops during next fiscal year

letter from the Secretary of War transmitting an es-
timate to carry out plans for the preservation of

Army

Coast Survey, report of the Superintendent of the, for 1872

Cole, H. G., letter from the Secretary of the Interior relative

to the claim of

Collection district, letter from the Secretary of the Treasury
transmitting draught of a bill to define the limits of the, of

Pnget Sound ,

Collector of customs, Annapolis, letter from the Secretary o£

the Treasury transmitting a bill for the relief of the

Columbia Hospital for Women, letter from the Secretary of the
Interior relative to an appropriatiun for the completion of the.
Columbia Institution for the Deaf and Dumb, annual report

of the president of the

Commerce and Navigation, report of the Secretary of the
Treasury on

Vol.

7
9

9
9

Part.

No.

Page.

232

146

155
191
192
193
203
30
161

173
174

117

132

135

136

152

J8
116

189

240

121

54
97

154
1

242

859

INDEX.

Title.

Commercial Relations, letter from the Secretarj* of State trans-
mitting^ a report of the, of the United States

Commissioner of A^cultare transmits list of articles purchased

and disposed of by his Department since last inventory

Commissioner of the General Land-Office, annual report of

the

(For accompanying: papers, see Land -Office.)

Commissioner of Internal Revenue, annual report of the

index of the above

Commissioner of Patents, annual report of the

Commissioner of Pensions, annual report of the

appendix to the above

Comptroller of the Currency, annual report of the

index of the above

transmits copies of all papers re-
lating to the failure of the
Merchants' National Bank, of

the District of Columbia

Connecticut, letter from the Secretary of War relative to the

improvement of Saybrook Bar

Consular agent, message from the President of the United

States transmitting report of, De B. Randolph Keim

Consular agents, message from the President of the United

States relative to compensation to, for

extraordinary services

message from the President of the United

States relative to

Consular and diplomatic, message from the President of the

United States relative to the, systems of the United States..

Contingent expenses. Army, letter from the Secretary of War

transmitting statement of the, for 1872.
State Department, letter from the Sec-
retary of State transmitting statement

of the

Contingent fund, letter from the Secretary of the Treasury
transmitting statement of the expenditures of the, of his De-
partment

Contracts and purchases, letter from the Secretary of War
transmitting statement of, by the several bureaus of his

Department

Cotton-tax, letter from the Secretary of the Treasury relative

to the propriety of refunding the

Court of Claims, message from the President of the United
States returning bill of the House No. 630, in relation to

new trials in the, with his objections

Currency, annual report of the Comptroller of the ,

index of the above

Customs, letter from the Secretary of the Treasury relative to
a bill authorizing deputy collectors and other officers of, to

act as disbursing agents

Cutler, Cyrus M., letter from the Secretary of the Interior
relative to the claim of ,

Deaf and Dumb, annnal report of the president of the Colum-
bia Institution for the

Debt, letter from the Secretary of the Treasury relative to the
aggregate amount paid on the public, since the 4th day of
March, 1861

Deficiencies, letter from the Secretary of the Treasury relative

■to an estimate of an appropriation required to complete the

service of the fistal year ending June 30, 1873, and prior

years

Delaware, letter from the Secn^tary of War transmitting a re-
poTi of the examination of the Broadkiln River, State of

Vol.

5
5
9
3
3
5

Part.

No.

Page.

8
8

9
9

8
11

3
11

160

4
4

190
1
1
3
3

170
125
145

24
168

25
118

182

158
181

112
3
3

98
229

1
223

88
60

176

392
840

707

859

INDEX.

Title,

Vol.

Part.

No.

Demarais, M., &Co., letter from the Secretary of the Interior

relatiye to the claim of

Dempaej Sl O'Toole, letter from the Secretary of War relative

to the bill of the late firm of

Disbursing agents, letter from the Secretary of the Treasury
relatiye to a bill authorizing deputy collectors and other

officers of customs to act as

District of Columbia, report of the board of public works

of the

letter from the Secretary of War relative
to the disbursement of the $12,000 ap-
propriated for the relief of aged desti-
tute persons of the

Drawback, letter from the Secretary of the Treasury trans-
mitting statement of the, or reduction allowed on aamaged
goods, in answer to House resolution

East Tennessee University, letter from the Secretary of War
relative to bill of the Senate No. 490, for the relief of the. ..

Education, report of the Commissioner of

Ely, J. B., letter from the Secretary of War relative to the

claims of the heirs of, for use of certain devices

Employ^a, State Department, letter from the Secretary of State

transmitting list of

letter from the Secretary of War relative to the en-
listed men and civilians employed in the Quarter-
master's Department

Engraving and printing, letter from the Secretary of the
Treasury transmitting an estimate of the cost of a suitable

building for the use of the Bureau of

Estimates of appropriations, letter from the Secretary of the

Treasury transmitting list of. .
index of the above

Finances, annual report of the Secretary of the Treasury on the.

index of the above

Fisheries, message from the President of the United States
calling attention of Congress to a former message reUtive to

the

Florida, letter from the Secretary of War transmHting extract
from the report of the Inspector-General of an in-
spection of the militanr-poat of Key West

militia, letter from the Secretary of War relative to a
detailed statement of the amount of money expended

in payment of the

Foreign affairs, papers transmitted with the annual message

of the President, in relation to

index of the above

Fort Griffin, letter from the Secretary of War relative to an ap-
propriation for rebuilding; in Texas :

Fort Houston, letter from the Secretary of War transmitting
draught of a bill to confirm the purchase of a portion of the

site of

Fort Sanders military reservation, letter from the Secretary of

War relative to the reduction of

Freedmen's Bureau, letter from the Secretary of War trans-
mitting a copy of the report of Assistant Adju-
tant-General Vincent, on the condition of affairs

of the

hospital, letter from the Secretary of War, relative
to the condition of the, in the District of Co-
lumbia

11
11

6
4

5
5

8
4

6
6

1
1

9
9

8
9

1
1

230
237

98
1

127
1

209

171

5
5

216

106

238

• I
1

177

J 78

109
162

553

719

Tin

INDEX.

Title.

Freight expenses of the Navy Department, letter from the
Secretary of the Navy relative to, during 1870 and 187J ....

Gatliug-giins, letter from the Secretary of War, relative to an

appropriation for the purchase of a limited number of.

Geological survey of the Territories, letter from the Secretary
of the Interior relative to an appropriation for

maps and charts for the illustration of the

letter from the Secretary of the Interior on the

same subject

survey, letter from the Secretary of the Interior,
relative to an appropriation for the continuation

. of the, of the Territories

Goodsell, Budillon & Co., letter from the Secretary of the
Treasury transmitting a report of the merchants* appraise-
ment of lambskin, or kid gloves, imported by, during year

Vol.

lc»72.

Government Hospital for the Insane, annual report of the sur-
geon in charge of the

Gruelle, N. R., letter from the Secretary of War relative to the
military history of

Harbor, letter from the Secretary of War relative to the survey

of Bear Creek, Lake Ontario

letter from the Secretary of War relative to the survey

of Sandusky

of Portland, letter from the Secretary of War relative

to the improvement of the, Maine

of Toledo, letter from the Secretary of War relative to

the, Ohio

letter from Secretary of War on same subject

Harbors, letter from the Secretary of War transmitting a report
on the improvement of Monroe Harbor, Michigan, and Ash-
tabula Harbor, Ohio

Harper's Ferry, letter from the Secretary of War relative to
the bill for the adjustment of the claims of the Government

upon the purchasers of property at

Heberer, John, letter from the Secretary of War relative to the

claim of

Hospital and Medical Department, letter from the Secretary of
War relative to the transfer of an appropriation for the

Immigration, letter from the Secretary of the Treasury relative

to transferring the duty of making an annual report of

Indian Affairs, report of the Commissioner of

council, letter from the Secretary of the Inteiior relative
to an appropriation for the expenses of holding a

general

service, letter from the Secretarv of the Interior trans-

mitting estimate of appropriation required for the

Territory, letter from the Secretary of the Interior trans-
mitting protest of* the governor of the Chickasaw
Nation against the opening of the, to white settle-
ment

war claims, letter from the Secretary of War relative

to the^ of the Territory of Utah

Indians, letter from the Secretary of the Treasury relative to
the claim of the Choctaw, known as the ** net-pro-
ceeds claim "

11
11

Part.

8 !

8
8

9
3

' ;

No.

Page,

134

200

51
51

166

143

221

165

119

126

92
92

214
225
122

877

156
1 i 3tf9

53
206 ;

141
175

INDEX.

Title.

Indians, letter from the Secretary of the Treasury relative to
an appropriation for certain Indian depredations
claims

letter from the Secretary of the Interior transmitting
copy of an agreement with Sisseton and Wahpeton
bands of Winnebago

letter from the Secretary of the Interior transmitting
copy of articles of convention concluded with Sho-
shone and Bannock tribes of

letter from the Secretary of the Interior relative to an
appropriation for the removal of stray bands of
Winnebago

letter from the Secretary of the Interior relative to the
release of latads ceded to the Cheyenne and Arapaho.

letter from the Secretary of the Interior relative to a
recent survey of the line dividing the Creek ceded
lands upon which the Sac and Fox and Seminole,
have reservations

letter from the Secretary of tBe Interior relative to the
disposition of the Ottawa Indian trust-fund bonds . .

letter from the Secretary of the Interior relative to
claims for depredations by Kiowa and Arapaho, on
the 18th July, 1864

letter from the Secretary of the Interior relative to the
retention of Kickapoo money as a trust fund

letter from the Secretary of the Interior relative to an
appropriation for the survey of boundaries of Indian
reservations

letter from the Secretary of the Interior transmitting
articles of agreement with the Wichitas and other
affiliated tribes of

letter from the Secretary of the Interior relative to the
condition of the Pi-Ute

letter from the Secretary of the Interior transmitting
draught of a bill to enable the united bands of
Swan Creek and Black River Chippewas and Mun*
see or Christian, to become citizens

letter from the Secretary of the Interior relative to
Choctaw Indian claims

letter from the Secretary of the Interior transmitting
draught of a bill amendatory of an act for the relief
of, ot the Northern superintendency

letter from the Secretary of the Interior transmitting
an estimate of appropriation to provide for subsist-
ence, &c., for Kansas ,.

letter from the Secretary of the Interior relative to an
appropriation in aid of the, of the Central superin-
tendency

letter from the Secretary of the Interior relative to an
appropriation for expense of appraisal and sale of
the Kansas Indian lands

letter from the Secretary of the Interior relative to
certain negotiations with the Ute, in Colorado

letter from tue Secretary of the Interior relative to the
location, condition, &c., of the T^ton Sioux

letter from the Secretary of the Interior relative to ex-
pense of removal of the Otter Tail band of Pil-
lager

letter from the Secretary of the Interior transmitting
estimate of an appropriation for the purchase of one
township of laud in White Earth reservation for
the use of the Pembina band of Chippewa

letter from the Secretary of the Interior relative to an
appropriation for collecting and subsisting the
Apache

Vol.

7
7

Part.

7
8

No.

Page.

7 I

8
8

38
43

4.5

62
63

65
66

67
69

83
90
96

102

103
105

INDEX.

Title.

Indians, letter from the Secretary of the Interior relative to an

appropriation to meet indebtedness contracted bj the

agent of the Arickaree, Gros Ventre, and Mandan ..

letter from the Secretary of the Interior relative to an

appropriation to pay the Osage, the annual interest of

5 per cent

letter from the Secretary of the Interior relative to an

appropriation for removal of Snake or Pi-Ute

letter from the Secretary of the Interior relative to an
appropriation for the relief of the Mississippi Chip-
pewa

letter from the Secretary of the Interior relative to the

removal of the Great and Little Osage

letter from the Secretary of the Interior transmitting
a memorial of the legislature of Dakota, praying for

the removal of the Pembina band of Chippewa

letter from the Secretary of the Interior relative to the
condition of the Miami, and the rights of settlers on

their lands •

letter from the Secretary of War relative to the pres-
ent difficulties with the Modoc

letter from the Secretary of the Interior relative to a
deficiency in the appropriation for the subsistence of

the Sioux

letter from the Secretary of the Interior transmitting
draught of a bill for authority to use the unexpended
balance of appropriations for subsistence of the

Navajo

letter from Ihe Secretary of the Interior relative to
House bill 3099, for the relief of the Alabama, Coo-

shatta, and Muscogee tribes of, in Texas

Insane, annual report of the surgeon in charge of the Govern-
ment Hospital tor the

Interior Department, letter from the Acting Secretary of the In-
terior relative to an increase of clerical

force in the

letter from the Secretary of the Interior
transmitting questions propounded by
civil-service examiners to candidates

for appointment in

letter from the Secretary of the Interior,
relative to appointments made during

the year 1872 in the

Interior, Secretary of, annual report of the

Papers accompanying the above :
Annual report of the Commissioner of the General Land-
Office

Annual report of the Commissioner of Pensions

Annual report of the Commissioner of Indian Affairs

Annual report of the Architect of the Capitol Extension. ..
Annual report of the president of the Columbia Institution

for Deaf and Dumb

Report of the superintendent of the Government Hospital
tor the Insane

Vol.

8
8

9
9

Report of the surgeon-in-chief of the Columbia Hospital for
Women

Annual report of the board of police commissioners

Interior, Secretary of, communicates relative to maps to illus-
trate the volumes of the Ninth Census,
transmits copv of an agreement with Sis-
seton and Wahpetou bands of Winne-
bago Indians

transmits copy of articles of convention
concluded with Shoshone and Ban-
nock tribes of IndiauM

Part.

...... 1

No. !

138

142
147

176
183

188

199
201

«05

215
234

Page.

1 877

146

9 .
3

.....

152 .
1 .

1
3
3
3
3

5
5
5
5

1
1
1
1

3
318
389
850

859

876

3
3

5
5

1
1

897
905

12
21

INDEX.

Title.

Interior, Secretary of, communicates relative to an appropria-
tion for maps to illustrate the volumes
of the Ninth Census

communicates relative to the status of
military reservation No.' 7, opposite
Mare Island, California

communicates relative to an appropria-
tion for the salary of the matron of the
school at the Pawnee Indian agency..

transmits estimate of amount required
for deficiencies in the surveying ser-
vice

communicates relative to an increase of
clerical force in his Department

communicates relative to the affairs of
the Ottawa University in Kansas

communicates relative to an appropria-
tion for removal of stray bands of Win-
nebago Indians

communicates relative to the release of
lands ceded to the Cheyenne and Ara-
paho Indians

communicates relative to recent survey
• of the line dividing the Creek ceded

lands upon which the Sac and Fox and
Seminole Indians have reservations . .

communicates relative to the Ottawa In-
dian trust-fund bonds

letter from the, relative to an appropria-
tion for the extension of the public
grounds surrounding the Capitol

communicates relative to an additional
appropriation fer the purchase of the
squares Nos. 687 and 688, in Wash-
ington City

communicates relative to an appropria-
tion for maps and charts for illustrat-
ing the geological survey of the Ter-
ritories

communicates relative to same subject..

communicates relative to an appropria-
tion for the expenses of holding a gen-
eral Indian council

communicates relative to claims for dep-
redations by Kiowa and Arapaho In-
dians on the 18th of July, 18i54

communicates relative to an appropria-
tion for the survey of boundaries of In-
dian reservations

communicates relative to the retention
of Kickapoo money as a trust-fund. ..

transmits articles of agreement with the
Wichitas and other affiliated tribes of
Indians

communicates relative to the condition
of the Pi-Ute Indians

transmits draught of a bill to enable the
united bands of Swan Creek and
Black River Chippewas and Munsee
or Christian Indians to become citizens

communicates relative to private land
claim No. 62, known as the *' town of
Cienequilla," in the name of Jos^
Sanchez et al

Vol.

Part.

....••!

•

......

Page.

23
26

29
30
31

44
45

46
47

51
51

64
63

65
66

IXDE3L

TAli

Y&L Pan. K«. Pac*.

iDierj&T. SecreUiT of. c<'iLTETiri5<-%l«« rtlE-'dT-* to CLc«cttw In-
dian flaiaxs

tTEttfiiiii* drbTig^t: of a hSil aawThJuoTT
of ac act ioT iL* reljef <4 lDdiaii« oi
iht XonbTD ^T3perlii:*^5t-DCT

trhXi?TiiiT« ao esi untie of appropyifi.'tjoii
for subfis^-nre, Ac, of Kaxis&s In-
&.hu»

tran*Di:l« a pei5:v»n prajintr for aTsii<^T-
itj M) ereci a bn ir« acri»<» ibe B«i
RjTfr. m the CLlcka^aw c^'untrr

Ci ramnnj^-ai-es relative to an aj>prc»pna-
tii.»n K»r tbe c<»c*^irDcik»E <^i a trA^...D- .
r<c»ao from Km Lake CT>o>!>:iig' lo Ked
Lake apeEtcr. M:nDe>c«ta

trail*-!!)"]!* an €*::ina:e oi an ajpTy>pTia-
lioD to 'iefrav t be expen««^ <*f ar^praisal
and sale of CLippewa \hijd< in \Visc4>a-
sin -

communicaTe* relative to an appropria-
lit»n in aid of the Indians of ine Cen-
tral japerinierjdencT

coir:mnr::ca:e<! lelatJTe to an appropria- .
tion to defray the expanses of &pprai<^
and sale of certain landf in Nebraska.'

coajmunicaie* relative to an appropria- '
t'lou lor removal of ihe CLeveune Riv-
er ajreucv

conjinunicales relative to the claim of
Ha^ Wedeles

communicates relative to an appropria-
tion to dt-fTav the expenses of :he ap-
pra^>al and sale of the Kansas luJian
laLds

comaiunicaies relative to tLe claim of
Charles Autobees

communicates relative to certain ne<ro-
tiations with the Cte Indians in Colo-
rado

communicates relative to the claim of
the Walnut Grove Miningr Company, i
of Arizona '

communicatrs relative to the condition. *
location, Ac, of the Teton-i»Joux In-
dians

communicates relative to the expense o(
removing the Otter Tail band of Pil-
lager Indians •

transmits an estimate of appropriation
lor the purchase ol" one township of
land in the White Eanh reservation,
for use of the Pembina band of Chip-
pewa Indians

cummnnicates relative to an appropria- •
lion for collei*ting and subsisiinij tlie
Apache Indians •

transmits reiH^rt* of the survey or- treneral i
of New Mexico on private land claims.

communicates relative to |>ayment of i
persons assistinpr in niakinjj appiaise-
ment of squares in Washinjrton

communicates tela live to an appivpria-
tion to meet iudebii^ness contracted
by the agent of the Arickaree, Gros
Ventre, and Maudau Indians

< I.

€9
T3
T4
75

• 4

79
SO

^1>

1\>

96
li>2

103

129
138

INDEX.

XIII

Title.

Interior, Secretary of, transmits amendment to an act making

appropriations for the lef^slative, exe-
cutive, and judicial expenses of the
Government for 1873

communicates relative to an appropria-
tion for a map for the American de-
partment of the Vienna exposition

transmits protest of the (j^ovemor of the
Chickasaw Nation against the open-
ing of the Indian Territory to white

settlement

. communicates relative to an appropria-
tion to pay interest to the Osage In-
dians

transmits list of questions propounded
by civil service examiners to candi-
dates for appointment in his depart-
ment

communicates relative to an appropria-
tion for removal of the Snake or Pi-
Ute Indians

communicates relative to appointments
made in his department during year

communicates relative to an appropria-
tion for the completion of the Colum-
bia Hospital for Women

communicates relative to an appropria-
tion for continuing the geological sur-
vey of the Territories

communicates relative to an appropria-
tion for the relief of the Mississippi
Chippewa Indians

communicates relative to an appropria-
tion for the removal of the urpat and
Little Osage Indians

transmits a memorial of the legislature
of Dakota, praying for the removal of
the Pembina band of Chippewa In-
dians

communicates relative to the condition
of the Miami Indians, and the rights
of settlers on their lands

communicates relative to the present
difficulties with the Modoc Indians. ..

communicates relative to a deficiency in
the appropriation for the subsistence
of the bioux Indians

transmits estimate of appropriations re-

anirod for the incidental expenses of
le Indian service

transmits an act of the legislature of the
Chickasaw Nation for the adoption of
the negroes of the Chickasaw Nation .

communicates relative to the restoration
to market of ceitaiu lands in Michigan

transmits draught of a bill for authonty
to use the unexpended balance of pre-
* vious appropriations for the subsist-
ence of the Navajo Indians

communicates relative to the claim of
Jos^ A. Baca and Romaldo Baca

communicates relative to the claim of
Cyrus M. Cutler

communicates relative to the claim of
M. Desmarais & Co

Vol.

Part

......

Page.

139
140

141
142

146
147
152
154
166
176
183

188

199
201

205

206

207
208

215

228
229
230

XIV

INDEX.

Title.

Vol.

Interior, Secretary of, communicates relative to the claim of

Probst & Kirchner

comma nicates relative to the claim of

Seth E.Ward

communicates relative to House bill 30!^,
for the relief of the Alabama, Cooshat-
ta, and Muscogee tribes of Indians, in

Texas

communicates relative to the claim of

Christopher Weidner

recommends an appropriation for wagon-
roads to Yellowstone national park. ..

Internal revenue, annual report of the Commissioner of

index of the above .•

Isthmus of Panama, letter from the Secretary of War relative

to freights rta the

Jussen, Edmund, message of the President of the United States,

transmitting his objection to signing House
bill No. 2291, for the relief of

Kansas, letter from the Secretary of the Interior relative to the
affairs of the Ottawa University in

Land-Office, annual report of the Commissioner of the General.
Land, letter firom the Secretary of War transmitting draught
of a bill to confirm the purchase by the executive depart-
ment of a certain tract of, at Omaha, Nebraska

Lands, letter firom the Secretary of the Interior relative to an
appropriation to defray the expenses of appraisal and

sale of certain, in Nebraska

letter from the Secretary of the Interior relative to an
appropriation to defray the expenses of appraisal and

sale of the Kansas Indian

letter from the Secretary of the Interior relative to the

restoration to market of certain, in Michigan

Legal-tender notes, letter from the Secretary of the Treasury

transmitting information relative to the increased issue of

Letters, letter from the Postmaster-General relative to the
number of, annually transmitted since 1820, with ratio of

postage each year, &c

Levees of the Mississippi, letter from the Secretary of War
relative to bill of the House No. 3419, to aid in the rebuild-
ing of the

Light-house and buoyage property, letter from the Secretary
of the Treasury transmitting draught of a bill to protect the.
Louisiana, message firom the President of the United States in
answer to resolution of the House relative to the condition
of affairs in

Madden, Charles B., letter from the Secretary of War relative
to the claim of

Mail-contractors, letter from the Postmaster-General trans-
mitting report of fines imposed upon and deductions made
from the pay of

Mails, letter from Uie Postmaster-General relative to the cost
of transportation of the, on the Union Pacific Railroad

Part.

No.

Page.

11
11

5
5

11
9

231
233

234

235

241
4

167

202

208

217

187
137

196

218
151

176

INDEX.

Title.

Maine, letter from the Secretary of War relative to the Harbor

of Portland

Marine hospital, letter from the Secretary of the Treasury
transmitting draueht of a bill for the purchase of a site for

a, near the port of New York

Marine hospital, New Orleans, letter from the Secretary of the

Treasury transmitting draught of a bill for the sale of the. .

Marine hospital service, annual^report of the supervising

surgeon of the

index to the above —

Marine hospital service, letter from the Secretary of the

Treasury relative to present laws governing the

Matron at Pawnee Indian agency, letter from the Secretary
of the Interior relative to an appropriation for the salary of

the, of the school at Pawnee Indian agency

Maryland, letter from the Secretary of War relative to the

improvement of Elk River

McCnllah, James A., message from the President of the
United States, returning with his objections bill for the

relief of

McKinney, Charles J., letter from the Secretary of War

relative to the claim of

McLaughlin, John and William South, letter from the Secre-
tary of War relative to the amount due to

Medical department, letter from the Secretary of War relative

to a deficiency in the appropriation for the

Memphis and Vicksburgh Railroad Company, letter from the
Secretary of War relative to House bill 2012 granting right
of way to the, through the Vicksburgh national cemetery . . ,

Metropolitan police, annual report of the board of

Michigan, letter from the Secretary of War relative to the
construction of a canal around the falls of the

Saint Mary's River in

letter from the Secretary of the Interior relative to

the restoration to market of certain lands in

Military convicts, letter from the Secretary of War relative to
an appropriation for outstandinf^ claims for care and main-

tenance of, in State penitentaries

Military post, letter from the Secretary of War transmitting
aa extract from the report of the Inspector-General of an

inspection of the, of Key West, Florida

Military posts, letter from the Secretary of War relative to an
appropriation for the establishment of, on the Northern

Pacific Railroad

Mines and mining statistics, letter from the Secretary of the
Treasury transmitting report of Professor Raymond on, west

of th<^ Rocky Mountains

Missouri, letter from the Secretary of War relative to the
indebtebness of the State of, for ordnance and

ordnance stores

letter from the Secretary of the Treasury relative to

the erection of a public building at Saint Joseph..

Montana Indian war claims, letter from the Secretary of War

relative to the, of 1867

Navy Department, letter from the Secretary of the Navy

relative to clerks ana employes ap-
pointed in, during the year 1872

letter from the Secretary of the Navy
relative to civil service questions in use
in the

letter from the Secretary of the Navy
transmitting statement of civil employes
in the

Vol.

Part.

No.

Page.

12C

104

185

8
8

131
131

"■■89

211

; 124

i 194

.. .•••

■ 8

1J5

220

172

11
3

""'5

236

**'965

208

133

106

213

210

114

184

164

136

191

232

XVI

INDEX,

Title.

Navy, Secretary of the, annual report of

commnuicates relative to the amount
paid for freif^ht on materials, tools,

&c.,durinff 1870 and 1871

communicates relative to clerks and
employ<^8 appointed in his Depart*

ment auring the year 1872

communicates relative to civil-service
questions in use in his Department.,
letter from, relative to House bill No.
3400, to reg^ulate the grade of certain

officers in the

transmits list of civil employes in his

Department

Nebraska, letter from the Secretary of the Interior relative to
an appropriation to defray the expenses of ap-
praisal and sale of certain lands in

letter from the Secretary of War transmittinf^
draught of a bill to confirm the purchase by the
executive department of a certain piece of land

at Omaha ....*

Neeroes of the Chickasaw Nation, letter from the Secretary of
the Interior transmitting an act passed by the legislature of

the Chickasaw Nation to adopt the

Newman, William H.,and L. A. Van Hoofman, letter from

the Secretary of War relative to the claims of

New Mexico, letter from the Secretary of the Interior trans-
mitting reports on private land-claims in

New York, letter from the Secretary of the Treasury relative
to the suspension of work on the new post-office

building in the city of

letter from the Secretary of the Treasury transmit-
ting draught of a bill for the purchase of a site

for a marine hospital near the port of

letter from the Secretary of War relative to the

survey of Bear Creek Harbor, Lake Ontario

New Yorker Democrat, letter from the Secretary of " War

relative to the claim of the

letter from the Secretary of War

relative to the claim of the

Night-signals, letter from the Secretary of the Treasury relative

to, in the mercantile marine

North Carolina, letter from the Secretary of War relative to
the improvement of the entrance to Cape Fear River

Officers in the Navy, letter from the Secretary of the Navy
relative to bill of the House No. 3400, to regulate and
establish the grade of certain

Ohio, letter from the Secretary of War relative to the harbor

of Toledo

letter from the same on same subject

Ordnance and ordnance stores, letter from the Secretary of
War relative to the indebtedness of the State of Missouri
for, issued to said State

Patents, annual report of the Commissioner of

Penitentiaries, letter from the Secretary of War relative to an
appropriation to meet outstanding claims for care and main-
tenance of militaiT convicts in State

Penitentiary, letter nrom the Secretary of War relative to the
taking down and removal of the old, in Washington arsenal
grounds

Vol.

Part.

No.

Page.

11
11

8
8

8
9

8
8

8
9

134

136
191

226
232

202

207
149
128

101

104
165
14
14
224
108

I 226

92
92

114

190
133
163

INDEX.

XVII

Title.

Vol.

Part.

No.

Page.

•

PeDsions. annual renort of the CommissioDer of.

3
3

7
4

•

1
4

•

7
7

•7

8
8
9

.5
5

......

1
7

• • • • • •

1
1

113

3G
1

113

132

151

192

217

218

132

J92

195
1

39
55

112
115

168

194

.')2I

Police, annual renort of the Board of Metrooolitan . ...... ....

905

Poetal-cards and stamps, letter from the Postmaster-General
tiansmHtinfir corresnondence relatini? to...... ...... ,.

Post-hospitals, letter from the Secretary of War relative to an
annronriation for the nermanent renair of ..................

Pcwtmaster-GeneTixl. annnal renort or the ...... ^ r t r ,.

transmits correspondence relating to
nostal-cards and stamns ...............

•

transmits list of clerks and employes in his
Denartment for vear 1872 ....... ......

communicates relative to the cost of trans-
nortation of the mails. . .... ....... ....

communicates relative to civil-sei^vice
questions'in use in his Department

communicates relative to the number of
letters annually transmitted since 1820,
with ratio of Dostasre. i&c ....... ......

transmits a report of fines imposed upon
and deductions made from the pay of

contractors for transporting mails

Poet-Office Department, letter from the Postmaster-General

transmittinji: list of clerks and em-
nlov6s for vear 1872

letter from the Postmaster General rela-
tive to civil-service questions in use
in the i

Pratt, R. H., lieutenant, letter from the Secretary of War rela-
tive to the claim of. .....................................

President of the United States, annual message of the

synoptical list of papers trans-
mitted with the above

transmits report of the president
of the United States centen-
nial commission ............

communicates relative to com-
pensation to consular agents
for extraordinary services

communicates relative to the
consular and diplomatic sys-
tems of the United States ....

transmits the report of the com-
missioners for inquiring int<^
depredations on the frontiers
of Texas

transmits his objection to bill of
the House No. 2291, for the
relief of Edmund Jussen

message from the, in answer to
resolution of the House rela-
tive to the condition of affairs
in Louisiana .---.

......

message from the, vetoing bill
of the House, No. 630, relating
to new trials in the Court of
Claims. ....................

transmits the report of consular
agent De B. Randolph Keim . .

message from the, relative to
consular a&rents.

message from the, returning with
his objections bill of the House
for the relief of James A.
McCuUah

2 HE

XVI 11

INDEX.

Title.

Vol.

Pj^esidont of the United States, messajre from the, transraittinfr

a letter from the Secretary of
State relatiTO to the claim of

Bernhard Bernstein

message from the, calling atten-
tion of Congress to a former
message relative to the fish-
eries

ivate land claim, letter from the Secretary of the Interior
relative to the, No. 62, known as the ** town of Cienequilla,'*

in the name of Jos6 Sanchez et at

Private land claims, letter from the Secretary of the Interior
transmitting reports of the surveyor-general of New Mex-
ico on -^

Probst and Kirchner, letter fiom the Secretary of the Interior

relative to the claim of

Providence Hospital, letter from the Secretary of War trans-
mitting a report of the Surgeon-General of the Army on the
expenditure of the appropriation of $30,000 for the comple-
tion of the

Public building, letter from the Secretary of the Treasury in

answer to resolution of the House relative
to a, for a post-office at Paw tucket, Rhode

Island'

letter from the Secretary of the Treasury rela-
tive to the suspeusion of work on the new
?ost*office building in the city of New
ork

letter from the Secretary of the Treasury rela-
tive to the erection of a, at Saint Joseph,

Missouri

Public debt, letter from the Secretary of the Treasury relative
to the aggregate amount paid on the, since March 4, 1861 . ..
Public grounds, letter from the Secretary of the Interior rela-
tive to an appropriation for the extension of the, surrounding

the Capitol

Public money, letter from the Secretary of the Treasury trans-
mitting draught of a bill to regulate and secure the safe

keeping of

Public property, letter from the Secretary of State transmitting

inventory of, in his Department

letter from the Commissioner of Agriculture
transmitting list of articles of, purchased
and disposed of by his Department since

last inventory

letter from the Secretary of War transmitting
inventory of, in the Bureaus of his De-
partment

Purchase of souares in Washington City, letter from the Secre-
tary of the Interior relative to an additional appropriation to
complete the, Nos. 687 and 688

Quartermaster-Generars Office, letter from the Secretary of
War relative to the contingent expenses of the

Quartermaster's Department, letter from the Secretary of War
relative to the enlisted men and civilians employed in the

Raymond, Professor, letter from the Secretary of the Treasury
transmitting report of Professor Raymond on mines and
mining statistics west of the Rocky Mountains

8
11

8
7

7
9

U)7

216

101

184

Page.

50
209

210

INDEX.

XIX

Title.

Receipts and expenditures, report of the Treasurer of tho United

States of the, third and fourth
quarters 1870, and first and second

quarters 1871

letter from the Secretary transmitting

statement of, for the year 1870

Keservation, letter from the Secretary of the Interior, in answer
to resolution of the House, relative to the status
of militGfry, No. 7, opposite Mare Island, Cali-
fornia

letter from the Secretary of War relative to the
claims of the settlers on the Fort Randall mil-
itary

letter from the Secretary of War relative to the

military. No. 7, near Mare Island, California

Reservations, letter from the Secretary of the Interior relative
^ to an appropriation for the survey of the boundaries of Indian.
Revenue-cutter service, letter from the Secretary of the Treas-
my transmitting draught of a bill for retiring certain officers

of the

Rhode Island, letter from the Secretary of the Treasury in
answer to resolution of the House, relative to a public build-

ing for a post-office, at Pawtucket

Eiver^ letter from the Secretary of War relative to the im-
provement of the Upper Monongahela

letter from the Secretary of War relative to the im-
provement of the entrance to Cape Fear, North Car-
olina

letter from the Secretary of War transmitting a report

of the examination of the Broadkiln, Delaware

Rivers, letter from the Secretary of War, in answer to resolu-
tion of the House, relative to the improvement of the

Fox and W'isconsin

River, letter from the Secretary of War relative to improve-
ment of the Elk, Maryland

Rivers and harbors, letter from the Secretary of War relative

to certain examinations of, in Rhode

Island and Connecticut

letter from the Secretary of War relative
to the repair, preservation, and comple-
tion of certain public works on

Road, letter from the Secretary of War relative to the proposed,
from Santa F6 to Taos, New Mexico

Sanchez, Jos6, et al.y letter from the Secretary of the Interior
relative to private land-claim No^ 62, in the name of

Saybrook Bar, letter from the Secretary of War relative to the
improvement of

Seamen, letter from the Secretary of State transmitting a re-
port of relief and protection to

Seizure of books and papers, letter from the Secretary of the
Treasury relative to

Ship-canal, letter from the Secretary of War relative to the
cost of a, from the Mississippi River to the Gulf of Blexico..

Showalter, Ephraim P., letter from the Secretary of War re-
turning bill of the House for the relief of

Snag-boat J. M. Thayer, letter from the Secretary of War
relative to replacing the, sunk in the Arkansas River

Soath, William, and John McLaughlin, letter from the Secre-
tary of War relative to the amount due to

State Department, letter from the Secretary of State transmit-
ting an inventory of public property in
that Department

Vol.

Part.

No.

100

108

111

124

106

153

180

125

130

204

220

Page.

INDEX.

Title.

Stale Department, letter from the Secretary of State transmit-
ting statements of disbursements of the

contingent fund of the

letter from the Secretary of State transmit-
ting list of employes in the

letter from the Secretary of State relative
to the appointment of clerks in the, during

the year 1872

State, Secretary of, transmits a report of relief and protection

to American seamen

transmits inventory of public . property in

charge of his Department

transmits statements of the disbursements
of the contingent fund of his Depart-
ment

transmits list of employes in his Depart-
ment

communicates relative to an appropriation
for canying on the work on the new
State, War, and Navy Departments

building

transmits communications from the consul
at HoQ^-Kong, China, and the Secretary
of the Treasury, relative to banking fa-
cilities between the United States and

the East ,

transmits a report of the commercial rela-
tions of the United States

communicates relative to the appointment
of clerks in his Department oiuring the

year 1872 ,

State, War, and Navy Departments building, letter from the
Secretary of State relutive to an appropriation for carrying

on the work on the

Steen, Daniel R., letter from the Secretary of War relative to

the removal of the charge of desertion against

Storms, letter from the Secretary of War relative to an appro-
priation for expenses of observation and report of

Stoves, letter from the Secretary of War relative to an in-
creased appropriation for, for the Army

letter from the Secretary of War on same subject

Sullivan, Kerry, letter from the Secretary of War relative to

the case of v.

Superintendent of the Coast Survey, report of the, for 1872....
Superior Bay and Harbor, and Du Luth Harbor, lelter from the

Secretary of War transmitting report relative to

Supervising surgeon of the marine hospital serv'ice, annual

report of the

index of the above

Surgical appliances, letter from the Secretary of War relative
to an appropriation for providing for certain classes of disa-
bled persons

Surveying service, letter from the Acting Secretary of the
Interior transmitting estimate of amount required for de-
ficiencies for the

Swamp lands on the Potomac River, letter from the Attorney
General relative to

Page.

Tax, ten per cent, ad valorem, letter from the Secretary of the
Treasury, relative to the

Telegraph-line, letter from the Secretary of War relative to a
military, in Texas

9
10

159
IGO

161

120

219

49
49

148

240

144

131
131

29
110

150
179

INDEX.

XXI

TiUe.

Telegraph lines, letter from the Secretary ofWar relative to the
probaole cost of construction of, connecting military posts

in Texas

Territories, letter from the Secretary of the Interior relative to
an appropriation for maps and charts for illus-
trating the geological .survey of the

letter from the same, on same subject

Texas, letter from the Secretary of War relative to depredations

on the frontier of :

messa^ from the President of the United States trans-
mittmg report of the commissioners for inquiring into

depredations on the frontiers of

letter from the Secretary of War relative to an appropri-
ation for purchasing certain property near the San

Antonio arsenal, in San Antonio

letter from the Secretary of War withdrawing the rec-
ommendation for the construction of a permanent

depot for military supplies at San Antonio « .

letter from the Secretary of War relative to an appro-
priation for rebuilding Fort Griffin, in

letter from the Secretary of War relative to a military

telegraph line in

Tibbets, Lincoln W., letter from the Secretary of War relative

to the claim of

Tonnage, letter from the Secretary of the Treasury transmit-
ting a statement of the, of the United States employed in

the home trade

Treasurer of the United States, report of the, of receipts and
expenditures, third and fourth quarters, 1870, and first and

second quarters 1871

Treasury, annual report of the Secretary of the, on the finances.

index of the above

Treasury Department, letter from the Secretary of tbe Treasury

transmitting list of clerks appointed in

the, during the year 1872

letter from tbe Secretary of the Treasury
transmitting statement of the expendi-
tures of the contingent fund of tbe

letter from the Secretary of the Treasury
relative to civil-service questions in use

in the

Treasury, Secretary of, annual report of tbe, on tbe finances

transmits estimates of appropriations.

index of tbe above

transmits a statement of drawback or
reduction of duties on damaged goods,
in answer to resolution of the House,
communicates relative to tbe net pro-
ceeds claim of tbe Cboctaw Indians .
communicates relative to an appropria-
tion to pay certain Indian aepreda-

tions claims

communicates relative to tbe payment
of forged checks, by the assistant

treasurer at San Francisco

transmits draught of a bill to regulate
and secure tbe safe-keeping of public

money

transmits answer to resolution of the
House relative to a public building
for a post-office at Pawtucket, Rbode

Island

transmits draught of a bill for retiring cer-
tain officers of tbe revenue-cutter

service

transmits information relative to tbe
Increased issue of legal-tender notes.

Vol.

Part.

No.

Page.

]]

227

7
7

""2

51
51

•

«••••.

179

222

7
3
3

••*•*•

20
2
2

553

173

182

9
4
6
6

•

123
2
5
5

1
7

7 1

. •• •• .L

XXII

INDEX.

Title.

Vol.

Part. No.

Page.

Treasiuy, Secretary of, transmits draagbt of a bill for relief of

the assistant treasurer. New York City

transmits draught of a bill to define the
limits of the collection-district of

Puget Sound

, communicates relative to Senate bill

1144, granting an American register
to the bark Jewess

transmits statement of the tonnage of
the United States employed in the
home trade

communicates relative to an estimate of
an appropriation to complete the ser-
vice of the fiscal year ending June
30, 1873, and prior years

transmits a bill for the relief of the col-
lector of customs fur the district of
Annapolis

communicatee relative to a bill author-
izing deputy collectors and other offi-
cers of customs to act as disbursing
agents

transmits statement of the receipts and
expenditures of the United States for
the year 1870

communicates relative to the suspen-
sion of work on the new post-office
building, New Ydrk

transmits draught of a bill for the pur-
chase of a site for a marine hospital
near the port of New York

communicates in answer to resolution
of the House relative to seizures of
books and papers

transmits draugnt of a bill for the pro-
tection of light-house and buoyage
property

transmits a report of the merchants' ap-
praisement of lambskin or kid gloves
imported during the year 1^2 by
Goodsell, Budillon «&Co

communicates relative to the ten per
cent, ad valorem tax

transmits statement showing the unex-
pended balances of appropriations. ..

transmits estimate of the cost of a suit-
able building for the use of the Bu-
reau of Engraving and Printing

transmits statement of clerks appointed
in his Department during year 1872. .

communicates relative to the propriety
of refunding the cotton-tux

transmits statement of the expenditures
of the contingent fund of his Depart-
ment

communicates relative to the erection
of a public building at Saint Joseph,
Missouri

transmits draught of a bill to provide
for the sale of the marine hospital.
New Orleans

communicates relative to civil-service
questions in use in his Department..

transmits report of Professor Raymond
on mines and mining statistics west
of the Kocky Mountains

7
7

8
8
8
8

8
8
9

9
9
9

9
9

41 I
54

86 :

I
87

88 .,
97

98
100
101
104
130
137

143
150
157

171
173
181

182

184

185
193

210

INDEX.

XXIII

Title.

TreMnrj, Secretary of, communicates relative to the apfgregate

amount paid on the public debt since

March4, 18r>l

communicates relative to night-signals

in the mercantile marine

report of the, on commerce and naviga-
tion ^...

Tra8t*fund bonds, letter from the Secretary of the Interior rela-
tive to the Ottawa Indian

Trust-fund, letter from the Secre'ary of the Interior relative to
the retention of Kickapoo money as a... ,

Union Pacific Railroad, letter from the Postmaster-General rel-
ative to the cost of transportation of the mails on the

Union Pacific Railroad Company, letter from the Secretary of
War transmitting statement of payments to the

University, letter from the Secretary of the Interior relative to
the affairs of the Ottawa, in Kansas ,

Van Hoofman, L. A., and William H. Newman, letter from the
Se<a«tary of War relative to the claims of

Vienna exposition, letter from the Secretary' of the Interior rel-
ative to an appropriation for a map of the United States for
the American department of the

Wagon-road, letter from the Secretary of the Interior relative
to an appropriation for the construction of a, from Red Lake

Crossing to Red Lake agency, Minnesota

Walnot-Grove Mining Company, letter from the Secretary of

the Interior relative to the claim of the, of Arizona ,

Ward, Seth £., letter from the Secretary of the Interior relative

to the claim of

War Department, letter from the Secretary of War transmit-
ting list of clerks and others employed in

his Department during year 1872 ,

letter from the Secretary of War transmitting
• inventory of nublic property in the several

Bureaus of tne

letter from the Secretary of War transmitting
list of clerks and employes appointed in

the, during 1872

letter frodn the Secretary of War transmitting

civil-service questions in use in the

letter from the Secretary of War transmitting
statement of contracts and purchases by the

several Bureaus of the ,

War, Secretary of, annual report of the

index of the above .'

communicates relative to depredations on the

Texas frontier

communicates relative to the claim of the

- New Yorker Democrat

communicates relative to the claim of the

New Yorker Democrat

transmits draught of ft bill for the relief of
John R. Williams, lance-sergeant. United

States Army

communicates relative to the disbursement
of the $12,000 appropriated for the relief
of aged destitute persons in the District of
Columbia

Vol.

11
11
11

7
7

9
9

8
9

9
2
2

5
5

Part.

No.

Page

223

224

242

..••••

151

169

149
140

233

117

123

135
155

'"2'
2

158
1
1

"1*174

14
15

XXIV

INDEX.

Till*.

VoL Ptet Xo.

War, SeereUry of, aminionrcmtes re'ative to a bill for the relief

of Companr H, Second Caralrr

reeommeods tbe passage of an act for tbe
iisue of clothtn^r to certain enlisted men
of Baiterr F, Firet Artillery, and Com-
pany B, First Infantry

commanicates relatJTe to an appropriation
for proTiding snr^cal appliances for cer-
tain classes of disabled persons

commanicates relatire to tbe claim of
Charles B. Wilder

commanicates relatire to the claims of tbe
settlers on tbe Fort Randall military res-
ervation in Dakota

commanicates relative to an appropriation
for tbe permanent repair of post-bo«pttals

commanicates relative to an appropr at ion
for parchasing^ certain property adi»'inin^
San Antonio arsenal, San Antonio, lexas

commanicates relative to an increased ap-
propriation for tbe purchase of 8tuv^< fur
the Array

commonicates relative to same subject

communicates relative to tbe contingeni ex-
penses of the Qaartermaster-Genei il's
Office

communicates relative to replacing thesu ii^-
boat J. M. Thayer, sunk in tbe Arkau^ hs
River -

communicates relative to certain wrecks on
tbe Atlantic coast

transmits a report on the improvement of
Monroe Harbor, Michigan, and Ashtabula
Harbor, Ohio ,

transmits report of the Surgeon-General of
tbe Army of the expenditure of the appro-
priation of $■'$0,000 for the completion of
the Providence Hospital

communicates relative to the cost of a ship-
canal from tbe Mississippi River to the
Gulf of Mexico

transmits a report of the examination of the
Broadkiln River, Delaware

communicates withdrawal of the recom-
mendation for the construction of a per-
manent depot for military supplies at San
Antonio, Texas

transmits a report locating a bridge across
the Mississippi River at La Crosse, Wis-
consin -

communicates relative to tbe claims of J. B.
£]y*8 heirs for the use of certain devices..

communicates relative to an artesian well
on tbe Fort D. A. Russell military reserva-
tion

communicates relative to tbe construction
of a canal around the falls of the Saint
Mary's River, Michigan

communicates relative to the improvement
of the Upper Monongabela River

communicates relative to the harbor of
Toledo, Ohio

communicates relative to same subject

communicates relative to an appropriation
for rebuilding Fort Griffin, Texas

5 i

7 t
7

7
7

7 '

8
8

19
27

32
36

49
49

62
56

71
72

92
92

INDEX.

XXV

Title.

War, Secretary of, commuDicates relative to the militarj reser-
vation No. 7, near Mare Island, California.

transmits extract of the report from the In-
spector-General of an iuspection of the
military post at Key West, Florida

communicates relative to examinations and
surveys of certain rivers and harbors in
Rhode Island and Connecticut

communicates relative to the improvement
of the entrance to Cape Fear River, North
Carolina •.

transmits report of General Vincent on the
condition of affairs of the Freedmen's
Bureau

communicates relative to the improvement
of the Fox and Wisconsin Rivers

communicates relative to the indebtedness
of the State of Missouri for ordnance and
ordnauce stores

communicates relative to bill of the House
for the relief of Charles J. McKinney

transmits statement of clothing necessary to
be manufactured for issue to troops dur-
ing next fiscal year

transmits list of clerks and others employed
in his Department during year 1872

transmits statement of expenditures for
Army contingencies for year 1872

communicates relative to the survey of San-
dusky Harbor

communicates relative to the removal of the
charge of desertion against Daniel R.
Steen

communicates relative to the claim of H. G.
Cole

communicates relative to the transfer of an
appropriation fur the Medical and Hos-
pital Department

transmits inventory of public property in
Bureaus of his Department

communicates relative to the improvement
of Elk River, Maryland

communicates relative to the improvement
of Say brook Bar, Connecticut

communicates relative to the improvement
of the harbor of Portland, Maine

communicates relative to Senate bill No.
A9i\ for the relief of the East Tennessee
University

communicates relative to an appropriation
for the care and maintenance of military
convicts in State penitentiaries

transmits list of clerks and employes ap-
pointed in his Department during the
year 1872

transmits reports relative to Superior Bay
and Harbor,and Du Luth Harbor and dike .

communicates relative to the case of Kerry
Sullivan

communicates relative to the claims of Wil-
liam H. Newman and L. A. Van Hoof man.

communicates relative to the repair, preser-
vation, and completion of certain public
works on rivers and harbors

transmits civil-service questions in use in
his Department

SHU

Vol.

Part.

No.

Page.

8
8

99
ICC
107

108

109
111

114
115

116
117
118
119

120
121

122
123
124
125
126

127

133

135
144
148
149

153

XXVI

INDEX.

Title.

War, Secretary of, communicatea relative to traDsferrinp the

duty of making an annual report of im-
migrants

transmits statement of contracts and pur-
chases made by the several Bureaus of
his Department

communicates relative to the condition of the
Freedmeu's Hospital in the District of
Columbia

communicates relative to the taking dowu
and removal of the materials of the old pen-
itentiary in Washington arsenal grounds..

communicates relative to the Montana In-
dian war claims of 1867

communicates relative to the survey of the
harbor of Bear Creek, Lake Ontario

communicates relative to freights via Isth-
mus of Panama

transmits statement of payments to the
Union Pacific Railroad Company

communicates relative to a deficiency in
the appropriation for the Medical Depart-
ment

communicates relative to the Utah Indian
war-claims

transmits draught of a bill to confirm the
purchase of a portion of the site of Fort
Houston

communicates relative to the reduction of
Fort Sanders military reservation

communicates relative to a military tele-
* graph line in Texas

communicates relative to a wagon-road from
Santa Fe to Taos, in New Mexico

communicates relative to bill of the House
No. 3041, for the relief of Nathan B.
Abbott

communicates relative to bill of the House
No. 3419, to aid in the rebuilding of the
levees of the Mississippi

transmits estimate to carry out plans for the
preservation of Army clothing and equi-
page

communicates relative to the claim of Lieu-
tenant R. H. Pratt

communicates relative to the claim of Chas.
B. Madden

communicates relative to the repeal of sec-
tion 5, act of May 8, 1872, relating to
moneys or proceeds of sale of property
pertaining to the Army

communicates relative to an appropriation
for the purchase of a limited number of
Gatling guns

transmits draught of a bill to confirm the
purchase by the executive department
of a certain piece of land at Omaha, Ne-
braska

communicates relative to bill of the House
for the relief of John J. Cladeck

communicates relative to bill of the House
for the relief of Ephraim P. Showalter

communicates relative to the enlisted men
and civilians employed in the Quarter-
master's Department

Vol.

Part, i No.

• 9

•••*••

! 9

Page.

; 156

158

' 162

163

164

165

167

169

17-2

175

177

178

......

179

180

186

187

189

195

196

198

•200

'20-2

203

204

......

209

INDEX.

XXVII

Title.

Vol.

War, Secretary of, communicates relative to the marine hospi-
tal service of the United Slates

transmits petition of honorably discharged
soldiers of the Regular Army relative to

bounty

commYinicates relative to an appropriation
for the establishment of military posts on

the Northern Pacific Railroad ,

communicates relative to a bill to authorize
the Attorney-General to adjust the claim
of the Government upon the purchasers

of property at Harper's Ferry

communicates relative to an appropriation
for expenses of observation and report of

storms

communicates relative to the amount due

John McLauf^hlin and William South

communicates relative to the military his-
tory of N. R. Gruelle

communicates relative to the claim of Lin-
coln W. Tibbits

communicates relative to the claim of John

Heberer

communicates relative to the probable cost
of constructing telegraph lines connecting

military posts in Texas . ,

communicates relative to bill of the House
No. 1012, grantin£: right of way through
the national cemetery, at Vicksburgh, to
the Memphis and Vicksburgh Railroad

Company

communicates relative to the bill of the late

firm of Dempsey &, O'Toole

communicates relative to a detailed state-
ment of the amount expended in payment

of the Florida militia

communicates relative to the Army retired

list

Wedelcs, Hugo, letter from the Secretary of the Interior rela-
tive to the claim of

Weidner, Christopher, letter from the Secretary of the Interior

relative to the claim of

West Virginia, letter from the Secretary of War relative to the

improvement of the Upper Monongahela River, in

Wilder, Charles B., letter from the Secretary of War relative

to the claim of

Williams, John R., letter from the Secretary of War trans-
mitting draught of a bill for the relief of, lance-sergeant,

United States Army

Wisconsin, letter from the Secretary of War transmitting a
report locating a bridge across the Mississippi

River, at La Crosse

letter from the Secretary of the Interior transmit-
ting an estimate of appropriation to defray the
expenses of appraisal and sale of the Chippewa

lands in *.

Wrecks, letter from the Secretary of War relative to certain,
on the Atlantic coast

Yellowstone National Park, letter from the Secretary of the
Interior recommending an appropriation for wagon-roads
to

11
11

•>»

11
7

Part.

No.

211

212

\ . _

213

214

219

220

1 J.

221

2-22

225

227

230
237

238
239

235

241

Page.

42d CJongbbss, \ HOUSE OF EEPKESENTATIVES. ( Ex. Doc. 1,
3d Session, f \ Part 1.

I>A.I>ERS

RBLATINO TO

THE FOREIGN RELATIONS

THE UNITED STATES,

TRANSMITTED TO CONGRESS WITH THE ANNUAL MESSAGE

OF THE PRESIDENT,

December 2, 1872.

PART II.

WASHINGTON:

GOVERNMENT PRINTING OFFICE.

1873.

PAPERS

K ELATING TO

THE TREATY OF WASHINGTON.

VOLUME IV.-GENEVA ARBITRATION.

CONTAINING THE REPORT OF THE AGENT OF THE UNITED STATES

PROTOCOLS OF THE CONFERENCES; DECISION AND AWARD OF THE

TRIBUNAL; OPINIONS OF THE ARBITRATORS; REPLY OF THE

SECRETARY OP STATE, ACKNOWLEDGING THE RECEIPT OF

THE REPORT OF THE AGENT OF THE UNITED STATES,

AND COMMENTING UPON THE OPINION OF THE

ARBITRATOR APPOINTED BY HER BRITANNIC

MAJESTY ; REPORT OF THE COUNSEL

OF THE UNITED STATES;

AND

OPINIONS OF STATESMEN, MAGAZINES, AND JOURNALS OF GREAT BRITAIN
AND THE CONTINENT ON THE CONSTRUCTION OF THE TREATY.

TABLE OF CONTENTS.

Page.

L Report of J. C. Bancroft Davis, agent of the United States 1

Award and protocols transmitted r 1

Action of Joint High Commission on the indirect claims 1

Protocol of May 4, 1H71, and statement of claims J

In harmony with all previous action 1

No exception taken by British commissioners 1

Definition of '^Alabama claims '' in the protocol binding on the agent 1

Preparation of case 2

Private claims classed as indirect 2

Employment of Mr. Beamau 2

His fidelity *. 2

Arrangement of the evidence , 2

Preparation of case ; principles adopted 2

The tribunal a Judicial body 2

Case to be stated frankly 2

Unfriendly course of Great Britain and British ministers a want of due

diligence 2

What acts of subordinates a government not responsible for "^

Maintenance of insurgent bureaus on British soil a want of due diligence. . . 3

British denial of liability 3

Submission of this part of the case to publicists 3

President Woolsey 3

Mr. William Beach Lawrence 3

Mr. £. R. Hoar 4

General Cnshing 4

The Cabinet ' 4

Last chapter not submitted for advice 4

No claim made for a particular sum for indirect damages ; tribunal asked

to estimate 4

Delivery of the case at Geneva 4

Language of the case mild ,.. . 4

Comments of the British press 4

Action of the British government 5

Contemplate<l request for withdrawal of the American case 5

Opinion of the continental press favorable to the United States 5

Exchange of the counter case ..., 5

Industry and zeal of the secretaries 6

Friendly view s of the British agent 6

The argument by the counsel regarded as masterly 6

United States argument filed 6

British move for long adjournment 6

Consequent negotiations 6

Adjudication un the indirect claims 6

Friendly feelings on both sides 7

British argument filed ; motions for further argument 7

Opinions on the Florida 7

Supplemental arguments ordered and made 7

Decisions of t he tribunal 7

Damages 7

Award 8

Determination to award a sum in gross 8

Counsel advise at every stage 8

Independence and ability of neutral arbitrators 8

Due diligence ; what was claimed by United States 8

Position of Great Britain : 8

Views of Count Sclopis 9

Decision of the tribunal 9

Unfriendliness of England ; views of Count Sclopis 9

Views of Visconnt d'ltsguba 9

Views of Mr. Adams 10

His impartiality 10

VI TABLE OF CONTENTS.

Page.

I. Report of J. C. Bancroft Da via — Continued.

Effect of a comniissiou ; position of the United States 10

Britisli position 10

American rejoinder 10

Views of Visconnt d'ltajnba 10

Decision of the tribunal 10

Supplies of coal ; position of the United States II

Decision of the tribunal II

Views of Mr. Adams 11

Views of Count Sclopis II

Views of Mr. Staempfli 11

Views of Viscount d'ltajuba 12

Municipal laws of England cannot be set up in justification 12

The tribunal pass upon the Sumter, Nashville, Sic.y notwithstanding Brit-
ish objections 12

Sir A. Cockburn's dissenting opinion 12

He is the representative of Great Britain T 12

His charges against the American counsel 12

They need no vindication 13

No opportunity offered to consider or object to the charges 13

He charges the case with abuse and hostility 13

The reasons for those charges 13

The justice of the line of argument in the American case admitted 13

Lord Russell justifies it 14

Lord Wtstbury justifies it 14

The results of the tribunal a vindication of the policy of arbitration 14

II. Protocols of the conferences of the arbitrators 15

1 . Organization, and delivery of cases 15

2. Adjonmment to June 15 16

3. Delivery of American argument ; British motion for adjournment 17

4. Adjournment 19

5. Arbitrators declare indirect claims not a subject for computation of dam-

ages 19

6. The United States acquiesce in the decision 20

7. Decision made official. British argument filed. Sir R. Palmer moves

for re-argument ; motion denied 21

8. Sir A. Cockburn moves for re-argument ; motion denied 25

9. Order of proceedings 26

10. Same subject. Mr. Staempfii's paper ; Sir A. Cockbnru*s renewed motion

for argument 27

IL TheFlonda 28

12. The Florida 29

13. Sir A. Cockbum's motion for argument denied : the Alabama 29

14. Argument orderc^d as to due diligence, effect of commissions and su)»-

plies of coal : the Alabama 30

15. British arguments submitted: Sumter, Nashville, and Chickamauga 'M)

16. Tallahassee and Retribution 31

17. Oral argument of Mr. Evarts 31

18. Arguments of Mr. Evarts and General Gushing :i2

19. Retribution : argument of Mr. Waite 32

20. Sallie, Jeff*. Davis, Music, Boston, and V. H. Joy 33

21. Effect of commission ; new evidence submitted by Great Britain 33

22. TheGeorgia 34

23. The Shenandoah ; uew tables presented by the agents 34

24. The Shenandoah ; argument ordered on the effect of the entry of the

Florida into Mobile 35

25. Lonl Tenterden's statement about tables presented by Mr. Davis ; argu-

ments as to Florida ; decisions as to Sumter, Nashville, Retribution,

Georgia, Tallahassee, Chickamanga, and Shenandoah 36

26. Lord Tenterden presents new tables ; decisions as to Florida, Tuscaloosa,

Clarence, Tacony, and Archer ; Mr. Davis replies to Lord Teuterden's

remarks on the American tables 37

27. Claims for expenses for pursuit of cruisers, for prospective profits, and

for gross freights rejected 43

2ft. Argument ordered respecting interest 48

29. Mr. Staempffi's statement, and Sir A. Cockburn's memorandum regard-

ing a sum in gross 44

30. Regarding draught of decision 47

31. Form of decision adopted ; Viscount d'ltaj aba resjwcting supplies of coal . . 47

32. Signature of award and dissolution of tribunal 48

TABLE OF CONTENTS. VII

Pajje.

IIL Decinion and award 49

Recitals 49

Award 50

Dne dili);ence * 50

Effect of a coiuiniHsiou .^o

Exterritoriality of vessels of war 50

Effect of want of notice 50

Supplies of coal 50

Responsibility for acts of Alabama 51

Responsibility for acts of Florida 51

Responsibility for the acts of the Shenandoah after leaving Melbonrne .. b*;l
Responsibility for the acts of the Tuscaloosa, Clarence, Tacony, and

Archer 52

No responsibility for the Retribution, Georgia, Snmterj Nashville, Talla-
hassee, or Chickainauga 5*2

The Sallie, Jeff. Davis, Music, Boston, and V. H. Joy not taken into con-
sideration ..i bW

Claims for cost of pursuit not allowed 5:{

Same as to prospective earnings 53

Only net freights allowed 5:<

Fifteen and a half millions awarded for compensation 5:^

IV. Opinions of the arbitrators 55

Opinions of Count Sclopis 55

Due diligence 57

British nnfriendliness 62

Vessels which have received commiHsious 69

Supplies of coal 74

The Alabama 75

The Shenandoah 81

The Florida 90

Opinions of Visconnt dltajubu 96

Effect of a commission 96

The Florida 98

The Alabama > 99

The Georgia, Sumter, Nashville, Retribution, Tallahassee, and Chicka-

manga 101

The Sallie, Jeff. Davis, Music, Boston, V. H. Joy 101

Shenandoah 101

Opinions of Mr. Sta;mpfli 103

Opinions on the questions of law as to which the tribunal of arbitration

requested elucidation- 103

Rules of the treaty take precedence 103

Questions to be decided 106

Definition of facts 106

Vessels whose act« are to be adjudicated npon 107

The Florida 108

The Alabama 119

The Shenandoah 125

The Sumter ^ i:J4

The Retribution 138

Opinions of Mr. Adams 141

Due diligence 141

The effect of commissionn 146

Supplies of provisions and coals 148

The Florida 150

The Alabama 171

The Tuscaloosa 181

The Georgia 187

The Shenandoah 196

The Sumter 208

The Nashville 212

The Chickamanga 214

The Tallahassee 215

The Retribution 217

Opinions of Sir Alexander Cockburn %Vd

Causes of complaint brought forward by the United States 230

Rules of the treaty of Washington 230

Difficulty arising from the treaty 231

Elements of neutralitv '. 2:U

VIII TABLE ,0F CONTENTS.

P«g«.
IV. Opinions of the arbitrators — Continued.

Obligations of the nentral state 234

Obligations of the subjects of a nentral state 234

Liability of the state lor acts of ^ts subject-s 234

Rights of nentral subjects in respect of trade 2:J5

Difference between a state and its subjects in regard to trade 235

Effect of war on neutral trade 236

Blockade and contraband of war 237

Different view 239

M.Hautefeuille 239

No obligation on neutral governmenU to prevent trade iu coutnibaud of

war, or with blockadeil ports 239

M. Ortolan 239

Ships of war and coals 239

Passive commerce of the neutral 241

Lampredi 241

Azuni 242

Mass^ 242

M. Ortolan 243

Hefifter 243

Professor Blunt-schli 243

Sir R. Phillimore 244

M. Hautefeuille 244

Practice in former wars 245

American authorities 245

Purchase of contraband of war by the Groveruinent of the United States. 247

Result of discussion 247

Sale of ships 247

Professor Blnutschli 247

Opinion of Dana - 248

Opinion of M. Ortolan 249

Opinion of Professor Bluntschli 250

Opinion of M. Rolin Jacquemyns 250

Opinion of the judges of England ., 251

Case of the Santissima Trinidad .*...: 251

Judgment of Mr. Justice Story 251

Case of the Gran Para 252

American review 252

Opinion of Mr. Adams 253

Question as to prohibition of sale of articles contraband of war 253

Ship of war sent out for immediate service 254

Armament and crew sent out in different ships 254

Duty of neutral government 255

American argument as to effect of foreign-enlistment act 255

British and American acts 255

As to effect of act of 1870 257

Right conferred on belligerent by municipal law 258

Effect of proclamation 259

Equipment of vessels under rules of treaty - 260

Construction of rules of treaty 260

Due diligence, what? 260

Opinions of jurist-s 262

Same principle applied to government 264

Heads of diligence 265

Law 265

Means at disposal of gGvornment 265

Action of government 266

Errors of judgment 267

Delay 267

Seizure of vessels 267

Judicial miscarriage 268

Liability for acts of subonlinates 268

Municipal law of Great Britain 270

Foreign-enlistment act 270

Preventive law 271

Comparison with American acts 271

Preventive powers of British and American acts 271

British act of 1870 275

Negotiations for amendment of the foreign-enlistment act during the civil

war 276

TABLE OF CONTENTS. IX

Page.
IV. Opinious of the arbitrat^jra — Continued.

Comparison with foreign laws 277

Law of Austria , 278

Law of Prussia 278

Law of Switzerland 278

Law of France 278

Law of Belgium 280

Law of the Netherlands 280

Law of Spain 280

Law of Portugal and Brazil , 281

Law of Italy 282

Law of Denmark 283

Law of Sweden 283

Law of Russia 283

Law as to privateers 283

Comparison between Great Britain and United States as to observance of

neutrality 288

Legislation of 1794 289

Complaints of Spain 289

Complaints of Portugal 295

American act of 1838 298

Expedition of Lopez against Cuba *. 299

Walker's expedition against Mexico and Central America. . 301

Fenian raids 303

Expedition in aid of the Cuban insurrection 305

Complaints of unfriendliness 309

Alleged evidence of unfriendly feeling. 311

Complaints of unfriendly conduct * 313

Acknowledgment of belligerency 313

Vattel 315

Hautefeuille 315

Professor Bluntschli 315

Mr. Dan^ 316

The Santissima Trinidad 317

Whether acknowledgment premature 319

Recognition of belligerency 324

Course pursued by foreign powers 324

Question as to confederate vessels 326

Discussion with government of the Netherlands 326

Correspondence with Brazil 331

Correspondence with Spain 336

Correspondence with French government 336

Correspondence with British government 3ii6

Regulations of June 1, 1861 339

Regulations of 31st January, 1862 339

As to Nassau 340

Alleged partiality as to coaling 344

Supplies of arms obtained from Great Britain 344

Ships obtained from Great Britain 346

Steps taken by the British government 347

The Bermuda 347

The Georgiana 348

Vessels at Glasgow 349

The Phantom and Southerner 349

The Alexandra 350

TheSonth Carolina 351

The Gibraltar or Sumter 351

Iron-clads at Birkenhead 351

The Canton or Pampero 352

Iron-clad ram at Glasgow 353

The Rappahannock 353

The Amphion 354

The Hawk 354

The Ajax, the Hercules, the Virginia, the Louisa Ann Fanny 354

Anglo-Chinese fleet Ji55

General results 355

Proceedings of other governments 356

Braxil 356

Portugal , 356

II — B

X TABLE OF CONTENTS.

I'ajre.

IV. OpinioDs of the arbitrators — Contiuued.

France ^ 356

The Stonewall 358

Complaints of blockade-running 359

S3'nipatby iu the colonies 365

Application to particular vessels. 3(i6

The Florida 367

At Liverpool 367

At Nassau :J86

Alleged recrnitraent of crew 405

Florida after leaving Green Cay 405

Question as to ett'ect of going into and remaining at Mobile 405

After Mobile 406

Case of the United States ra. DeQuincy 406

Question whether the Florida should have been seized on again coming

into a British port 40H

Effect of commissions on ships of war 409

Ships of war exterritorial 409

Hefft^r 410

Sir R. Phillimore 410

Ortolan 410

Case of the Exchange 411

Coramissiou of mere belligerent 412

Effect of alleged violation of neutral territory 412

Hautefenille 412

Ortolan 413

Duty of seizing for breach of municipal law 414

Duty of excluding from neutral ports 416

Case of the Cassius 417

Stay of belligerent ships in neutral ports ; supplies of coal there . 418

Power of neutral sovereign 418

Law as asserted by t he United States 419

Whether coaling makes a port a base of naval operations * 422

Right of asylum 424

Supply of coal 425

At Nassau 425

At Nassau 427

At Barbadoes 430

At Nassau 433

At Bermuda 435

At Brest 4:^^

At Martinique 439

Again at Bermuda 439

The Alabama 446

At Liverpool 447

After leaving Liverj)ool 460

Arming off Terceira 462

At Martinique 463

At Jamaica 4t>6

At the Cape of Good Hope 468

In the eastern seas 471

At Cherbourg 472

Tuscaloosa 473

Georgia 4/<

Shenandoah 484

At Melbourne ; 489

Supply of coal 497

Melbourne a base of naval operations 498

After leaving Melbourne 505

Sumter 506

At Trinidad 506

At Gibraltar 513

At Liverpool 518

Nashville 519

At Bermuda 519

At Southampton 522

Again at Bermuda 527

Chickamauga 527

Tallahassee 530

Hetribution . 531

TABLE OF CONTENTS. XI

IV. Opinions of the arbitrators — Continued.

Cases in which Great Britain has been held responsible 536

As to the award of a sum iu gross 536

Amount of claims 537

Claims for cost of pursuit and capture 537

Question of damages 337

Claims for prospective catch 537

Claims for gross freights 539

Double claims 539

New claims 540

Property destroyed 540

Values of whaling- vessels 541

Values of merchant -vessels 541

Claims for cargoes 541

Claims for x>ersonal effects 542

Claim for interest 542

Conclusion 544

V. Replj' of the Secretary of State, acknowledging the receipt of the report of
the agent of the United States, and commenting upon the opinion of the

arbitrator appointed by Her Britannic Majesty 545

Acknowledging the receipt of the report 545

The President's approval 545

The action of the arbitrators on the indirect claims 545

Entry of judgment on the indirect claims 546

Effect of the judgment 546

The award of the tribunal 546

The dignity and learning of the arbitrators appointed by Italy, Switzerland,

and Brazil 546

Mr. Adams receives the thanks of Her Britannic Majesty and of the Presi-
dent 546

The dissenting opinion of Sir Alexander Cockburn 546

This opinion not read or made known to his colleagues 546

If the contents had been known it should have been object'ed to 546

Sir A. Cockburn professes to speak as the representative of Great Britain.. 547

R^um^ of the positions he maintains as the representative of Great Britain . 547

Effect of the controversy in defining neutral rights and obligations 548

The importance of noting the views of the representative of the British

government 549

y I. Report of the counsel of the United States 550

VII. Appendix : Opinions of statesmen, magazines, and journals of Great Britain

and the continent on the construction of the treaty of Washington 551

I -REPORT OF J. C. BANCROFT DAVIS, AGENT OF THE UNITED

STATES.

REPORT.

Mr. Davis to Mr. Fish.

Paris, September 21, 1872. (Received October 10, 1872.)

Sib: I traDsmit herewith, in a separate inclosure, the original award
of the tribunal of arbitration, and, in another separate in- ^ward .nd proto-
closure, the original protocols of the conferences. cou ir.n..miiied.

Having now conducted to a successful termination the interests in-
trusted to me by the President, I respectfully ask permission to make a
statement respecting them.

At the conference of the joint high commissioners at Washington, in
which the subject of the Alabama claims was first consid-

.....*^. .. » At * • At Anion of Joint

ered, the American commissioners, m their opening state- hi^h rommi«ion on
ment, defined the demands of the United States against Great **"' '°*^"^" *^''"™*'
Britain, gro<Ving out of the acts of the Alabama, and the other cruisers,
which were to be the subject of the negotiations, in the following lan-
guage, viz:

Extensive direct losses in tbe capture and deatrnction of a large number of vessels,
with their cargoes, and in tbe heavy national expenditure in tbe pursuit protocol oi m *
of the cruisers ; and indirect ii\jury in the transfer of a large part of the im%nd sutemeot
American commercial marine to the British flag, in tbe enhanced pay- **' •"**""*•
ment of insurance, in the prolongation of tbe war, and in tbe addition of a large sum
to the cost of the war and the suppression of the rebellion.

At the same, time they indicated the manner in which some of these
claims could be substantiated, viz: the claims for the loss and destruc-
tion of private property in the ordinary manner; the cost of the pursuit
of the cruisers "by certificates of Government accounting officers,^' and
what they styled "indirect losses'' by estimates. All the subsequent
negotiations proceeded from this starting point.

It has been shown, beyond possible question, in the argument of Gen-
eral Gushing, Mr. Evarts, and Mr. Waite, presented to the ,„ harmony with
tribunal on the 15th of June last, that this definition of our •" »•'•"••*" ■*='^''"-
claims was in strict accordance with all previous negotiations between
the two governments, with the action of the Senate of the United States,
and with the' official expressions of the President to Congress.

The British members of the joint high commission took no exception
to the definition when it was made by their American col- no exception ukea

, nr^i • J • "^ by British coiiuui*-

leagues. They acquiesced in it. *ioner-.

When I had the honor to receive the directions of the President to
prepare the Case of the United States for submission to the ivnn.tionof ai«-
tribunal, I regarded myself as bound by the definition of tbe l:;'"oS'bmyi^
words "Alabama Claims" wliich the American commission- ^»"' "««"'■
ers had given in the opening conference, which they had adhered to
throughout the negotiations, and which had been placed in the protocol

1 B

2 ARBITRATION AT GENEVA.

by the joint act of all the comniissioDers. I looked in vain in the treatjr
for any waiver or remission of those claims. On the contrary, I found
an express provision that the United States were to have the judgment
of the tribunal on all their claims growing out of the acts of the
cruisers.
The question was a practical one : for the claims for ^' enhanced rates

pr»parmuo.ofc.»*. of iusurancc '^ were among those which had been classified

pnTateci.iin.cia.. ^s " iudircct " lu thc statcmcnt, which had received the ap-
•ifiedM indirect, proval of all the members of the joint high commission.
Many claims of this character were presented at the Department of
State, and a circular was* issued, under the immediate direction of the
Secretary of State, informing claimants that all claims growing out of
the acts of the cruisers would be presented to the tribunal, leaving that
body to determine on their merits.
It was impossible for me to prepare the Case and, at the same time, to

Employment of Mr. dircct iu- pcrsou thc dctalls of the arrangement of the evi-

Beaman. dcucc rcspccting the national and individual claims. Mr.

Charles C. Beaman, jr., of New Ybrk, was employed to do the latter,

under general directions from me, and did his work with

H.8 fidelity. admiraWc fidelity. Thus the evidence already collected,
together with important new materials from the archives of the several
Departments, and the proof of the losses suffered by individual claim-
ants, were arranged and stated in the manner marked out by the Ameri*-
can members of the joint high commission, viz:

1. The evidence offered by individual claimants for the loss and de-
Arr.a«e»e>torthe structiou of propcrty and for enhanced rates of insurance

•Tident^. ^^g analyzed and tabulated, and a full abstract of each case

was prepared by the clerks.

2. The national claims for the pursuit of the cruisers were stated and
tabulated at the Navy Department, and were inserted by us exactly as
received from that Department.

3. No proof was ofl'ered of the national losses by the transfer of the
commercial marine, or by the prolongation of the war, but they were-
left to be estimated by the tribunal of arbitration^ should Great Britain
be found resi)onsible for them.

The Case, which was reserved for mj'^ own work, was constructed on
the following theories of fact and of law — theories which
cai-prnci'^le".^ havc rcccivcd the sanction of the eminent counsel of the-
a«iopte United States ; which have been adhered to in all the argu-

ments, and which have, to no small extent, been adopted by the arbi-
trators :

(a) That the tribunal of arbitration was a judicial body, substituted

The iribun.1 a ju ^J thc partics to take the place of force, and empowered

dKTiaibody. ^Q |-j.y gjj^j determine issues which otherwise could be settled

(if at all) only by war.

(b.) That the injuries of the United States should be stated, therefore,
c«.eio be MRted ^ith thc fulluess necessary to a determination in a court of
franiiy. jjj^^ ^^^ y^Hh thc samc frankness with which they would be

stated in case of an appeal to force. I did not think that the United
States could obtain full justice at the hands of the arbitrators if any ap-
preciable part of their wrongs were left untold.

(e.) That the government of Great Britain, by its indiscreet haste in

counselling the Queen's proclamation recognizing the in-

of\"rert"il'ntRm'«'nd surgcuts as bclligercnts, by its ]>reconcerte(l joint action

uVnt'oJ' "diiT'X'h: with France respecting the declarations of the congress of

*^""' Paris, by its refusal to take steps for the amendment of its-

REPORT OF THE AGENT OF THE UNITED STATES. 3

neutrality laws, by its refraining for so long a time from seizing the
rams at Liverpool, by its conduct in tbe a£fair of the Trent, and by its
approval of the coarse of its colonial officers at various times; and that
tbe individual members of the government, by their open and frequent
expressions of sympathy with the insurgents, and of desires for their
sncoess, had exhibited an unfriendly feeling, which might afifect their
own course, and could not but affect the action of their subordinates;
aod that all this was a want of the '^due diligence" in the observance
of neutral duties which is required at once by the treaty and by inter-
national law.

It seemed to me that such facts, when proved, imbued with the char-
acter of culpable negligence many acts of subordinates in wi,«t .cfoi .ub.
tbe British service for which, otherwise, the government ^r,iJrrii°«^bK
might not be held responsible; as, for instance, acts of the ^°'-
collector of customs at Liverpool respecting the Florida and the Ala-
bama ; acts of the authorities at Nassau respecting the arming of the
Florida at Green Bay, and subsequently respecting her supplies of coal;
acts of the authorities at Bermuda respecting the Florida; and acts of
the authorities at Melbourne respecting the Shenandoah. There were
many such acts of subordinates which, taken individually and by them-
selves, would not form a just basis for holding culpable a government
which was honestly and with vigilance striving to perform its duty as
a neutral ; but which, taken in connection with each other, and with the
proofs of animus which we offered, establish culpability in the gov-
ernment itself.

(d.) That the insurgents established and maintained, unmolested
throughout the insurrection, administrative bureaus on

Y^.,., -11 ^-(>ixi 1 • MiiintenAnce of in-

British soil, by means of which the several cruisers were -urtem .dmimstm-
dispatched from British ports, or were enabled to make them Br?u.h ".on". «.«"
bases of hostile operations against the United States, and "^ *'"" '''•'««'«^
that the British government was cognizant of it.

(e.) That Great Britain, from the outset, denied, and to the last per-
sisted in denying, that the departure of vessels like the Brituh denij oj
Alabama and the Florida, under any circumstances, could ''*^"'*^
be a breach of international duty ; and had refused to exercise diligence
to prevent such departure.

(/.) That in point of fact no such diligence had been exercised ; and
that, while there were particular facts as to each vessel, tending to fix
responsibility upon Great Britain, these general indisputable facts were
sufficient to carry responsibility for the acts of all the cruisers.

The treatment of this line of argument exhausted five chapters of the
Case. These five chapters were printed in a memorandum
form, and were submitted to several gentlemen, some of j«riofcn.etopubii.
whose names I may mention without violating confidence ; *"^
only remarking, in justice to them, that they should not be held respon-
sible for the views in this part of the Case, by reason of having read
it in advance.

1. They were sent to President Woolsey, who made many

111 .• j./»i»i 14.J President Woolsey

valuable suggestions, most of which were adopted.

2. Mr. William Beach Lawrence, the eminent publicist, permitted me
to consult him, not only after these chapters were written, „,. b^^^ l^w
but also during their composition. I did not adopt his well- "'"'^•
known views respecting the Queen's proclamation and the unfriendli-
ness of the British cabinet; nor do I suppose that he, knowing my con-
victions to be otherwise, had any idea that I would adopt them. I did,
however, receive from him valuable hints, w^hich improved the work.

4 ARBITRATION AT GENEVA.

3. Mr. E. R. Hoar, one of the members of the joint high commission,

read these chapters at my request, and expressed his gen-
eral approval. I think that he made several snggestions,
and that all were adopted.

4. The veteran statesman and scholar, General Gushing, made several

valuable contributions, all of which were embodied in the
work.

5. The different members of the Gabinet were consulted, and, so far

as they made suggestions, their views were adopted. It is
nur c.b.,.*.i- within your own knowledge that I received several valuable
contributions or hints from you.

It was not until I had thus received and acted on the advice of a wide
circle of statesmen, jurists, and publicists, competent to criticise the
work, of whose patriotic desire to have the interests of their country
represented with dignity at Geneva no one could doubt, that the final
chapter of the work was written. This chapter contained the formal

i^.f vMnpi.r not statcment of the claims submitted for adjudication under
.ubm.tte<jior«dv..«. ^jjg trcaty. Among them were those which have since be-
come known jis "the indirect claims.'' To prevent misapprehension it
should be said that this chapter was not sent out for criticism as the
others had been. The statements were presented in the exact language of
the protocol made by the two parties jointly for the purpose of defining
the claims to be submitted to the tribunal. They were accompanied by
references to the i>roofs respecting the individual claims, and the national
claims for the pursuit of the cruisers; and with a request
. JmrtKuurTMn n^ tliat tho tHbunal would estimate the national losses in the
u\hZn\ tkJT'u, transfer of the commercial marine, and in the prolongation
of the war. And, in order that the statement might be com-
plete, some reasons were added why, should the tribunal be of opinion
that Great Britain was responsible for the prolongation of the war, the
l^rolongation should be dated from July, 1863.
The Gase, as thus revised, was reprinted, and was, in accordance with

DH.v.ry nf the thc tcrms of the treaty, taken to Geneva, and there de-
,n.^Hiti.^nev«. livcrcd to the arbitrators and to the British agent in the
official English, (and also in a French translation, made for the con-
venience of the arbitrators,) together with seven volumes of accom-
panying documents, correspondence and evidence.
The facts which were disclosed in the Gase were, undoubtedly, such as

The un«..n,e of callcd for thc rcprobatiou of justthiuking pcrsous ; but thcso
the c«e ir.ed. f^^,^^ y^rQ^Q ^q\([^ gQ f^f ^s I was ablc to do so, in simple and

temperate language, without harshness or violence. Nothing could
have been further from my expectations than the outburst which fol-
lowed.

In about a fortnight after w^e left Geneva, it began to be said in the
comnunu o( the Loudou ucwspapcrs that the good faith of the British
Bniv«h press, govemmeut was called in question m the American Gase,
and soon the whole press, with the exception of the newspaper univer-
sally recognized as the leading journal, opened an attack upon the
chapter on unfriendliness.

The Standard thought we had "sacrificed the consistency and dig-
nity of our pleadings to satisfy popular prejudice at home.'' The Tele-
graph spoke of the '* effrontery" with which the American demands
were set forth, and said that '* it must be borne in mind that General
Grant seeks re-election." The Saturday Eeview spoke of the narrative
as "perverted and spiteful," and "a malignant composition," and said that
" if the Americans wish to express still more hostile feelings, they must

REPORT OF THE AGENT OF THE UNITED STATED. 5

discontinae verbal controversy." The Pall-Mall Gazette, usually fair
and courteous, though hostile, charged that the claims had been bought
up by "American legislators and officers of state even among the higher
and more influential grade." The Spectator charged us with " sharp
practice," and " a discreditable forcing of the natural meaning of the
treaty in order to win popularity at the elections." The Daily News
called the claims " extravagant demands intended as an electioneering
card," and complained that the case was a "long and passionate plead-
ing," in which " chapter after chapter is devoted to the presumed mo-
tives of our [British] public men."

In fact, fault was found indiscriminately with nearly everything in
the Case except the one thing afterward made the main subject of com-
plaint, namely, the allegation that it contained demands which were not
included in the submission in the treaty. That was an objection which
did not appear in the British press until weeks after the exchange ot
the documents at Geneva, and, so far as I am aware, was not taken by
any person entitled to speak by the authority of the government until
a still later day.

Even as late as the middle of January negotiations were going on
between the respective agents and counsel regarding the Anion of the Brit.,h
times and the manner of making supplemental arguments •°^«^"'""»
at Geneva, (should the tribunal call for any,) without an intimation that
there might be a difference as to the subjects to be argued. It was not
until the 3d of February that the ministry announced officially that
they had not anticipated that the claims which have improperly become
known as the " indirect claims" would be presented at Geneva.

Indeed, there is some evidence that the British government was occu-
pied with the parts of the Case which had offended the Brit- rontem,.i«t^d r^.
ish press ; for I gather from General Schenck- s telegram of oJThi Amencan'cMi
the 27th of February, reporting to you an interview with Lord Gran-
ville, that the cabinet had under consideration atone time the propriety
of asking for the absolute withdrawal of the American Case, on other
grounds than its presentation of the " indirect claims."^

For several weeks, I may say months, the London press continued to
discuss our national claims. This discussion was conducted opinion, of the
with a vehemence, and with insinuations or charges of bad ?rnbie?rii.rumtej
faith, which attracted the attentig>n of the Continental *"'''^"-
press. In all the principal capitals of Europe, the Alabama claims be-
came ihe subject of comment. The unanimity of the verdict in favor
of our construction of the treaty was as complete as was the unanimity
of the English press in favor of Great Britain, and it was universally
conceded that England could not retire from the arbitration without dis-
lu^nor. I inclose a variety of extracts on this subject.
v^During all this time I was occupied in Paris in the preparation of
the counter-case, and the other duties of the agency. On K,ch«nte of the
the 15th of April I was able to comply with the require- ^ "'"'''' "'^'^
ments of the treaty and the directions of the tribunal by delivering
the counter-case and accompanying documents to Mr. Favrot for the
British agent and for the arbitrators. The volume of evidence accom-

.^ " He [LfOrd Granville] tben said to me that in bis note of the 3d he ha<l stated the
views of Her Majesty's government as to indirect claims ; that there were other por-
tions of [the] American Case they regret, and some of which appear to introduce mat-
ters not germane to reference ; that he has not been able to consult cabinet here, hut is
individiiallif prepared to recommend to them^ and he thinks with reasonable expectation of sue-
eeaSy that they should not press for withdrawal of American Case if the Government of the
United States,'^ &c., &c. — (Corresjiondence respecting Geneva Arbitration, page 5.)

€ * ARBITRATION AT GENEVA.

panying the counter-case was selected and arranged under the directions
of the counsel. At the same time I delivered French translations of
these documents, and also two volumes containing French translations
of selected pieces from the seven volumes of evidence submitted with
the case in December.
This, alid much of the subsequent work, could not have been com-

industry »nd u^ni plctcd iu scdsou had uot the secretaries been willing, when
of ih«.«r*urie^ callcd upou, to work day and night for the purpose,
y Lord Tenterdenmet me at Geneva in April with unreserve, and in the

Friendly ri^ws of Spirit of conciUatiou. Under instructions from his govern-
theBnt»h.f.^Di. ment, he lodged with the secretary of the tribunal a notice
to the individual arbitrators of the action taken by Her Majesty's gov-
ernment on the 3d of February, rn order that the act of filing the British
counter case should not be deemed to be a waiver of that action. But he
did not conceal his own strong desire to save the treaty, and he left on my
mind the conviction that the judicial solution which the tribunal sub-
sequently made of the political difficulty raised by the British note of
•^ the 3d of February would be accepted by 4:he British government.

The time between the 15th of April and the 15th of June was occu-
pied by the counsel in the preparation of their argument.
the couUST^Hrd^d This argument has attracted great attention throughout
u m*«ierii. Europe, and has received universal praise as a masterly vin-

dication of our rights.
On the 15th of June the tribunal re-assembled, the agents and counsel

in.ted.<»iates«rgu. ou both sidcs being present. The argument of the United
meat hied. Statcs was duly delivered, (together with the French trans-

lation made for the convenience of the arbitrators;) but the British

Briti-h more fur agcut, Ittstcad of filing thc Brltish argumcut, asfccd for an ad-
ioa« .u^oummenL joummeut of scvcral mouths, in order to enable the two
governments to arrange politically the questions in dispute. *
I had already discussed with General Cushing the probability of ad-

con«N,uent ne,o. justlug thcsc diflfereuces by the action of the tribunal. In-
t..uon,. stead of assenting to the proposed adjournment, 1 therefore,

with the full concurrence of the counsel, asked for an adjournment of two
days, in order to give us time to consider the position. Before the tri-
bunal convened again, steps were taken for removing the difliculty
through the action of that body. In the proceedings which followed we
acted as a unit on our side. Happily they resulted in a solution by
the tribunal, which proved to be acceptable to both governments. The

A.u..d..MK>nonihe arbitrators announced their opinion that the claims known
.nd.r^ici.ms. ^ thc iudircct claims did not constitute, on principles of
international law applicable to such cases, good and sufficient founda-
tion for an award of compensation or computation of damages between
nations. On the side of Great Britain the solution was a practical one;
no damages were to be awarded for this class of claims. On our side
the solution was reached in the manner pointed out by the treaty, viz,
by the action of the court. On the suggestion of the other side, this
unofficial act was then formally entered as an official judgment, in the
following language:

Count Sclopis, on behalf of all the arbitrators, then (loclared that ihe said several
claims for indirect losses mentioned in the statement made by the agent of the United
States on the 25th instant, and referred to in the statement just made by the agent of
Her Britannic Majesty, are, and from henceforth will be, wholly excluded from the
consideration of the Tribunal, and directed the secretary to embody this declaration iu
the protocol of this day's i)roceedings.

REPORT OF THE AGENT OF THE UNITED STATES. 7

Inalltbese proceedings, I found the British agent and FnendirfeeLmo,

counsel sharing our sincere and earnest desire to save the '"'*'' **'*'*•

treaty.

^ The British argument was next filed, with my consent, and an effort
vas then made on their side to re-open argument and secure
anew hearing on the whole question. This was success- fii«^A Motion for fur
folly resisted, and the tribunal took a recess for a fortnight. """"■'""•°*-

dn Monday, the loth of July, it re-assembled. The efforts on the
part of Great Britain to secure re-argument were renewed. The neutral
arbitrators said that they had examined the whole case, and that they
wanted no re-hearing. It was decided by the tribunal to give the
opinion of the arbitrators seriatim on each cruiser, beginning with the
Florida.

Sir Alexander Cockburn presented the facts and reasoning affecting
this vessel at an extreme length, holding Great Britain opinion, on ti.«
free of blame. The other arbitrators held her responsible, *''''"'*"•
reserving, however, the question a^ to the effect of a commission.

Sir Alexander Cockburn, then, in vigorous language, and with
great warmth of manner, urged the tribunal to permit an argument
npou the meaning of the words " due diligence," upon the effect of a
<»>mmi8sion, and upon the law respecting the supplies of coal. The
tribunal granted the request. I was, myself, in favor of allowing further
arguments, within some defined scope. I thought that we had nothing
to lose by an argument, in which we had the reply, in the hands of such
masters of discussion as General Gushing, Mr. Evarts, and Mr. Waite.

The bearings were ordered, and, before the dissolution of the tribu-
nal, arguments had been made (always on the suggestion ^^ ,«„,entai
of England) on the following points, the British counsel j«.jemJ.£-"o^aerea
leading and ours following : 1, on the meaning of the words ""
"due diligence;" 2, on the effect of a commission on the offending vessel;
3, on supplies of coal; 4, on the recruitment of men for the Shenandoah,
at Melbourne; 5, on the effect of the entry of the Florida into the port
of Mobile ; 6, on the subject of interest; 7, on the general subject of the
statement of claims. These arguments were presented generally both
in the English and the French languages. >^

The protocols which accompany tbis dispatch show the order in which
these various papers were delivered, and the order in which the arbitra-
tors considered the various cruisers. It was not until after the argu-
ments on the first four subjects that the formal votes iv^i^ion. or the
required by the treaty were taken separately upon the *"'"""''•
responsibility of Great Britain as to each cruiser. The tribunal decided
unanimously that there was responsibility for the acts of the Alabama.
^Gount Sclopis, Mr. Stiimpfli, and Mr. Adams held that there was re-
sponsibility for the acts of the Shenandoah after leaving Melbourne,
but not before. Great Britain was released from responsibility as to the
other vessels, except the Florida ; Mr. Adams holding that there was
responsibility for the acts of the lietribution, and Mr. Stiimpfli holding
that there was responsibility for the acts of that vessel only so far as
relatetl to the Emily Fisher. The formal vote on the Florida was taken
at a subsequent conference, after agumeut by counsel on the special
question of the effect of the entry into Mobile. Count Sclopis, Viscount
d'ltajuba, Mr. Stiimpfli, and Mr. Adams held there was responsibility
for her acts.

The deliberations of the tribunal, on the subject of damages, were
held with closed doors. The arbitrators asked each party
for comparative tables, which were furnished. On our side, Da^"***

A*i'<^

8 AKBITRATION' AT GEXEVA.

we limited ourselTes to the rer|aest of the tribnna]. Go the other side^
new tables were pat in with new and elaborate eriticisias upon our list
of claims. We did not object to this irregular criticism, bat claimed
the right of reply given by the treaty.
The tribanal, at length, aunoonced that a revolt had been reached —
that fifteen and a half millions of dollars woald be awarded
as a gross sam, to be paid by Great Britain to the United
States. It does not appear in the protocols how the arbitrators arrived
at this amount I am informed that it was reached bv mataal conce^-
sions.
The neutral arbitrators and Mr. Adams, from the beginning of the
ivi*««n.a>u:, VL proceedings, were convinced of the i)olicy of awarding a
IL*^ * * '^ "^ sum in gross. For some weeks before the decision was
given, I felt sore that the arbitrators would not consent to send the
case to assessors until they should have exhausted aU efforts to agree
themselves upon the sum to be paid. We therefore devoted our ener-
gies toward securing such a sum as should be practically an indemnity
to the sufferers. Whether we have or have not been successful can be
determined only by the final division of the sum.
It is due to our counsel to state that in all the proceedings which were
co^u^}^.mc^ taken since their arrival in Europe no step was made with-
ever, .u«r. ^j^^ their advice and consent, and many important ones were

taken on their suggestion and origination. That their labors have been
incessant any one may imagine who sees the mass of able pai>ers which
came from their i>ens.

The opinions which the neutral arbitrators presented bear testi-
mony to the sagacity, good judgment, and knowledge of
J!^'^^^ J Xi the principles of law and fact at issue, which they brought to
bear on the case, and to the untiring labor with which they
mastered the varied and difficult questions submitted by the parties for
their decisions. It onlv remains to sav that thev exhibited throughout
marked i>atience and good temper, and that these admirable qualities
were sometimes needed. These opinions will undoubtedly be read with
interest. 1 take the liberty, in closing, to make a few remarks upon the
main points at issue, as they are treated in the opinions of the different
arbitrators.

1. Due diligence.

We maintained in the Case that the diligence of the neutral should " be

proportioned to the magnitude of the subject, and to the
D.^ ».i*r«. dignity and strength of the power which is to exercise

\vh,i w,, . I . I .,, it," (page 158,) and that it shoidd be "gauged by the
tb Lmudst. - character and magnitude of the matter which it may
affect, by the relative condition of the parties, by the ability of the party
incurring the liability to exercise the diligence required by the exigencies
of the case, and by the extent of the injury which may follow negli-
gence,'' (page 152.) We thought, for instance, that it would not be just
to hold Brazil, with its extended coast, sparse population, and feeble
means of internal communication, and Great Britain, with its compact
population, itsnet-work of railways and telegraphs, and its administrative
system always under the control of the central government, to an identi-
cal standard of active vigilj^nce.

roMt.ooo( Great Dr.UiD. Ou tho othcr sldc it was said:

Her Majesty's government knows of no distinction between more di<jniti»Ml and less
dignified powers ; it regards all sovereign states as enjoying equal rights, and equaUjt

REPORT OF THE AGENT OF THE UNITED STATES. 9

•

sobject to all ordiuacy interDational obligations ; and it is firmly persuaded that there
is no state in Europe or America which would be willing to claim or accept any immu-
nity in this respect, on the ground of its inferiority to others in extent, military force,
or population.

Count Sclopis, in liis opinion, says : v.ew. o. countsdo,....

The words due diligence necessarily imply the idea of a relation between the duty
And its object. It is impossible to define a priori and abstractly an absolute duty of
diligence. The thing to which the diligence relates determines its degree. ♦ • ♦
As to the measure ofactivity in the performance of the duties of a neutral, I think the
following rule should be laid down ; that it should be in a direct ratio to the actual
danger to which the belligerent will be exposed through the laxity of the neutral, and in
an inverse ratio to the direct means which the belligerent can control for averting the
danger.

The Tribunal, in its award, says :

Dfcision of the tri-
bunal.

The due diligence referred to in the first and third of the said rules ought to be
exercised by neutral governments in exact proportion to the risks to which either
of the belligerents inay be exposed from a failure to fulfill the obligations of neutrality
on their part. • • » 'pjj^ circumstances out of which the facts consti-
tuting the subject-matter of the present controversy arose were of a nature to call
for the exercise, on the part of Her Britannic Majesty's government, of all possible
solicitude for the observance of the rights and duties involved in the proclamation
of neutrality issued by Her Majesty, on the 13th of May, 1861.

2. Toleration of insurgent operations in England, cavonJim^M ...
AND English feeling against the United States. *^"«'"'"^

Count

Count Sclopis says, respecting this point : ^"^"Viopw!

The British government was fully informed that the confederates had established
in England a branch of their means of attack and defense against the United States..
Commissioners representing the government of Richmond were domiciled in London,
and had put themselves in communication with the English government. Lord Rus-
sell had received these confederate representatives in an unofficial way. The first
visit took place on the 11th of May, 1861, that is to say, three days before the Queen^s
proclamation of neutrality, and four days before Mr. Adams arrived in London as the
minister of the United States. And further, the English government could not but
know that great commercial houses were managing the interests of the confederates
at Liverpool, a town which, from that time, was very openly pronounced in favor
of the South. In Parliament itself opinions were before long openly expressed in
favor of the insurgents. The Queen's ministers themselves did not disguise that in
their opinion it would be very difficult for the American Union to re-establish itself as
before. *•#*#* j^ results from this, in my opinion, that the
English government found itself, during the first years of the war of se<;ession,in the
midst of circumstances which could not but have an influence, if not directly upon
itself, at least upon a part of thejpopulation subject to the British Crown. No govern-
ment is safe against certain waves of public opinion, which it cannot master at its
will. I am far from thinking that the animus of the English government was hostile
to the Federal Government durinc the war. Yet there were grave dangers for the
United States in Great Britain and her colonies which there were no direct means for
averting. England therefore should have fulfilled her duties as a neutral by the
exercise of a diligence equal to the gravity of the danger. * * * It cannot
1m denied that there were moments when its watchfulness seemed to fail and when
feebleness in certain branches of the i)ublic service resulted in great detriment to the
United States.

Viscount d'ltajuba has not placed on record his opinion on this sub-
ject, unless it can be gathered from a single passage in his view.oi vi^coum
remarks upon the effect of a commission on an offending <>«'i^"»»"'
cruiser, when he says, "By seizing or detaining the vessel the neutral
only prevents the belligerent from deriving advantage from the fraud
committed within its territory by the same belligerent ; while, by not
proceeding against a gniity vessel it exposes itself to having its good faith
fustly called in qneMion by the other helligerent.^

10 ARBITRATION AT GENEVA.

It would seem from some of Mr. Adams's expression^ that he did not
View, of Mr. coiicur iu these views of his colleagaes. While regretting
Ad»n»^ that he did not do so, because the views seem to me to be

in*accordance with the facts, and also in accordance with general prin-
ciples which all maritime powers would desire to maintain, I must bear

Hu im .r i.iit testimony to the perfect and dignified impartiality with
i.,mp.rt.ai.f>. ^]jj(;[j^ jjq^ Q,j]y j^ |.jj^g rcspcct, but throughout the proceed-
ings, Mr. Adams maintained his position as a judge between the two
contending nations. Of him, at least, it may be said that his love of
country never controlled his sense of justice, and that at no time did he
appear as an advocate.

3. Duty to detain an offending cruiser when it comes again

WITHIN the neutral's JURISDICTION, AND EFFECT OF A COMMIS-
SION UPON SUCH CRUISER.

It was maintained in the American Case that, by the true construction of
T.({;^t o« » com- the second clause of the first rule of the treaty, when a vessel
m«i,ioa. \i^Q the Florida, Alabama, Georgia, or Shenandoah, which has

Position oj the ^c^n especially adapted within a neutral port for the use of a
unaedsuie.. belligerent in war, comes again within the neutral's juris-
diction, it is the duty of the neutral to seize and detain it. This con-
struction was denied by Great Britain. It was maintained
Bni..h po<.a.on. ^^ ^^^ British papcrs submitted to the tribunal, that the

obligation created by this clause refers only to the duty of preventing
the original departure of the vessel, and that the fact that the vessel
was, after the original departure from the neutral port, commissioned as
a ship of war protects it against detention.
To this point we rejoined that a commission is no protection against
seizure in such case, and does not operate to release the
Amer,c*n rejomd^-r. jjg^|.j^| fvoui thc obligatiou to dctalu the offender.

View, of V mount Thc Yiscouut d'ltajuba seemed to favor the American
d itcuub.. construction. He said :

Accordiug to the latter part of the first rule of Article VI of the Treaty of Washing-
ton, the neutral is bound also to use due diligence to prevent the departure from its
jurisdiction of any vessel intended to cruise or carry on war as above, [viz, against a
beUigercnt,] such vessel having been specially adapted, in whole or in part, within
its jurisdiction to warlike use. *. * * If, then, a vessel built on neutral ter-
ritory for the use of a belligerent, fraudulently and without the knowledge of theneu-
tral, comes again within the jurisdiction of the sovereign whose neutrality it has vio-
lated, it ought to be seized and detained.

Count Sclopis says, on this point :

It is on the nature of these special circumstauces that the first rule laid down in
Article VI of the Treaty of Washington specifically rests. The operation of that rule
would be illusory, if it could not be applied to vessels subsequently commissioned.
The object in view is to prevent the construction, arming, and equipping of the vessel,
and to prevent her departure when there is sufiicient reason to believe that she is in-
tended to carry on war on behalf of one of the belligerents ; and when probability has
become certainty, shall not the rule be applicable to the direct and palpable couse-
quences which it originally was intended to prevent ?

In the award the Tribunal says that —

The effects of a violation of neutrality committed by means of the construction,

equipment and armament of a vessel are not done away with by any

tr,?JSidi°° **' ***' commission which the government of the belligerent power, benefited

by the violation of neutrality, may afterward have granted to that ressei ;
and the ultimate step by which the ofieiise is completed cannot be admissible as a
ground for the absolution of the ofiender, nor can the consummation of his fraud be-
come the means of establishing his innocence. The privilege of exterritorality, ac-

REPORT OF THE AGENT OF THE UNITED STATES. 11

corded to vessels of war, has been admitted into the law of nations, not as an absolute
Tight, bnt solely as a proceediDg founded on the principles of courtesy and mutual
deference between dinereot nations, and therefore can never be appealed to for the
protection of acts done in violation of neutrality.

It will be observed that the Tribunal, instead of adopting the recogni-
tion by the Yiscount d'ltajuba of a positive obligation on the part of the
neatral to detain the vessel, in the case supposed, limited itself to ex-
pressing the opinion that, in such case, the neutral would have the right
to make such detention.

4. Supplies of coal.

It was maintained in the American Case that the proofs showed that the
insurgent cruisers were permitted to supply themselves with
coal ill British ports in greater quantities antl with greater po'lu'run^of'^lhe

i» 1 « * A^t 1 A * A ' At ' t United Stutec.

free<lom, and with less restrictions than were imposed upon
the United States; and it was insisted that, in consequence of these
facts, there was an absence of neutrality, which made those ports bases
of hostile operations against the United States under the second rule
of the treaty.
On this point the award says that-*-

•

In order to impart to any supplied of coal a character inconsistent with the second
rule, prohibiting the use of neutral ports or waters, as a base of nav^l
operations for a belligerent, it is necessary that the said supplies should tr.ti'ilna'i!'*'" **' *'"'
be connected with special circumstances of time, of persons, or of place,
which may combine to give them such character.

It does not appear by the terms of the. award that Great Britain is
held responsible for the acts of any vessel solely in consequence of ille-
gal supplies of coal. The question is, therefore, a speculative one, so far
as relates to this controversy. The opinions of the four arbitrators who
signed the award furnish, however, the explanation of what they mean
when they speak of '"^special circumstances of time, of persons, or of
place."

Mr. Adams says :

I perceive no other way to determine the degree of responsibility of a neutral in these
cases, than by an examination of the evidence to show the intent of the
grant in any specific case. Fraud or falsehood in such a case poisons Ad;u'.l*' °' ^^'
everything it touches. Even indifference may degenerate into willful
negligence, and that will impose a burden of proof to relieve it before responsibility
can be relieved.

Count Sclopis says :

I will not say that the simple fact of having allowed a greater amount of caal than
was necessary to enable a vessel to reach the nearest port of its coun-
try constitutes in itself a sufficient grievance to call for an indemnity, g^jj*;,'^
As the lord chancellor of England said on the 12th of June, 1871, in the
House of Lords, England and the United States e\:iually hold the principle that it is no
violation of the law of nations to furnish anus to a belligerent. But if an excessive sup-
ply of coal is connected with other circumstances which show that it was used as a ver-
itable res hostilisy then there is an in fraction of the second article of the treaty. * • ♦
Thus, for example, when I see the Florida and the Shenandoah choose for their fields
of action, the one the stretch of sea between the Bahama archipelago and Bermuda, to
cruise there at its ease, and the other Melbourne and Hobson^s Bay, for the purpose
immediately carried out, of going to the Arctic Seas, there to attack the whaling ves-
sels, I cannot but regard the supplies of coal in quantities sufficient for such services,
infractions of the second rule of Article YI.

Mr. Stiimpfli says of the Sumter :

The permission given to the Sumter to remain and to take in coal at Trinidad do69
not of itself constitute a sufficient basis for accusing the British authori-
ties of having failed in their duties as neutrals, because the fact can- sumirflr' '*^ "'*
not be considered by itself, since the Sumter both before and after that

Vi«WS of CoilQt

12 ARBITRATION AT GENEVA.

time was admitted into the ports of many other States where it staid and took in coal
* * * so that it cannot be held that the port of Trinidad served as a base
of operations.

Bat of the Shenandoah he says :

A sopply of coal was not a necessary condition of neutral asylnm, and in supplying
her with so large a quantity of coal, the capacity of the ship for making war was in-
creased just as much as by the recruitment of her crew which took place.

The Viscount d'ltajuba, at the thirty-first conference, while signing

v.ewofvmx)uni thc dccisiou, remarked with regard to the recital concern-

dii^ubx jjjg ^YiQ supply of coals, that he is of the opinion that every

government is free to furnish to the belligerents more or less of that

article.

5. The municipal laws of England.

It was maintained in the American Case that the liability of Great Bri

MnniciiMii law. ot taiu should bc mcasurcd by the rules of international law ; and

l^T^fia^iZti^^- that it could not be escaped by reason of any alleged defi-

**"• ciencies in any internal legislation enacted for the purpose

of enabling the government to fulfill its international duties.

The pleadings and arguments on the part of Great Britain are filled
with denials of this proposition in every possible way, from the opening
Case to the last supplemental argument of Sir Koundell Palmer.

The award says, " the government of Her Britannic Majesty cannot
justify itself for a failure in due diligence on the insufficiency of the
legal means of action which it possessed."

6. The Sumter, the Nashville, &c.

It was maintained in the American Case that, under the terms of the
treaty of Washington the parties had agreed to submit to
n, .n't^he^s^nir'' tlic dccislou of tho tribunal of arbitration, not only the
iv ,h.umi.n« Br.u.h clai.ms growiug out of the acts of the Florida, the Alabama,
oj«i.on.. ^^^ Georgia, and the Shenandoah, which originally pro-

ceeded from ports of Great Britain, but also all claims growing out of
the acts of other cruisers, such as the Xashville. the Sumter, &e., which
could in any way be shown to have used Britisu ports as bases of sup-
plies. The British Case and Counter Case strenuously contended that
the submission was limited to the four vessels first above named. The
tribunal unanimously, including Sir Alexander Cockburn, took no notice
of this claim of Great Britain, and considered all the claims presented
and decided them upon their merits.

dJ'Xun.'^ci^u!;.'? ' 7. The dissenting opinion of Sir A. Cockburn.

The frankness with which Sir Alexander Cockburn confesses in this

opinion that he sat on the Tribunal, not as a judge, but as,
«enuti»e^o7 or^JIi " tH somc 867186 th6 r6pr686ntativ6 of Great Britain.^ one of the

parties to the controversy, pla<;es before the world the
knowledge of a fact of which, otherwise, it would have been better to
take no public notice.
The chief justice calls legal propositions made by General Gushing, Mr.

Evarts, and Mr. Waite, over their signatures and under the
th?riiJrTanTo'IIi' rcspousibility of counsel, ''strange misrepresentations," and

" assertions without the shadow of a foundation." He says
that ''their imaginations must have been lively, while their consciences
slepf He finds in a portion of their argument " an extraordinary series
of propositions," and " the most singular confusion of ideas, misrepre-

REPORT OF THE AGENT OF THE UNITED STATES. 13

sentatioDS of facts, and ignorance both of law and history, which were,
X)erbaps, ever crowded iuto the same space." He calls the part of
their argument on which he was commenting, " an affront offered to
this tribunal, by such an attempt to practice on our supposed credulity
or ignorance,'' and says that he " is at a loss to understand how counsel,
familiar with English law, can take upon themselves to make statements
of this sorf

I need not assume in the United States to vindicate the accuracy of
^atements or the soundness of reasonings which have the Theync«d do wa-
guarantee of the names of our distinguished counsel. The '*'"*'"'^
charges are sanctioned by the chief justice alone. I have no hesitation
in expressing my conviction that they would have been in-,
dignautly repudiated by each and all of his colleagues had feSflTSSi'the
the paper in which they are made been publicly read, or '^''^'^''
had its contents been made known at the time when the Tribunal ordered
it to be recorded. This voluminous paper was, in fact, not read in the
Tribunal ; its author presented it in bulk without any statement respect-
ing its character; no one had any reason to imagine its contents; and
it was not made public until several days after the dissolution of the
Tribunal and the separation of its members. As Sir Alexander Cock-
bnm says of the charges of unfriendliness which were made in the
American Case against members of Lord Palmerston's cabinet, "The
world must judge between the accusers and accused."

The British arbitrator also charges that the Case of the United States
^ pours forth the pent-up venom of national and personal
hate." He speaks of the "abuse" it "freely bestows," and caHVil^f ^'Sul* iia
complains of the "hostile and insulting tone thus offensively *""'"'"^'
and unnecessarily adopted toward Great Britain, her statesmen, and her
institutions."

These charges appear to be founded upon the proof of the desire of
various members of the British government for the success T>,e re««oa for
of the insurgents in the South, taken from the mouths of »»»<«•* ^»>»^««
the speakers and presented for the consideration of the Tribunal, and
upon the legitimate api>lication which was made of that proof in the
issue respecting "due diligence" which was pending before the tribunal
at Geneva.

A complete vindication of the line of argument in the Case (if any
were needed) could be drawn from Sir Alexander Cock- Thejusticeonhs
burn's paper. "There can be no doubt," he says, "that 'th« Am'S*"c JS
these speeches not only expressed the sentiments of the »'^'^"^'*-
speakers, but may be taken to be the exponent of the sentiments gen-
erally entertained at that time;" and he adds, "though partiality does
not necessarily lead to want of diligence, yet it is apt to do so, and in
case of doubt would turn the scale." With such an admission as this,
it is surprising that a man of the robust sense of the chief justice should
have reproduced the rash imputations of the British press.

That I charged individual members of Lord Palmerston-s cabinet with
a partiality for the insurgents, is true; equally true is it that I supported
the charge by proof from their own lips.

But I never questioned their right to entertain such i>artiality, or to
express it in any manner that suited them. I never even assumed to
criticise its justice before a tribunal created to try other issues. I con-
fined myself strictly to the issues before that body, and I argued that
this partiality of individual members of the government would be apt
to lead to want of diligence, and in case of doubt would turn the scale —
a line of argument which is now admitted to be just.

14 AEBITRATION AT GENEVA.

If I argued that these acts of individual members of the British gov-
Lord rbii»«ii 'u». emmeut were inconsistent with the "due diligence '^ re-
tiRw.u quired by the treaty, I did only what Lord Eussell had

said to ]VIr. Adams must be the inevitable result of an arbitration.
" Have the British government dieted icith due diligence^ or^ in other words,
icith good faith ana honesty f^ was the question by which he said the
liability of England was to be determined.

If I urged that, in any instance, the neutrality of Great Britain was
Lord WMtbury ^^^t siucerc, 1 did but pursue the line of argument which
fnmAm it. Lord Westbury had defended in advance in the House of

Lords, and I did it nearly in his own language.

I find no fault that Sir Alexander Cockburn does not agree with
me, and with most of the world outside of England, as to the force
of the evidence which was presented respecting these points. That is
a subject on which persons may honestly differ. But I must be per-
mitted to express some surprise that a lawyer of his deservedly great
reputation should have made such a disagreement the cause of totally
unfounded allegations against the Case of the United States and
its author.

With the exception of these personal remarks, this long dissenting
opinion (twice the length of the American case) adds little or nothing
new to the arguments previously put forth by Great Britain in vindi-
cation of her course toward the United States. There are several
material errors in its statements of facts, but I shall not follow its
example of injustice in attributing them to design. All right-thinking
persons will heartily echo the wish with which the paper closes, 'Hhat
in the time to come no sense of past wrong unredressed will stand in
the way of the friendly and harmonious relations which should subsist
between two great and kindred nations.''

Thus, surrounded by difficulties, which at one time seemed insuperable,
coDciusioo. this great cause has reached its conclusion. Nations have^

ere now, consented to adjust by arbitration questions of figures and
•n»re.aiui of the questlous of boundaries ; but the world has had few, if any,
li^T'ihep^ii^i'oi earlier examples of the voluntary submission to arbitration
vb.init.on. Qf ^ question in which a deep-seated conviction of injuries

and wrongs which no possible award could compensate, animated a
whole nation. It is out of such sentiments and feelings that wars come.
The United States elected the path of peace. Confident of receiving
}ustice,they laid the story of their wrongs before an impartial tribunal.
This story, so grievous in its simple truthfulness, threatened for a time
to break up the peaceful settlement which the parties had promised
each other to make. ^Notwithstanding all obstacles, however, the great
experiment has been carried to a successful end ; and hereafter it can-
not be denied' that questions involving national sentiment may be de-
cided by arbitration, as well as questions of figures.

The commander who had been permitted, by Providence, to guide
some of the greatest military events in history, has thus, in civil life,
assisted in presenting to the nations of the world the most conspicuous
example of the settlement of international disputes by peaceful arbi-
tration.

It is within my personal knowledge that your own counsels have
also had a large share in shaping this great result.
I have, &c.,

J. C. BANCROFT DAVlSv

Hon. Hamilton Fish,

Secretary of State.

II -PROTOCOLS OF THE CONFERENCES OF THE ARBITRATORS.

PROTOCOL I.

Record of the proceedings of the tribunal of arbitration under the provision^'
of the treaty between the United States of America and Her Britannic
Majesty, concluded on the Sth of May, A, 2>. 1871, at the first conference
held at Geneva in Switzerland, on the fif teenth da y of December, in the
year of our Lord one thousand eight hundred at^ seventy -one.

The conference was convened at tbe Hotel de Ville at Geneva, in
compliance with notices from Mr. J. C. Bancroft Davis, agent of the
United States, and Lord Tenterden, agent of Her Britannic Majesty, in
the form following :

The undersigiied having been appointed agent of the United States to attend the
tribonal of arbitration about to be convened at Geneva under the provis-^
ions of the treaty between the United States and Great Britain of the 8th deiivilylVSSe.*'^
of May last, has the honor to acquaint Count Sclopis that it is proposed by
tbe Government of the United States that the first meeting of the tribunsd should be held
at Geneva, if not inconvenient to the arbitrators, on the 15th instant.

J. C. BANCROFT DAVIS.

The arbitrators who were present and produced their respective powers^
which were examined and found to be in good and due form, were :
Charles Francis Adams, esquire, the arbitrator named by the Presi-
d^it of the United States of America ; the Eigh t Honorable Sir Alexander
Gockbnrn, the Lord Chief Justice of England, the arbitrator named by
Her Britannic Majesty ; his excellency Count Sclopis, the arbitrator
samed by His Majesty the King of Italy ; Mr. Jacques Staempfli, the
arbitrator named by the President of the Swiss Confederation, and his
excellency the Baron d'ltajubd, the arbitrator named by His Majesty
the Emperor of Brazil.

J. C. Bancroft Davis, Esquire, attended the conference as the agent ot
the United States; the Kight Honorable Lord Tenterden attended as the
agent of Her Britannic Majesty.

Mr. Adams proposed that Count Sclopis, as being the arbitrator
named by the power first mentioned in the treaty after Great Britain
and the United States, should preside over the labors of the tribunal.

The proposal was seconded by Sir Alexander Cockburn, and was
unanimously adopted, and Count Sclopis, having expressed his acknowl-
edgments, assumed the presidencj-.

On the proposal of Count Sclopis the tribunal of arbitration requested
the arbitrator named by the President of the Swiss Confederation to
recommend some suitable x>erson to act as the secretary of the tribunal.

The Swiss arbitrator named M. Alexandre Favrot as a suitable per-
son, and M. Alexandre Favrot was thereupon appointed by the tribunal
of arbitration to act as its secretary during the conferences, and entered
upon the duties of that office.

Mr. J. C. Bancroft Davis then presented in duplicate, to each of tbe arbi-
trators and to the agent of Great Britain, the printed case of the United

16 ARBITRATION AT GENEVA.

States, accompanied by the doeumeDts, oflBcial correspondence, and other
evidence on which they rely.

Lord Tenterden in like manner presented to each of the arbi-
trators and to the agent of the United States the printed case of the
government of Her Britannic Majesty, accompanied by the documents,
official correspondence, and other evidence on which it relies.

The tribunal of arbitration thereupon directed that the respective
counter cases, additional documents, correspondence, and evidence called
for or permitted by the fourth article of the treaty should be delivered
to the secretary of the tribunal at the hall of the conference in the Hotel
de Ville at Geneva, for the arbitrators and for the respective agents on
or before the 15th day of April next.

The arbitrators further directed that either party desiring, under the
provisions of the fourth article of the treaty, to extend the time for de-
livering the counter cases, documents, correspondence, and evidence,
shall make application to them through the secretary, and that the sec-
retary shall thereupon convene a conference at Geneva at an early day
to suit the convenience of the respective arbitrators, and that the notice
thereof shall be given to the agent of the other party.

The.tribunal of arbitration proceeded to direct that applications by
either party, under the provisions of the fourth article of the treaty, for
copies of reports or documents specified or alluded to, and in the exclu-
sive possession of the other party, shall be made to the agent of the
other party with the same force and effect as if made to the tribunal of
arbitration.

The tribunal of arbitration further directed that, should either party,
in accordance with the provisions of the fourth article, call upon the
other party, through the arbitration, to produce the originals or certi-
fied copies of any papers adduced as evidence, such application shall be
made by written notice thereof to the secretary within thirty days after
the delivery of the cases, and that thereupon^the secretary shall transmit
to the agent of the other party a copy of the request ; and that it shall be
the duty of the agent of the other party to deliver said originals or certified
eopies to the secretary, as soon as may be practicably convenient.

The arbitrators also agreed that for the purpose of deciding any ques-
tion arising upon the foregoing rules, the presence of three of 'their
number shall be sufficient.

The conference was adjourned to the following day, IGth of December,
at 3 o'clock p m.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT,

Secretary.

rROTOCOL II.

Record oj the proceedings of the arbitration at the second conference Jteld
at Geneva in Switzerland on tlie KSth day of December^ A, I). 1871.

The conference was held pursuant to adjournment. All the arbitmtors

Adjo.irnm«?nt. to WCrC prCSCUt.

*'"'" '"^ Mr. J. C. Bancroft Davis and Lord Tenterden attended

the conference as agents of the United States and of Her Britannic Ma-
jesty, respectively.
The record of the proceedings of the conference held on the 15th in-

PROTOCOLS OF THE CONFERENCES. 17

stant was read and approved, and the secretary was directed to attest
it. Mr. J. O. Bancroft Davis and Lord Tenterden were requested also
to sig^n this and all subsequent records as agents of their respective
governments.

The tribunal of arbitration directed that when an adjournment of the
conference should be entered, it should be entered as an adjournment
until the 15th day of June next, subject to a prior call by the secretary
as provided for in the proceedings at the first conference.

The tribunal then directed the secretary to make up the record of
the proceedings at the second conference as far as completed, which
was done, and the record was read and approved.

The tribunal of arbitration then adjourned to meet at Geneva, on the
15th day of June next, unless sooner convened by the secretary, in the
manner provided in the proceedings at the first conference.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVRQT, Secretaire.

— V

PROTOCOL III.

Record of the proceedings of tlie tribunal of arbitration at the third confer-
ence held at Geneva^ in Switzerland^ on the loth day of June, 1872.

The conference was held pursuant to adjournment. All the arbitrators
were present. ♦

Mr. J. C. Bancroft Davis and Lord Tenterden attended the conference
as agents of the United States and Her Britannic Majesty, respectively.

Mr. J. C. Bancroft Davis then delivered in duplicate to each of the
arbitrators, and to Lord Tenterden, the agent of Her Britan- Delivery of An..r
nic Majesty, a printed argument, showing the points and '«>" "k""'"^''^
referring to the evidence on which his Government relies.

Lord Tenterden then, on behalf of Her Britannic Majesty's govern-
ment, presented the note, of which a copy is annexed, re- British motion for
qnesting an adjournment of the tribunal for the reasons »'^""r«™««t
therein stated, for such a period as might enable a supplementary con-
vention to be concluded and ratified between the United States and Her
Britannic Majesty.

Mr. Bancroft Davis stated that he could not say what would be the
views of his Government on this motion until he should know the time
for which the adjournment was asked.

Lord Tenterden stated that Her Brifannic Majesty's government be-
lieved that, in order to afford time for the consideration of 'a supple-
mentary convention by the Senate of the United States in their session
commencing in December next, and for its subsequent consideration by
Her Britannic Majesty's government, and for^ts ratification by the^high
contracting parties respectively, it would be requisite that the adjourn-
ment should be for a period of eight months, but that power might be
reserved for the arbitrators to meet at any earlier date, upon being
convened for that purpose by the secretary of the tribunal, upon the
joint request, in writing, of the agents of the two governments.

Mr. Bancroft Davis said that his instructions did not yet enable him to
stat^ to the arbitrators the views of the Government of the United States
on this motion in full. He said that he wa« in telegraphic communica-

18 ARBITRATION AT GENEVA.

tion with his Government, and he asked an adjournment until Monday,
the 17th instant

The tribunal decided that the protocols should be signed by the presi-
dent and secretiiry of the tribunal and the agents of the two govern-
ments.

The conference was then adjourned to Monday, the 17th day of Jane,
at 2 o'clock.

FREDERICK SCLOPIS.

J. 0. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

ANNEX.

The undersigned agent of Her Britannic Majesty is instructed by Her
Majesty's government to state to Count Sclopis^* the arbitrator named
by His Majesty the King of Italy, that they regret to be under the
necessity of informing the'arbitrators that the difterence between Her
Majesty's government and the Government of the United States, referred
to in the note which the undersigned had the honor to address to Count
Sclopis when presenting the British counter case on the 15th of April
last, has not yet been removed.

Her Majesty's government have, however, been engaged in negotia-

__ tions with the Government of the United States, which have continued

down to the present time, for the solution of the diflBculty which has

thus arisen ; and they d© not abandon the hope that, if further time

were given for that purpose, such a solution might be practicable.

Under these circumstances, the course which Her Majesty's govern-
ment would respectfully request the tribunal to take is to adjourn the
present meeting for such a period as may enable a supplementary con-
vention to be still concluded and ratified between the high contracting
parties.

Having lodged the present application, the undersigned is instructed
to withhold the written or printed argument which the undersigned, as
agent of Her Majesty, is directed to put in under the 5th article of the
treaty, although that argument has been duly prepared and is in the
hands of the undersigned. ^

The undersigned is further directed to say that Her Majesty's gov-
ernment (while they would consider the tribunal to have full power to
proceed at the end of the period of adjournment, if the difference be-
tween the high contracting parties should then have been removed, not-
withstanding the non-delivery on this day of the argument by the un-
dersigned) continue, while requesting this adjournment, to reserve all
Her 3fajest}'s rights, in the event of an agreement not being finally
arrived at, in the same manner as was expressed in the note addressed
by tjie undersigned to Count Sclopis on the 15th of April.

The undersigned has the honor to renew to Co^int Sclopis the assur-
ance of his highest consideration.

TENTERDEN.

Geneva, June 15, 1872.

• A similar note was addressed to each of the arbitrators.

PROTOCOLS OF THE CONFERENCES. 19

PROTOCOL IV.

Record of the proceedings of the tribunal of arbitration at the fourth con-
ference held xit Geneva, in Switzerland, on the 17 th day of June, 1872.

The couference was held pursuant to adjourDment. All the arbitrators
were present.

Mr. J. C. Bancroft Davis and Lord Tenterden attended ^'^onmment.
the conference as agents of the United States and Her Britannic Majesty,
respectively.

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal and the agents of
the two governments.

Mr. Bancroft Davis stated that he was still without definite instruc-
tions from his Government regarding the request of the British agent
for adjournment, and suggested a further adjournment of th%tribunal
until Wednesday, the nineteenth instant.

Lord Tenterden said that he could make no objection. The conference
was then adjourned to Wednesday, the 19th instant, at 2 o'clock.

FEEDERICK SCLOPIS.
J. 0. BANCROFT DAVIS.
TENTERDEN.
ALEX. FAVROT, Seo'etary.

PROTOCOL V.

Record of the proceedings oftJie tribunal of arbitration at the fifth confer-
ence Jield at Geneva, in Switzerland, on the 19th of June, 1872.

The conference was held pursuant to adjournment. All the arbitra-
tors were present.

Mr. Jl C. Bancroft Davis and Lord Tenterden attended ciH^rl^liTn "«jireS
the conference as agents of the United States and Her forTumputat!ou''^of
Britannic Majesty, respectively. '^^"'"*"

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal and the agents of
the two governments.

Count Sclopis, as president of the tribunal, inquired whether Mr.
Bancroft Davis had yet received definitive instructions from his Govern-
ment.

Mr. Bancroft Davis replied that he had not.

Count Sclopis then, on behalf of all the arbitrators, made the follow^
ing statement :

The application of the agent of Her BritaDiiic Majesty's government being now V)o-
fore the arbitrators, the presidebt of the tribunal (Count Sclopis) proposes fco make the
following communication on the part of the arbitrators to the pairties interested:

The arbitrators wish it to be understood that in the observjitions which they are
abont to make they have in view solely the application of the agent of Her Britannic
^lajesty's government, which is now before them, for an adjournment, which might be
prolonged till the mouth of February in next year; and the motives for that application,
viz, the dilierence of opinion which exists between Her Britannic Majesty's govern-
ment and the Government of the United States as to the competencj' of the tribunal,
nnder the treaty of Washington, to deal with the claims advanced in the case of the
United States in respect of losses under the several heads of — ist, "The losses in the
transfer of the American commercial marine to the British flag;" 2d, "The enhanced
payments of insurance;" and 3d, "The prolongation of the war, and the addition of a

20 ARBITRATION AT GENEVA.

large snmto the cost of the war and the suppression of the rebellion ;" and the hope
which Her Britannic Majesty's government does not abandon, that if sufficient time
were given for that purpose, a solution of the difficulty which has thus arisen, by the
negotiation of a supplementary convention between the two governments, might be
found practicable.

The arbitrators dp not propose to express or imply any opinion upon the point thus
in difference between the two governments as to the interpretation or effect of the
treaty ; but it seems to them obvious that the substantial object of the adjournment
must be to give the two governments an opportunity of determining whether the
cliiims in question shall or shall not be submitted to the decision of the arbitrators,
and that any difference between the two governments on this point may make the
adjournment unproductive of any. useful effect, and, after a delay of many months,
during which both nations may be kept in a state of painful suspense, may end in a
result which, it is to be presumed, both governments would equally deplore, that of
making this arbitration wholly abortive. This being so, the arbitrators think it right
to state that, after the most careful perusal of all that has been urged on the part of
the Government of the United States in respect of these claims, tuey have arrived,
individually and collectively, at the conclusion that these claims do not constitute,
upon the principles of international law applicable to such cases, good foundation for
an award ot compensation or computation of damages between nations, and should,
upon such principles, be wholly excluded from the consideration of the tribunal in
making its award, even if there were no disagreement between the two governments as
to the competency of tiie tribunal to decide thereon.

With a view to the settlement of the other claims to the consideration of which by
the tribunal no exception has been taken on the part of Her Britannic Majesty's gov-
ernment, the arbitrators have thought it desirable to lay before the parties this ex-
pression of the views thej' have formed upon the question of public law involved, in
order that after this declaration by the tribunal it may be considered by the Govern-
ment of the United States whether any course can be adopted respecting the lirst-men-
tionod. claims which would relieve the tribunal from the necessity of deciding upon
the present application of Her Britannic Majesty's government.

Couut Sclopis added that it was the intention of tbe tribunal that
this statement should be considered for the present to be confidential.

Count Sclopis then asked whether the agents or either of them wished
to say anything touching the declaration just made.

Mr. Bancroft Davis said that he was necessarily without instructions
to meet the contingency which had arisen from the action thus taken by
the arbitrators. He therefore left it with the tribunal to say whether,
in view of this fact, it ought not of its own motion to make an adjourn-
ment sufficient to aftbrd time for the proper consideration of the new
position created by the announcement of the tribunal.

The tribunal then ordered this conference to adjourn until Wednesday
the 2Gth instant, at 2 o'clock in the afternoon.

FEEDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEX.

ALEX. FAVROT, Secretary.

PROTOCOL YI.

Bccord of the proceedings of the tribunal of arbitration at the sixth con-
ference held at Geneva, in Sicitzerland^on the 25th of JunCy 1872.

The conference was held pm^suant to a call by the president, Couut

II r t d «*t t- ^^^^P^^- -^^^ t^^<' arbitrators were present.
.r,r.^j::''uxhl'lC Mr. J. C. Bancroft Davis and Lord Tenterden attended
the conference as agents of the United States and Her
Britannic Majesty, res[)ectively.
Count Sclopis, as president of the tribunal, stated that he had re-

PROTOCOLS OF THE CONFERENCES. 21

ceived from Mr. Bancroft Davis the information that he was prepared
to communicate to the tribunal the action authorized by his Goveru-
meut respecting the declaration made by the arbitrators at the hist. con-
ference.

Count Sclopis added that, being desirous of advancing the work of
the tribunal, he had, therefore, convoked the conference this day, in-
stead of Wednesday, the day to which the adjournment had been
made.
Mr. Bancroft Davis stated as follows :

The declaration made by the tribunal^ individually and collectively, respecting the
claims presented by the' United States for the award of the tribunal for— Ist. *' The
losses in the transfer of the American commercial marine to the British flag ;" 2d. *' The
eubauced payments of insurance ;" and 3d. " The prolongation of the war and the ad-
dition of a large sum to the cost of the war and the suppression of the rebellion," is
accepted by the President of the United States as determinative of their judgment
upon the important question of public law involved.

The agent of the United States is authorized to say that, consequently, the above-
mentioned claims will not be further insisted upon before the tribunal by the United
States, and may be excluded from all consideration in any award that may be made.

Lord Tenterden then said :

I will inform my government of the declaration made by the arbitrators on the 19th
instant, and of the statement now made by the agent of the United States, and request
their instructions.

The conference was then adjourned to Thursday, the 27th instant, at
11 o'clock in the morning.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary'.

PROTOCOL VII.

Record of the proceedings of the tribunal of arbitration at the seventh
conference^ held at Geneva^ in Sicitzerlandj on the 21th of June, 1872.

The conference was held pursuant to adjournment. All the arbitra-
tors were present. Decision m.de offi.

Mr. J. C. Bancroft Davis and Lord Tenterden attended ^"ii £.''\Cr:
the conference as agents of the United States and Her r;i"S^nr''Mo;i'n"
Britannic, Majesty, respectively. '^'""''^

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal, and the agents
of the two governments.

Count Sclopis, as president of the tribunal, inquired whether Lord
Tenterden had received the instructions from his government for which
he had said that he would apply at the last conference.

Lord Tenterden then read the following statement :

"The undersigned, agent of Her Britannic Majesty, is authorized by Her Majesty's
government to state that Her Majesty's government find in the communication on the
part of the arbitrators, recorded in the protocol of their proceedings of the 19th in-
stant, nothing to which they cannot assent, consistently with the view of the inter-
pretation and effect of the treaty of Washington hitherto maintained by them ; and
being informed of the statement made on the 25th instant by the agent of the United
States, that the several claims particularly mentioned in that statement will not be
farther insisted upon before the tribunal by the United States, and may bo excluded

22 ARBITRATION AT GENEVA,

from all cousideration in any award that may be made ; and assuming that the arbi'
trators will, npon such statement, think fit now to declare that the said seyeral claims
ai*e, and from henceforth will be, wholly excluded from their consideration, and will
embody such declaration in their protocol of this day's proceedings ; they have in-
structed the nndersi^ed, npon this being done, to request leave to withdraw the
application made by nim to the tribunal on the 15th instant for such an adjournment
as might enable a supplementary convention to be concluded and ratified between the
high contracting parties ; and to request leave to deliver the printed argument, now
in the hands of the undersigned, which has been prepared on the part of Her Britannic
Mjyesty's government under the fifth article of the treaty with reference to the other
claims, to the consideration of which by the tribunal no exception has been taken on
the part of Her Majesty's government.

a TENTERDEN."

Mr. Bancroft Davis said that lie made no objection to the granting of
the request made by Lord Tenterden to be permitted to withdraw his
application for an adjournment, and to file the argument of Her Bri-
tannic Majesty's government.

Count Sclopis, on behalf of all the arbitrators, then declared that the
said several claims for indirect losses mentioned in the statement made
by the agent of the United States on the 25th instant and referred to
in the stat^iment just made by the agent of Her Britannic Majesty, are,
and from henceforth shall be, wholly excluded from the consideration of
the tribunal, and directed the secretary to embody this declaration in
the protocol of this day's proceedings.

He at the same time informed hord Tenterden that the tribunal as-
sented to his request for leave to withdraw his application for a pro-
longed adjournment, and also to his request for leave to deliver the
printed argument which had been prepared on the part of Her Britannic
Majesty's government.

Lord Tenterden then presented copies of the argument in duplicate
to each of the arbitrators and to the agent of the United States.

Count Sclopis stated that the tribunal no longer desired the proceed-
ings to be considered confidential so far as publication of them by the
United States and British governments is concerned.

He then proceeded to re^ an address as follows :

Messieurs : Au moment oil le noDud qui mena^ait d'entraver ponr longtemps encore
Pex^cntion du traits de Washington vient d'etre si honreusement tranche?, h rheure oil
U08 travaux vont prendre un oours libre et rdgulier, permett^z-moi de vous dire, mes-
sieurs et ti t'S-honor^s collogues, combien j^appr<^4;ie Thonneur de sieger avec vous dans
ce tribunal d' arbitrage, snr lequel sout fix^ aigourd'hui les regards du monde civilis^.

Laisstz-uioi ensiiite vous exprimer tont ce que j'^prouve de reconnaissance pour la
marque llatteuse de confiance qn'il vous a pin de m'accorder en m' appelant ^ occuper
ce fauteuil.

Je conipronds parfaitement tout le prix de cette distinction si pen m<$rit6e ; mais je
compreuds mieux encore le besoin que j'aurai d'etre soutenu par le concours de vos
lumi^res, et par Fappui de votre indulgence dans I'exercice des fonctions que vous
m'avez confines. Ce sera h vous que je le devrai^ si je ne vais pas paraltre trop au-des-
sous de ma t^he.

, La r^auion de ce tribunal d'arbitrage signale, ^ elle seule, une nouvello direction
imprim<^e aux idees qui gouveruent la politique des nations les plus avanc6es sur la
vole de la civilisation.

Nous sommesarrivdsd. une ^poque oil, dans les spheres les plus ^lev^es de la politique,
I'esprit de moderation et le sentiment d'<Squit^ commencent partout ^ pr^valoir sur les
teudances des vieilles routines d'un arbitraire insolent on d'une indilf<5rence coupable.
Diminuer les occasions de faire la guerre, att^nuer les malheurs qu'elle tralne h sa suite,

Elacer les int^r^ts de Phunianit^ au-dessus de cenx de la politique, voil^ I'oDuvre vers
iqnelle se dirigeut toutes les grandes intelligences, tons les coDurs haut plac^. Anssi
avec qnelbonheur n'a-t-on pas salud le vcpu si noblement exprim^ par le congr^ de Paris
en 1856, que les 6tats entre lesquels s'dl^verait an dissentiment s^rieux, avant d'en
appeler aux armes, eusseut recours, en taut que les circonstances Tadmettraient, aux
bous offices des puissances amies ! Quede bons effets n'avait-on pas & attendre de la
declaration do ce m^me congr^s concemant I'abolition de la course, et le respect de la
propriety priv6e f Enfin nous ne sanrious oablier ici cette convention de Geneve, qui

PROTOCOLS OF THE CONFERENCES. 23

WYittt 4 placer sons la protection specials dn droit des gens les ^lans de la charit<S snr

las cluiiups de bataille.
Od a bien dA regretter que les vues si droites et si sages du congr^s de Paris n'aient

pM 6t6 promptemeut second^es paries 6v^nemeuts. De cruels dementis ont 6t6 donn6s

aax aspirations des &me6 d'dlite;' mais l'antorit6 morale des principes proclam^ k

cette ^poqoe ue s'est point affaiblie.

Grdce k Finitiative des hommes d'6tat qui president auz destinies de PAm^rique et
de I'Anglet«rre, cette id6e g<$n<5reu8e comiuence k porter ses fruits.

Le grand essai de Papplicatiou des regies aust^res et calmes du droit anr questions
ardentes de la politique va se faire. L'histoire contemporaine racont^a k la post^rit6
qae, m^me dans la chaleur des plus vives rc^crituinatians, on a toujours Bong<^ des deux
e6t6a de I'Atlantiqne k tenir ouvertes les voies d'uu accommodement acceptable par les
tznis de la paix et du progr^s.

k travers des ndgociations n^cessairement longues, sous Faction des courants variables
de Topinion publiqne, inevitables chez les gouvernements k base populaire, le but de
ces magnaniroes eiforts ne fnt jamais perdu de vue. Persoune, certes, ne pouvait en
contester rntilitd; mais d'en venir au point d'accepter purement et simplement le sy-
steme de Tarbitrage, de renoncer k ce privilege, si cber aux ambitions vulgaires, de se
faire justice de sa main, voil^ ce qui exigeait une rare fermetd de conviction, un
d^vouement ^ toute ^preuve aux intdr^ts de rhnmanit^. Aussi le premier ministre
d'Angleterre a-t-il eu raison de parler du traits de Washington dans des ternies qui
caract^risent k la fois la grandeur et les difficult^s de Pentreprise. '^ II se pent/' disait-
il. '* que ce soit une esp^rauce trop ^clatante pour 6tre r^alis^e dans ce monde de
mis^res ou nous vivons; Vexp<$rience du moins est digne de Tetfort. On recherche, s'il
^t possible, de soumettre ces conflits d'opinion entre deux nations au jugement d'nn
tribunal de raison, au lieu de I'arbitrage sanglant des armes. L'histoire se souviendra
k regard des Etats-Unis et du Royanme-Uni qift, ayant k vider de s6rieux conflits, et
se sentant pen disposiSs de part et d'antre k c^der le terrain, ils se sont n^anmoins ap-
pliques k assurer la paix, et non-seulement k rdgler leurs propres conflits, mais aussi k
donner uu exemple qui sera f^cond en bienfaits pour les autres nations/'^

On a dit que le triomphe d'uue id6e utile n'est jamais qu'nne question de date. ¥6-
licitons-nous, messieurs, d'assister k la realisation d'un dessein qui doit 6tre f^cond des
meilleurs r^sultats; esp^rons qu'il tiendra dans Tavenir tout ce qu'il promet aigonr-
d'hui.

Nous avons entendu ce cri terrible "la force prime le droit :" c'est un d6fi porte k la
civilisation. Nous voyons maintenant la politique s'adresser k la justice, pour ne pas
abtiser de la force ; c'est un hommage que la civilisation doit recevoir avec bonheur.

Ne nous plaignons pas trop si les questions que nous sommes appeies k rdsoiidre nous
arrivent a la suite d'agitations prolongdes. Reconnaissons plut6t I'importance des do-
cuments qui nous ont 6t6 fournis et des raisonnements dont ils ont 6t6 accom]>agnds.

Les longues investigations pr6parent les meilleures solutions. On naviguo plus
siirement sur les rivieres qui out 6t6 le mieux sond^es.

Le droit des gens a 6t6 trop souvent regard^ comme un sol mobile, snr lequel, au
moment oh Ton croit avancer, le pied glisse en arriere. Serait-ce un espoir indiscret
que celni de parvenir par nos efforts k reudre ce sol un pen mieux raftermi ?

L'objet de nos deliberations demande des etudes aussi variees que serieuses. Nous
anrous k I'examiner k des points de vue differents. Ce sera tantdt avec la large per-
ception de I'homme d'etat, tant6t avec I'ccil scrutateur d'un president aux assises,
tonjoars avec un profond sentiment d'equiteet avec une impartialite absolue.

Nous nous promettons beaucoup de I'aide empressee des agents des deux puissances
qui ont eu recours k ce tribunal ; leur haute intelligence et leur z^le edaire nous sont
egalement connus.

Enfin le tribunal se con fie dans I'assistance des conseils des hautes parties presentes
k la barre, de ces jurisconsultes eminents dont le nom vaut un eioge. Nous nous at-
tendons qui'ls coopereront franchement avec nous dans ce qui doit 6tre, non-seulemeut
an acte de bonne Justice, mais encore un' travail (le grande pacification.

Puissions-nous repondre compl^tement aux louables intentions des puissances qui
nous out honores de leur choix; puissions-nous remplir, avec I'aide de Dieu, une mis-
sion qui mette fin k de longs et penibles diflVSrends; qui, en reglant de graves inter^ts,
apaise de donloureuses emotions, et qui ne soit pas sans quelque Ueureuse influence sur
le maiatien de la paix dn monde et les progr^s de la civilisation.

*" In the performance of a melancholy duty," dit Sir Robert Phillimore dans la
preface k la denzi^me edition des Commentaries upon International LaWy 1871, " I am
obliged to close this chronicle of events by the admisnion that the suggestion contained
in the last protocol to the treaty of Paris, 1856, has remained a dead-letter, except per-
haps in the case of Luxemburg. Neither of the belligerents in the present horrible war
would listen to the suggestion of such an arbitration."

* Discours prouonce par Monsieur Gladstone au banquet d'installation du uouveau
lord-maire, le 9 novembre 1871.

24 ABBITRATION AT GENEVA.

Vo8 vceux, tr^s-bonords coll^p^es. B'aecorderont sans doute avec les miens ponr qne
Tessai qne Ton va faire serve h ^carter dans I'avenir les occasions de luttes san^lantes
et h raft'ermir Tempire de la raison.

Dans cette douce provision, j'aime h rappeler ces paroles dn hdros de PAmdriqne, de
George Washington : " S'il y a une v6rit^ fortement <$tablie, c^est quMl y a ici-bas nn
lien indissoluble entre les pures maximes d'une politique bonndte et magnauime et les
Bolides recompenses de la prosp^ritd et du bonbeur public."^

Lord Tenterden then stated that Sir Koundell Palmer, Her Britannic
Majesty's connsel, had prepared, for the consideration of the tribunal,
a statement of certain points of importance, as to which he desires to
have an opportunity of submitting to the tribunal further arguments,
in answer to those contained in the argument of the United States de-
livered on the 15th instant ; and that Sir Eoundell Palmer would now,
with the permission of the tribunal, read such statement, of which,
with a translation which would be prepared without delay, copies will
be delivered to the several arbitrators and to the agent of the United
States in the course of the day ; and, as the preparation of any further
arguments on those, or any other points, will ncessarily require some
time to be allowed, he begged respectfully to suggest that the counsel
on both sides should be informed of the time which the tribunal will be
willing to allow, before requiring their further attendance for the pur-
pose of any arguments. If the^ interval so granted can be extended to
the first of August next, it is believed that this will meet the views of
the counsel and agents of both parties, and may probably enable the
counsel, when again before the tribunal, to discharge their duty in a
shorter time than might otherwise be requisite.
Sir Roundell Palmer then read a statement.

Mr. Bancroft Davis then said that upon being furnished with a copy
of the paper, now presented on the part of Her Britannic Majesty's
counsel, he would lay the same before the counsel of the United States,
and would present their views to the tribunal after such consultation.

Count Sclopis then stated that the tribunal had, at the request of the
agent of Her Britannic Majesty, granted permission to Sir Roundell
Palmer to read the statement requesting the tribunal to authorize him
to furnish the arbitrators with further arguments on the points therein
specified, and that, with reference to this request, Mr. Adams, as one of
the arbitrators, had suggested a preliminary question, viz, whether
under the terms of Article V of the treaty of Washington it is compe-
tent for the agents or counsel to make requests of this nature, and that
the tribunal, after discussion, and having in view the precise terms of
the treaty, had decided that the arbitrators alone have the right, if
they desire further elucidation with regard to any point, to require a
written or printed statement or argument, or oral argument by counsel
upon it, under the terms of the said article.

The conference was then adjourned until Friday, the 28th instant, at
11 o'clock a. m.

FREDERICK SCLOPIS,

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAYROT, Secretary.

'Discours prononc6 le 30 avril 1789 dans la s<?ance du S<5nat am<5ricain, lors de la
proclamation de Washington iik la pr<?8idence, et de John Adams k la vice-pr^sidence,
des fitats-Unis.

PROTOCOLS OF THE CONFERENCES. 25

PROTOCOL VIII.

Becord of the proceedings of the tribunal of arhitration at the eighth
conferenc€j held at Geneva^ Switzerland^ on the 2Sth of Jimcj 1872.

The conference was held pursuant to adjournment. All the arbitrators
and the agents of the two governments were present.

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal and the agents of
the two gov^ernments.

Sir Alexander Cockburn, as one of the arbitrators, then proposed, to
the tribunal to require a written or printed statement or sw a. coa,>r.,
argument by the counsel of the two governments for further [Ji:;,^ ^!on"Z
elucidation on the following points, viz : "''^'^

1. What is the "due diligence" required from a neutral stated
according to the general rules of international law, and according to
the rules of the sixth article of the treaty of Washington ?

2. What were the international obligations of neutral states in
respect to the construction, sale, and fitting out, within neutral territory,
of ships intended for warlike use by a belligerent, independently^ of the
municipal legislation of the neutral state, and of the rules laid down by
the treaty of Washington ?

3. What rights are conferred upon a belligerent power by the muni-
cipal legislation of a neutral state for the maintenance of its neutrality,
if such legislation exceeds the limits of the obligations previously im-
I)osed upon neutral States by international law ?

4. Is a neutral state under any international obligation to detain in,
or exclude from, its ports vessels fitted out in violation of its neutrality,
after such vessels have been commissioned as public ships of war by a
belligeretit power, whether such power be or be not recognized as a
sovereign state f

5. Whether Her Majesty's proclamation of neutrality, recognizing the
belligerency of the Confederate States, is in any, and what, way material
to the question of the liability of Great Britain for losses sustained by
the United States, in consequence of the acts of the vessels referred to
in the treaty of Washington ?

6. Whether the laws of Great Britain, during the civil war, were, or
were not, sufficient, if properly enforced, for the fulfillment of Her Bri-
tannic Majesty's neutral obligations!

7. If a vessel, which has been fitted out in violation of the neutrality
of a neutral state, has escaped from the neutral territory, through some
want of due diligence on the part of the neutral government, ought
such neu ral state to be U/eld responsible to the other belligerent for
captures made by such vessel f

If so, to what period does this responsibility extend? May it be
modified or terminated by circumstances afterward supervening, (as,
for instance, by assistance afterward rendered to the vessel by an inde-
l>endent power, without which her capacity for warlike purposes would
have ceased, or by her entrance into a port of the belligerent to whom
she belongs,) or does it necessarily extend to the end of the war ?

Furthermore, does this responsibility still exist, when the persons
who made such captures were insurgent citizens of the state against
which they waged war, to whom, upon the conclusion of the war, such
illegal acts have been condoned f

8. If a vessel, which has not been fitted out or armed in violation of

26 ARBITRATION AT GENEVA.

the neutrality of a neutral state, is afterward permitted to receive sup-
plies of coal and repairs in a neutral port, does the neutral state, in
whose port she receives such supplies and repairs, incur on that account
a responsibility for her subsequent captures, or any of them ?

After deliberation a majority of the tribunal decided not to require
such statement or argument at present.

The tribunal then decided that, in the course of their discussions and
deliberations, the agents should attend the conferences, accompanied by
the counsel of their respective governments, except in cases when fhe
tribunal should think it advisable to conduct their discussions and de-
liberations with closed doors.

Tbe tribunal then determined to permit publicity to be given to the
statement made by the agent of Her Britannic Majesty at the third
conference, the declaration of the arbitrators made at the fifth confer-
ence, the subsequent statements of the agent of the United States made
at the sixth conference, and of the agent of Her Britannic Majesty made
at the seventh conference, and the address of tbe president of the tribu-
nal delivered at the seventh conference.

The tribunal then adjourned until Monday, the 15th proximo, at 2
o'clock in the afternoon.

' FREDERICK SCLOPIS.
J. C. BANCROFT DAVIS.
TENTERDEN.
ALEX. FAVROT, Secretary.

PROTOCOL IX. \

Record of the proceedmgs of the tribunal of arhitration at the conference
held at Geneva^ in Switzerland^ on tlie 15th of July, 1872.

The conference was held pursuant to adjournment. All the arbitrators
and the agents of the two governments were present.

The protocol of the last conference was reacj and approved, and was

signed by the president and secretary of the tribunal and the agents of

the two governments.

Count Sclopis, as president, said that it would be necessary in the

Order of proceed- ^^st placc to detcrminc the method and order of proceeding

'"*' in tbe consideration of the Subjects referred to the tribunaL

Mr. Stfempfli stated that he had prepared, and proposed to submit,

for the adoption of the tribunal, a written programme on this question.

After discussion the consideration of this programme was deferred to

tlie next conference.

Tiie tribunal then adjourned until Tuesday, the ICth instant, at 2
o'clock in the afternoon.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN

ALEX. FAVROT, Secretary.

PROTOCOLS OF THE CONFERENCES.

PEOTOCOL X.

Record of the proceedings of tlie tribunal of arbitration at the tenth con-
ference held at Geneva^ in Switzerland^ on the IQth of Julyj'lST2.

The conference was held pursuant to adjournment. All the arbitra-
tors and the agents of the two governments were present. ^ ^^ ^^ ^^^^
The protocol of the last conference was read and ap- |^^;,^*'^sif '^S
proved, and was siffued bv the president and secretary of Kv rencw;d mo-
the tribunal and the agents of the two governments.

The following programme, submitted by Mr. Staempfli at the last
meeting, was taken into consideration :

A. — Indications gin^ales.

I. Question ^ decider.
II. D^ imitation des faits.
III. Principes gdndraux.

B* — Decision relative d chacun des crotseurs—
Observations preliminaires,

I. Le Sumter:

a Faits.

h Cousiderants.

c Jugement.

II. Le Nashville:

a Faits. •

h Consid^rants.
* c Jugement.

III. Le Florida:

a Fait-s.

}} Consid^rants.

c Jugement.

rV. V Alabama:

a Faits.

h Consid^rants.

c Jugement.

V. Le Retribution :

a Faits. ,
h Cousiderants.
c Jugement.

Sir Alexander Cockburn, one of the arbitrators, submitted the fol-
lowing propositions to the consideration of the tribunal :

I. That the complaiut of the Government of the United States' is of a threefold
character, and may be st-ated under the three following heads, viz :

1. That, by want of due diligence on the part of the British government, vessels of
war were suffered to be equipped in ports of Her Mi^esty, and to depart therefi'oui, to
the injury of American commerce ;

2. That such vessels, having been again found in British ports or waters, were not
seized or detained, but were suffered to go forth again on the same destructive
service ;

3. That such vessels received undue assistance, or were permitted to remain an
uzidulv long time, in ports within Her Majesty's dominions.

n. That on each of these heads of*complaint the decision of the tribunal must
depend, not only on the facts relating to each vessel, but also on the principles of
international law applicable to the particular subject.

III. That the rational, logical, and most convenient course to be pursued will be,
before proceeding to deal with each of these heads of complaint, to consider and
determine what are the principles of law applicable to the subject, and by which the
decision of the tribunal must ultimately be determined.

VI. Le Georgia:

a Faits.

b Consid<5rants.

c Jugement.

YII. Le Tallahas8e€f ou le Olustee :

a Faits.

b Cousiderants.

c Jugement.

VIII. Le Chickamauga :

a Faits.

b Cousiderants.

c Jugement.

IX. Le Shenandoah :

a Faits.

b Consid^rants.

c Jugement.

C. — Determination du tribunal Wadjugef
une somme en bloc,

D« — Examen des elements pour fixer une
somme en bloc.

E« — Conclusion et cidjudication definitive
d'une somme en bloc.

28 ARBITRATION AT GENEVA.

IV. That it will be convenient to take the three heads of complaint separately, ancM.
in the order hereinbefore stated.

V. That there is nothing in the Vllth article ol»the treaty which prevents the
adoption of this mode of proceeding, the onh^ object and efifcct of that article being^
to insure the separate consideration of the facts relating to each vessel, and a separat'C
and distinct judgment of the tribunal on the confplaints specifically referable to each
in particular.

VI. That the consideration of the first-mentioned head of complaint, reference bein^
had to the Vlth article of the treaty, and the rules therein laid down, necessarily
involves three questions of law: the first, what effect is to be given to the term **due
diligence," with reference to the different allegations of the want thereof put forward
by the United States Government; the second, whether the general principles of
international law, referred to in such Vlth article, have relatively to the rights and
duties of neutrals any and what effect in determining what constitutes due diligence
or the want of it, or 'in extending or limiting the liability of a neutral state with
reference to this heafl of complaint; the third, whether a government acting in good
faith, and honestly intending to fulfill the obligations of neutrality, is to be held liable
by reason of mistake, error in judgment, accidental delay, or even negligence on the
part of a subordinate officer.

VII. That it will be convenient, and indeed necessary, to commence our proceedings
with the consideration of these questions of law.

VIII. That, looking to the difliculty of these questions, and the conflict of opinion
Avhich has arisen among distinguished jurists on the present contest, as well as to
their vast importance in the decision of the tribunal on the matters in dispute,
it is the duty, as it must be presumed to be the wish of the arbitrators, in the int^erest
of justice, to obtain all the assistance in their power to enable them to arrive at a just
and correct conclusion. That they ought, therefore, to call for the assistance of
the eminent counsel who are in attendance on the tribunal to assist them with their
reasoning and learning, so that arguments scattered over a mass of documents may be
presented in a concentrated and appreciable form, and the tribunal may thus have the
advantage of all the light which can be thrown on so intricat-e and difficult a matter,
and that its proceedings may hereafter appear to the woi;Jd to have been characterized
by the patience, the deliberation, and anxious desire for information on all the points
involved in its decision, without which it is impossible that justice can be duly or
satisfactorily done.

After discussiou, the tribaual decided to proceed with the case of the
Florida at the next raeetiug, according to the programme of Mr. Stiem-
pfli.

The tribunal then adjourned until Wednesday, the 17th instant, at 1
o'clock in the afternoon.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XI.

Record* of the proceedings of the tribunal of arbitration at the eleventh
conference^ held at Geneva^ in Switzerland^ on the 1 1th of July^ 1872.

The conference was held pursuant to adjournment. All the arbi-
trators and the agents of the two gov^ernments were present.

The protocol of the last conference was read and approved, and was
signed by the president and secretary pf the tribunal, and the agents
of the two governments.

On the proposal of Sir Alexander Cockburn it was decided that the
written opinions or statements read by the arbitrators to the tribunal
shouldjbe printed, and distributed to the arbitrators and to the agents
and counsel of the two governments.

PROTOCOLS OF THE CONFERENCES. 29

The tribanal then proceeded with the consideration of the ^, ^, ^

- . , -Ol • 1 Tl.^ Florida.

case of the Florida.

The conference was adjourned until Friday, the 19th instant, at 1
tfclock in the afternoon. *

• FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TEXTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XII.

Record of the proceedings of the tribunal of arbitration at the twelfth con-
ferenccj lield at Geneva^ in Stcitzerland, on tlie 19th of July, 1872.

The conference was held pursuant to adjournment. All the arbi-
trators and the agenfs of the two governments were present.

The protocol of the last conference was read and approv ed, and was
signed by the president and secretary of the tribunal and the agents
of the two governments.

The tribunal continued with the consideration of the case
of the Florida. ^' ''''''-

The tribunal decided that the meetings should, for the present, be
held on Mondays, Tuesdays, Wednesdays, Thursdays, and Fridays.

The conference then adjourned until Monday, the 22d instant, at
half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XIII.

Record of the proceedings of the tribunal of arbitration at the thirteenth
conference^ held at Geneva^ in Switzerland, on tlie 22d of July^ 1872.

The conference was held pursuant to adjournment. All the arbitra-
tors and the agents of the two governments were present.

The proctocol of the last conference was read and approved, and
was signed by the president and secretary of the tribunal, and the
agents of the two governments.

The tribunal continued with the consideration of the case of the
Florida.

Sir Alexander Cockburn, as one of the arbitrators, proposed to the
tribunal under the fifth article of the treaty of Washington, to call for
the assistance of counsel upon the effect of the t^erm of g;, a. cockbum-.
"' due diligence,^^ and as to the principles of international law rS^'^'Tho' S^^
applicable to the case under the terms of that article. •"*""

After deliberation, a majority of the tribunal decided that it does not
at present require the assistance of the agents and counsel upon the
]>oint proposed by Sir Alexander Cockburn ; but that it reserves the
right of requiring that assistance on any point, if necessary, according
to the fifth article of the treaty.

30 ARBITRATION AT GEN^A.'

The tribunal also decided to consider at the next conference the cas^
of the Alabama, and the questions of ^^ due diligence," and the effect;
of a commission in connection with that vessel.

The conference w#s adjourned until Thursday, the 25th instant, at
half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XIV.

Record of the proceedings of the tribunal of arbitration at the fourteenth
conference^ held at Geneva^ in Sivitzerland^ on the 25th of July, 1872.

The conference was held pursuant to adjournment. All the arbitra-
Ar«ome«t ordered tors and thc agcttts of the two governments were present,
Krilct**rf **rl!m.m-. Thc protocol of tfac last conference was read and ap-
..orm and .upphe, or provcd, SLiid was signed by the president and secretary of
The Alabama. |^]jg tribuual aud the agents of the two governments.
On the proposal of Baron d'ltajuba, a« one of the arbitrators, the tri-
bunal decided to require a written or printed statement or argument
from the counsel of Great Britain upon the following questions of law :

1. The question of due diligence, generally considered ;

2. The special question, as to the eftect of the commissions of confed-
erate ships of war entering British ports;

3. The special question, as to supplies of coal in British ports to con-
federate ships ;

With the right to the other party to reply either orally or in writing,
as the calse may be.

Baron d'ltajuba proposed that when a proposition should be made to
the tribunal, the discussion of that proposition should always be put off
to the next following conference ; which was agreed to.
The tribunal thei\proceeded with the case of the Alabama.
Tlie tribunal also decided to consider at the next conference the cases
of the Sumter, Nashville, and Chickamauga, successiv^ely.

The conference was then adjourned until Monday, the 29th instant, at
half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XV.

Record of tlie proceedings of the tribunal of arbitration at the fifteenth
conference, held at Geneva, in Switzerland, on the 2Wh of July, 1872.

The conference was held pursuant to adjournment. All the arbitra-
Briiii,h artumcnt tors Rud thc agcuts of thc two governments were present
NMhvliTr!indcii;S The protocol of the last conference was read and ap-
amauga. provcd, aud was signed by the president and secretary of

the tribunal and the agents of. the two governments.

PROTOCOLS OF THE CONFERENCES. 31

Lord Tenderden, agent of Her Britannic Majesty, annonuced that he
had already delivered to the secretary a written statement or argnment
from the counsel of Her Biitannic Majesty upon the three questions of
Jaw required by the tribunal at the preceding conference.

The tribunal then proceeded with the cases of the vessels the Sumter,
the Nashville, and the Chickamauga, as decided at the last meeting.

The tribunal also decided to consider at the next conference the cases
of the Olustee or Tallahassee, the Ketribution, and the Tuscaloosa.

The conference was then adjourned until Tuesday, the 30th instant,
at half past 12 o'clock.

FEEDEEICK SCLOPIS.

J. C. BANCKOFT DAVIS.

TENTEKDEN.

ALEX. FAVROT, Secretary.

PEOTOCOL XVI.

Record of th^ proceedings of the tribunal of arbitration at tlie sixteenth con-
ference^ held at Geneva^ in Stcitzerland^ on the 30th of July^ 1872.

The conference was held pursuant to adjournment. All the arbitrators
and the agents of the two governments were present. Taiiahnwee and

The protocol of ^he last conference was read and approved, i^^^'^"^""'
and was signed by the president and secretary of the tribunal and the
agents of the two governments.

The tribunal then proceeded with the cases of the vessels the Tusca-
loosa, the Tallahassee, and the Eetribution.

The tribunal also decided to devote the next conference to receiving
the written or oral 'statement or argument of the counsel of the United
States, in reply to the argument presented at the last conference by the
counsel of Her Britannic Majesty.

The conference was then adjourned until Monday, the 5th of August,
at half past 12 o'clock. •

FEEDEEICK SCLOPIS.

a. C. BANCEOFT DAVIS.

TENTEEDEN.

ALEX. FAVEOT, Secretary.

PEOTOCOL XVIL

» ^

Record of the proceedings of the tribunal of arbitration at the seventeenth
conference^ held at Geneva, in Switzerland^ mi the 5th of August^ 1872.

The conference was held pursuant to ac\journment. All the arbitrators
and the agents of the two governments were present. oraj nrg,.ment of

The protocol of the last conference was read and approved, "' *^^"''''
and was signed by the president and secretary of tlic tribunal and the
agents of the two governments.

The tribunal proceeded with the hearing of the oral argument by Mr.
Evarts, counsel of the United Spates, in reply to the argument presented

32 ' ARBITRATION AT GENEVA.

by Sir lloundell Palmer, counsel of Her Britannic Majesty, at the fif-
teenth conference.

The tribunal then adjourned until Tuesday, the 6th instant, at half
past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XVIIL

Record of the proceedings of the tribunal of arbitratian at the eighteenth
conference, held at Geneva^ in Switzerlandj on the 6th of August^ 1872.

The conference was held pursuant to adjournment. All the arbitrators
and the agents of the two governments were present.
KN^rt-Tua' o^^n. ri Thc protocol of the last conference was read and approved,
* ' ' ' and was signed by the president and secretary of the tribu

iial and the agents of the two governments.

Mr. Evarts concluded the oral argument on the part of the counsel of
the United States in reply to the argument on the part of the counsel
of Her Britannic Majesty.

Mr. Cushiug delivered to the tribunal a written argument on the part
of the counsel of the United States in reply to a portion of the argu-
ment prcvsented by the counsel of Her Britannic Majesty.

The tribunal then adjourned until Thursday, the 8th instant, at half
l)ast 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XIX.

Record of tlie proceedings of the tiibunal of arbitration at the ninetcaith
conference, held at Geneva^ in Sicitzerland, on the Sth of August, 1872.

The conference was held pursuant to adjournment. All the arbitrators
urtr.h .ion: Hn.«. ^^d thc agcuts of the two governments were present.
,iu nt or Mr Wa.te fj«|jg protocol of thc last coufercnce was read and approved,
and was signed by the president and secretary of the tribunal and the
agents of the two goveraments.
The tribunal concluded the examination of the case of the Retribution.
Mr. Wnite delivered to the tribunal a written argument on the part
of the counsel of the United States, in reply to a portion of the argu-
ment presented by the counsel of Her Britannic Majesty.

The tribunal then adjourned until Wednesday, the 14th instant, at
half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAYIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOLS OF THE CONFERENCES. 33

PROTOCOL XX.

Record of the proceedings of the tribunal of arbitration at the twentieth
conference^ held at Geneva, in Switzerland, on the l^th of Augtist, 1872.

The conference was held pursuant to adjournment. All the arbitrators
and the agents of the two governments were present.
vi^'Li Y^H. The protocol of the last conference was read and approved,
*" and was signed by the president and secretary of the tri-

banal and the agents of the two governments.

Mr. Bancroft Davis, in reply to an inquiry from Count Sclepis on
behalf of the tribunal, stated as follows :

The claims for losses growing out of the acts of the Sallie, the Jeif. Davis, the Music,
tbc Boston, and the Y. H. Joy, are respectfuHy submitted for the determination of the
tribunal.

The a^nt of the United States has no instructions regarding them, except what
appears in the list of claims presented on the 15th of December last, and in the revised
iMt of claims presented on the 15th of April last.

The tribunal directed this statement to be recorded, and passed to the
consideration of the question of *' due diligence,'' generally considered.
The conference was adjourned until Thursday, the 15th instant, at
half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XXL

Record of the proceedings of the tribunal of arbitration at the txcenty first
eanference, held at Geneva, in Switzerland, on the 15th of August, 1872.

The conference was held pursuant to adjournment. All the arbi-
tratrators and the agents of the two governments were Effect. i com»ii*-

. siona ; n«»w evidci-.ce

present. •ubmitted by tJ. M.

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal and the agents of
the two governments.

The tribunal proceeded to consider the effects of the commissions of
confederate ships of war entering British ports, and the supplies of
coal in British ports to confederate ships.

Lord Teuterden, as agent of Her Britannic Majesty, submitted the
following statement :

As the tribunal is now approaching the consideration of the case of the Georgia, I
lieg respectfiiny to submit that in the argument of the United States, with respect to
that Tessel, (pages 224, 225,) it is (for the first time) suggested that the British govern-
ment ought to liave informed themselves, by inquiry, what ships were being built in
February, 1863, for the Emperor of China ; and certain iufereuces appear to be drawn
from the (assumed) fact that they omitted to do so.

In consequence of this unforeseen suggestion, docuuients have become material,
which did not appear to be so, when the af^>endices to the -British case and counter-
case were prepared, and which were, therefore, not included in those api)endice8. To
elucidate this point, I have now in my possession, and am desirous of delivering to the
arbitrators, copies of four letters :

No. 1. From Mr. Hammond to Mr. Lay, the agent of the Emperor of China, dated
28th February, 1863, (in which the inquiry, which the United States suggest as proper
to have been made, was actually made by Earl Russell's direction ;)

34 ARBITRATION AT GENEVA.

No. 2. From Mr. Lay to Mr. Hammond, dated 2d March, 1863, (commonicating the
informatiou dcBired;)

No. 3. From Earl Russell to Mr. Adanis, dated 5th March, 1863, (communicating to
Mr. Adama the information so obtained from Mr. Lay ;) and

No. 4. From Mr. Adams to Earl Russell, dated 11th March, 1863, (acknowledging
the receipt of No. 3.)

Mr. Bancroft Davis, as a^ent of the United States, stated in reply :

I have examined the letters which Lord Tenterden wishes to present. They appear
to contain nothing which we rej^ard as important, in themselves ; but we can And no
authority in the treaty authorizing the tribunal either to call for or to admit new evi-
dence from either party at th is stage of the proceedings. I must leave the tribunal to act
upon the application as in its judgment it may see nt.

The tribunal decided to receive the letters from Lord Tenterden, who
thereupon presented them.

The tribunal also decided to consider the case of the Georgia at the
next meeting.

The conference was then adjourned until Friday, the 16th instant, at
12 o'clock.

FEEDEKICK SCLOPIS.

J. C. BANCEOFT DAVIS.

TENTEEDEN.

ALEX. FAVEOT, Secretary.

PEOTOCOL XXIL

Record of the proceedings of tlie tribunal of arbitration at the twenty 'Hec-
ond conference^ held at Oeneva^ in Switzerland, on the 10th of Augmtj
1872.

The conference was held pursuant to adjournment. All the arbi-
trators and the agents of the two governmeuts were present.

The protocol of the last conference was read and approved, and was
signed by the president and secretary of the tribunal and th6 agents of
the two governments.
TheGeortia. Thc tribuual considered the case of the Georgia.

The tribunal decided to proceed with the consideration of the case of
the Shenandoah at the next meeting.

The conference was adjourned until Monday, the 19th instant, at half-
past 12 o'clock.

FEEDEEICK SCLOPIS.

J. C. BANCEOFT DAVIS.

TENTEEDEN.

ALEX. FAVEOT, Secretary.

PEOTOCOL XXIII.

Record of the proceedings of the tribunal of arbitration at the twenty-
third conference, held at Geneva, in Switzerland, on the 19th of Atigust,
1872.

The conference was held phrsuant to adjournment. All the arbi-
trators and the agents of the two governments were present.

The protocol of the last conference wjis read and approved, and was
signed by the president and secretary of the tribunal and the agents of
the two governments.

PROTOCOLS OF THE CONFERENCES. 35

The tribonal considered the case of the Shenandoah. sh«oi.n<io«h: new

Coant Selopis having expressed some doubts concerning tS'SeJIT"'^ **'
ibe chief point of this discussion, requested the tribunal to permit the
ooousel to afford further elucidation with regard to that point.

The tribunal decided to hear these explanations at the next con-
ference.

In compliance with a request of the tribunal, Mr. J. C. Bancroft Davis,
as agent of the United States, and Lord Tenterden, as agent of Her
Britannic Majesty, respectively, presented to the tribunal tables of
figures relating to the losses for which compensation is claimed by the
United States, with explanatory statements and observations.

The conference was adjourned until Wednesday, the 21st instant, at
half-past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BAN(3ROFT DAVIS.

TENTERDEN.

ALEX. F AVROT, Secretary.

PROTOCOL XXIV.

Record of the proceedings of the tribunal of arbitration at the twenty fourth
conference^ held at Geneva^ in Switzerland^ on the 2l8t of August^ 1872.

The conference was held pursuant to adjournment. All the arbitra-
tors and the agents of the two governments were present. shewmdch: «.

The protocol of the last conference was read and approved, 'St^^lf The e'Sly o"
and was signed by the president and secretary of thetribu- ^'on^-i^toMow'*^
nal and the agents of the two governments.

The tribunal continued the consideration of the case of the Shenan-
doah, by hearing explanations from Sir Roundell Palmer and Mr. G.
Gushing.

At the close of his remarks, Mr. G. Gushing requested to be informed
by the tribunal whether the questions outside of that of enlistment,,
on which the elucidation called for specially turned, remain open before
the tribunal.

After deliberation, a majority of four to one declared the tribunal
sufficiently enlightened.

Count Selopis then concluded the statement of his opinions, which he
had not completed at the meeting of the 19th instant.

Sir Alexander Cockburn, as one of the arbitrators, then proposed to
the tribunal to require further elucidation by counsel upon the follow-
ing question :

The legal effect, if any, of the fact that the Florida, after leaving the Bahamas, did,
before entering on her employment as a vessel of war and taking any vessel of the
United States, go into Mobile, a confederate port, and after a delay of fonr months,
proceed from thence on her cruise against the shipping of the United States, under the
circamstances appearing in the evidence.

The tribunal decided to adopt the proposal.

The conference was then adjourned until Friday, the 23d instant, at
half-past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

36 ARBITRATION AT GENEVA.

PEOTOCOL XXV.

Record of the proceedings of the tribunal of arbitration at the twenty-fifth
conference^ lield at Geneva^ in Switzerland^ on the 23d of Aug^ust, 1^72.

The conference was held pursuant to adjournment All the arbitra-
Lord Tendcr.««,'. toFs aud thc Hgcuts of tfac two governmcnts were present.
biJi'^Tr^S^' by* The protocol of the last conference was read aud approved,
SlInt^'.VtoFiond.; ^iid was slgucd by the president and secretary of the trib-
•undrydecbion.. ^^^i ^jjj ^jj^ agcut^ of tlic two governmeuts.

Lord Tenterden, as agent of Her Britannic Majesty, read the following
statement :

Ab ngent of Her Britannic Majesty, I have the honor respectfuUy to represent to the
tribunal that the tables of claims which were pro forma presented to the arbitrators by
the agent of the United States on Monday. 19th instant, but of which I was only fur-
nished with copies on the night of the 21st instant, contain new and additional claims
of the following description.

1. a. Claims for wages of crews of captured vessels from time of capture.
h. Claims for loss of personal effects of officers and crews.

There is no evidence as to rtie number of the crews, nor as to the long and varying pe-
riods for which their wages are calculated, nor as to any such personal effects having
been in fact lost.

In short, these claims are wholly conjectural in amount and unsupported by any
evidence whatsover.

2. Additional claims for shares of vessels not claimed for up to the present time, eg. :
where an individual claimant has only claimed for four-fifths of the value of a vessel,
an arbitrary claim is now advanced for the first time on the part of the United States
Government for the value of the remaining fifth.

It is not alleged that the part owner who had not previously claimed has now given
any authority for this claim to be advanced. The strong presumption indeed is that
he may have already received the value of his share from English or other foreign
insurance companies, with whom it was insured, and who are not entitled under the
treaty to advance any claim.

3. Claims previously presented have been increased in amount without any ground
appearing for such increase.

The total amount of these three classes of claims, which are now for the first time
advanced on the part of the United States Government, appears, in round numbers, to
be at least two millions of dollars.

Independently of the fact that these additional claims are unsupported by any evi-
dence, it is my duty respectfully to submit to the tribunal that the additional statement
of any new claims whatever, in this stage of the arbitration, for the purpose of influ-
encing or affecting the judgment of the tribunal upon any matter within its authority,
is contrary to the provisions of the treaty.

The treaty contemplates that the statements of facts and evidence, constituting the
whole case of each party, should be brought before the tribunal within the times and
in the manner specified in Articles 3, 4 and 5, subject only to such further statements
or arguments as under Article 5 the arbitrators may think fit to require or permit for
the elucidation of any point contained in, or arising out of, the documents previously
put in by either party.

I have also to submit that the introduction of such additional claims is not author-
ized by the request made by the arbitrators.

This request was that comparative statements of the results in figures of the claims
already made, as appearing in the papers previously presented, according t^o the views
of the respective parties, should be prepared, with explanatory observations, and laid
before the tribunal, and it could not have been intended to afford the opportunity
for bringing forward new, or increasing former, claims.

Under these circumstances, I respectfully request the arbitrators to disallow, as
unauthorized by them, and as contrary to the treaty, the tables containing such addi-
tional claims, presented by the agent of the United States, and the memorandum re-
lating to them, without prejudice to his right to present other tables, accompanied by
any explanatory observations, which shall be limited to the particular claims already
set forth in the case and counter-case of the United States, and the appendices thereto.

The tribunal decided to adjourn the consideration of this matter until
the next conference.

Sir Eoundell Palmer, as counsel of Her Britannic Majesty, then read
the argument required by the tribunal on Sir Alexander Cockburn's

PROTOCOLS OF THE CONFERENCES. 37

proposal, upon the question of law mentioned in Prococol XXIV, and
Mr. Evarts, as counsel of the United States, replied to it.

On the proposal of Viscount d'ltajuba, one of the arbitrators, the
tribunal decided to adjourn until the next conference the further dis-
cussion upon the Florida, and to proceed with the definitive. vote on
each vessel separately.

The tribunal then decided that it had to consider only such vessels
with regard to which claims were presented in the case and counter-case
of the United States; every other question being consequently under-
stood as dismissed from consideration.

Count Sclopis, as president of the tribunal, having read the Article
VII of the Treaty of Washington, asked the tribunal whether, as to the
Sumter, Great Britain has, by any act or omission, failed to fulfill any of
the duties set forth in the three rules mentioned in Article VI of the
treaty, or recognized by the principles of international law, not incon-
sistent with such rules.

The tribunal unanimously replied *'No.''

The same question was asked as to the Nashville, and the tribunal
BDanimously replied "No."

The same^question was renewed as to the Ketribution.

Mr. Adams answered "Yes, for all the acts of this vessel.''

Mr. Stsempfii answered " Yes, as to the loss of the Emily Fisher."

Sir Alexander Cockburn, Viscount d'ltajuba, and Count Sclopis an-
swered " No."

The same question was asked as to the Georgia, and the tribunal
unanimously answered "No."

The same question was repeated as to the Tallahassee and Chicka-
mauga, separately, and the tribunal unanimously answered "No" for
each of these vessels.

The same question having been repeated as to the Alabama, the tri-
bunal unanimously answered " Yes."

The same question was renewed as to the Shenandoah, and Mr. Adams,
Mr. St^mpfii, and Count Sclopis answered "Yes; but only for the acts
committed by this vessel after her departure from Melbourne on the
18th of February, 1865." Viscount ditajuba and Sir Alexander Cock-
burn answered " No."

The definitive vote on the Florida was adjourned until the next meet-
ing.

The conference was then adjourned until Monday, the 26th instant,
at half past 12 o'clock.

FREDEEICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOL XXVI.

Record of the proceedings of tlie tribunal of arbitration at the twenty-sixth
conference held at Geneva in Switzerland^ on 2%th of August^ 1872.

The conference was held pursuant to adjournment. All the arbitra-
tors and the agents of the two governments were present. Lord Temene

rw\% *?/. All. I* 11 a present* new uibl««

The protocol of the last conference was read and approved, 8,;»J,;t ^•j'*;,"'^^
and was signed by the president and secretary of the tribu- uUjlni^V^lr^-

. 1..^ t* .\ A marku on the Amer-

ual and the agents of the two governments. icant.bie..

38 ARBITRATION AT GENEVA.

Lord Tenterden, as agent of Her Britannic Majesty, delivered to the
tribunal and the agent of the United States tables of figures relating
to the claims contained in the tables presented on the part of the
United States on the 19th instant.

The tribunal concluded the discussion of the question concerning the
entrance of the Florida into Mobile, and her stay at that port, and pro-
ceeded to the definitive vote on this vessel.

Count Sclopis, as president of the tribunal, having asked, under. the
VII article of the treaty of Washington, whether, as to the Florida,
Great Britain had, by any act or omission, failed to fulfil any of the du-
ties set forth in the rules mentioned in Article VI of the treaty, or re-
cognized by the principles of international law not inconsistent with
such rules, Mr. Adams, Viscount d'ltajuba, M. Stsempfii, and Count
Sclopis answered "Yes, '' and Sir Alexander Cockburn answered "No."

As a question of principle, the tribunal then unanimously declared
that Great Britain should be considered as responsible for the tenders
in the same degree as for the vessels to which they were attaehed.

The same question as had been put with regard to the Florida, was
next asked by Count Sclopis as to the Tuscaloosa, a tender to the Ala-
bama, and the tribunal unanimously answered " Yes. "

Tbe same question was asked separately as to the Clarence, the Ta-
cony, and the Archer, as tenders to the Florida, and Mr. Adams, Mr.
Sta?mpfli, Vfticount d'ltajuba, and Count Sclopis answered " Yes, " for
each of these vessels, and Sir Alexander Cockburn answered " Ko" for
each of these vessels.

The tribunal then proceeded to the consideration of the representa-
tion made by the agent of Her Britannic Majesty, at the last confer-
ence.

Mr. J. C. Bancroft Davis, as agent of the United States, read the fol-
lowing statement in reply:

L'sb^ent de sa Majesty britanniqiie aprdeent^ an tribunal nn memorandum destine
^ critiquer le riSsume des indemnity demand^s paries ^^tats-Unis, et dans lequel le
tribunal est pri6 de remettre ce r^sumd ^ Parent des ^tats-Unis comme non avenu.

L'ageut dea l^tats-Unis soutient respectueusement que son rdsum^ est parfaitement
en r^^le et en tout conforme aux droits des £tats-Ums aussi bieu qu'^ la demande par-
ticnli^re du tribunal.

1. Les objections de Fagent de sa Majesty britannique portent snr les points suivants :
a) Les gages des Equipages des navires captures par les vaisseaux ann6s des oonf6-

d^r^ ;
h) Les pertes'des personnes de ces ^quipa^es, tant officiers que matelots ;

c) Des parties inaivis^es d'un navire qui ne paraissent pas expressdment dans les
a bleaux origin&nx ;

d) Augmentation pr<5tendue du montant total des r<^clamatious.

2. L'agent de sa Majesty britannique objecto aussi :
a) En mati^.re de forme ;

h) £n raaticire de competence.

Nous r<^(K)udron8 seriatim h tontes ces objections :

I. Qnant h la forme, il est Evident que les arbitres, pour faciliter leurs investigations,
ont d6sir6 avoir sous les yeux un abr^g6 comparatif de ce que les iCtats-Unis rdclament
et de la critique de ces reclamations par I'Angleterre, critique portant sur les chiffres
aiissi bien que sur les cbefs des reclamations. Ces resumes faits par les deux parties
ne lieut d'aucune mani(^re les arbitres:ce sont tout simplement des renseigmtments
propres k guider le tribunal b, travers la masse de chiffres et de details renfermes dans
les m^moires et les pieces jus tificatives des deux gouverneraents.

L'agent de sa M^este britannique pretend que les fifats-Unis' doivent calquer leur
resume sur le modMe du r6snm6 de I'Angleterre, non-seulement quant }\ la forme, mais
aussi quant an fond. C'est-^lire que, s'il plait i\ TAugleterro d'omettre dans son re-
sume quelque chefde reclamations, PAmerique doit aussi I'omettre. Ce serait une
etrange table synoptique.

La raison requiert I'explication des differences qui existent entre les chiffres de chaque
chefde reclamations. Mais elle requiurt aussi Fexplication des differences qui existent
entre les chefs mSmes des reclamations. Saus cela, TAngleterre n'aurait qu'^ supprimer

PROTOCOLS OF THE CONFEREXCES. 39

dans son rdsain^ le chef des assurances, on celni ded frets, on celai d*un navire quelcou-
que, ppar soustraire ce chef il la connaissance des arbitres. Ce ne serait pasle moyeu
dt» rensei^er le tribunal, mais plu6t celui de le troiuper. Uue telle id6e a Tair d'uue
plaisautene, et nullement d'une objection s^^rieuse an tableau des ^tats-Unis.

Le tribunal examinera les r^um^ des deux gouvernenients. A la lumi<>re de ccs
T^sam^s, le tribunal examinera tons les documents relatifs couipris dans les m^moires
et contre-m^moires des deux gouvernements. C'est le droit et c'est ledevoir de chaque
^Qvernement de soumettreau tribunal les preuves respectives sans retranchemeut
d'un cAt6 et sans suppression de Fautre. Alors le tribunal jugera.

II. Quant k la competence :

a) L^ traits oomprend toates lea reclamations des £tats- UkIs qui sont ddsign^es aotis le
%om gen^rique de rwlamations de V Alabama,

b) Le tribunal, par son opinion prdliminaire, a limits la g6n6ralite de ces mots, en
^cartant des reclamations certaines pertes nationales aliegu^es par les ^Stats-Unis.

Mais, k la suite de cette opinion, le tribunal reste saisi de la question de tontes les
reclamations faites par les Etats-Unis dans Tinteret des individus les^s, et comprises
sons le nom generiquo de reclamations de I'Alabama.

Les pertes des omciers, et en general des equipages des navires captures, ne sont pas
moina valables que celles des armateurs et des assureurs. Le doute est impossible h
cet egard.

e) Des reclamations pour les pertes personiielles des equipages des navires captures
sont formuiees de la mani^re la plus explicite dansle memoire des ^tats-Unis, conime
suit:

^* Reclamations pour dommages on mauvais traitements infliges anx personnes, et
qui ont ete le resultat de la destruction des vaisseaux appartenaut, aux deux classes

precedentes.

• • • # • • «

'' n est impossible k present pour les £tats-Unis de sonmettre an tribunal un etat
detailie des dommages on mauvais traitements personnels qui sont requites de la de-
struction de chaque classe de vaisseaux. Les omciers et Tequipage de chaque vaisseau
avaient droit k la protection du drapeau americain ; leurs reclamations doivent etre
incluses dans la somme totale que le tribunal pent allouer. D'apr^s les elements d'ap-
preciation qui lenr sont fournis, il ne sera pas difficile aux arbitres de connattre les
noma et le tonnage des b&timents detruits, de determiner le nombre de ces bardis ma-
rins sans ressources qui ont ete prives ainsi de leurs moyens de subsistence et de fixer
la somme totale qui de ce chef devraitetre placee dans les mains des £tats-Unis. Elle
ne pent pas etre inferieure k des centaines de mille dollars et elle pent s^eiever k des
millions. (Traduction fran^aise, pp. '^7,378. )

d) Nous prions les arbitres de lire ces extraits attentivement. lis verront que les
fitats-Unis ont presente les reclamations de cette classe de la maui^re la plus claire et
la plus positive, comuienn chef capital desindemnitesdemandees k la Grande-Bretagne.

Nous ajoutons que ce sont des reclamations reelles et meritees.
LUncei^jtitude du chiffre ne nuit pas k sa reclamation.
Nons aurons plus tard quelqne ctiose k dire ^ ce sujet.

e) Les pertes d'effets, soit d'offioiers, soit de matelots, sont expressement recitees dans
plusienrs cas. Dans les autres, ces pertes sont estimees d'apr(^ le chiffre des pertes
actuellement exprimees.

Quant aux gages et an chiffre des equipages, nous avons essaye do rassembler tous
les rensei^nements possibles, et nos estimations sont fondees sur les faits developpes
dans les pieces jnstificatives.

Nous distinguons eotre les gages des equipages des baleiniers et oeux des navires
marchands proprement dits.

Pour les deux classes de navires les gages ont ete perdus, on par les armateurs qui
les avaient payes, on pour les equipages qui ne les avaient pas re^us.

Pour les baleiniers, la perte etait plus serieuse, parce que dans la plupart des cas le
montant des gages se fixait, en tout ou en partie, selon les benefices, et les families des
matelots recevaient de I'armateur une partie notable de ces gages pendant le temps du
voyage.

Dans ces cas, les matelots des baleiniers avaient ete victimes des frals des six ou
nenf premiers mois d'un voyage, en attendant les beuedces qui devraient etre re^us
dans les trois mois k venir.

De deux choses Tune; pour indemniser ces gens, il faut leur allouer, ou des benefices
en perspective, ou des gages se rapportant k ces benefices.

Pour les navires marchands, il peut se faire que la question des gages des matelots
soit comnliqnee de la question des frets. £u supposant que les indemuites demandees
sons le chef de fret soient, comme nous le croyons, les pertes actuelles des armateurs
dans cette relation, il s'ensuit que nous avons droit k 6tre indemnises pour les gages.

Pour la plupart des navires, les l^tats-Unis redament sous le nom de gages la perte
du temps des matelots, aussi bien que les frais de leur transport du lieu de capture aux
lieux respectifs de leur residence habituelie ; et sous ce chef nous allouons des gages

40 ARBITRATION AT GENEVA.

durant six mois oa durant neaf rnois, sclou que la capture a 6i6 faite dans les eaux de
TAtlaDtique on bieu dans celles du Paciiique.

En efiet, nous donnons des gages doubles, pendant trois mois pour le premier cas et
pendant quatre mois et derai pour le secoud cas. Quoique ceci ne soit qu'nne estima-
tion, le r^sultat est au-dessous de la v(^rit^ plut6t qu'au-dessus.

Nous avons estim<^ le cbiffre de Tdquipage de chaque navire conform^ment aux
donn^es qu'ou trouve dans nos pieces justificatives, eu distinction du chiffre des balei-
niers, quin<5ce88it'ent un plus grand nombre d'hommes que les navires marchands.

III. Les ]6tats-Unis r^clameut pour toutes les parties indivis^es d'un nayire, soit que
le propridtaire d'une partie mineure quelconque paraisse ou nou, parce que les £tats-
Uuis auront ^ rdpondre k tons les propri^taires dans le cas oh le tribunskl accorderait
en bloc une somme anx l^tats-Unis. Sans ccla, il y aurait iivjustice 6vidente. L'objet
du traits est d'indemniser les ^tats-Unis iK)ur toutes les pertes snbies par leurs citoyens,
et non d'imposer une partie de cette indemnification aux £tiits-Unis eux-m6mes.

IV. L'agent de sa Majesty britannique objecte que nous avons augments le moatant
des reclamations en ^joutant les chides appartenant aux trois che& suivants :

Gages 1939,597

Effets 441, a50

Int<^r6ts indivis^ 42,273

1,422,920

II s'agit de rooins d'un million et deroi, et non des deux millions all6gu^ dans le
memorandum de Pagent de sa Majesty britannique.

II est vrai de dire qu'il y a de plus une addition t^ la valeur de certains navires. C'est
une m^prise de Texpert emp]oy<^ dans les calculs relatifs k ces navires. Cette erreur est
expliqude et corrig^e dans une note plac^e k la suite de ce memorandum.

Mais, en ui^me temps, nous avous mis de c6t6 les reclamations fondles sur des bene-
fices en perspective, qui est le double des additions faites.

V. Enfin, et jmurresumer ledebat :

L'Angleterre a compose un tableau, non des faits actuels, mais tout d'estimatious,
d'appr^iations et de moyennes arbitraires et supposees.

Notre tableau est compose de faits actuels et pronves, pour la plupart, avec un petit
nombre d'appreciations tr^s-simples, et celles-ci fondees sur des preuves et des analogies
evidentes et appuyees par les documents.

Nous avons pleinement le droit de nous plaindre du tableau tout en tier presente au
nom de I'Angleterre : elle n'a h critiquer que quelques chiffres secondaires du m^me ordre
appartenant au memorandum des Etats-Unis.

L'agent de sa M^jeste paralt supposer que les £tats-Unis ont eu I'intention, dans
tout ceci, de preparer notre estime de mani^re h, exercer une influence f^heuse sur la
conscience des arbitres. Est-ce le tribunal qu'on soup^onnef Est-ce Tagent des !£tats-
Unis f On pourrait s'y meprendre. On pourrait m6me imputer de tels motifs h Pagont
de sa Majeste. Mais ce ne serait digne ni de lui, ni de nous, en vue des relations cour-
toises des agents et des conseils des deux gouvernements.

Mais k quoi bon cette critique de part ou d'autre f

Si les arbitres allouent une somme en bloc, cette somme sera necessairement une ap-
preciation en partie, sans quoi le resultat des travaux des arbitres ne serait pas une in-
demnification reelle des l^tats-Uuis.

S'il y a quelques defauts secondaires dans les preuves des fitats-Unis, 11 y a un manque
presque total de preuves definies de la part de la Grande-Bretagne.

Mais si le tribunal renvoie ces reclamations h des assesseurs, TAngleterre sera tenne
par les stipulations du traite de payer aux £tats-Unis la somme adjugee par les asses-
seurs, sans restriction, ni de preuves affirmatives, ni de preuves negatives. Alors, les
matelote qui n'ont pas presente leurs reclamations, et mdme les armateurs, assureurs ou
autres, auront le droit de redamer devant les assesseurs. Tel est le sens evident du
traite.

Eu attendant, tout ce qni se fait, soit de la part de FAmerique, soit de la part de
I'Angleterre, tend k essayer d'edairer, par les moyens qui sont h notre disposition, le
jugoment du tribunal.

Enfin, nous protestons con tre certaines appreciations du traite de Washington, qui sont
ou exprimees ou impliquees dans le memoire de I'agent de la Grande-Bretagne, sans
nous arrdter pour les discuter ici.

NOTE.

A* — Les reclamations pour les gages des baleiniers et desp^cbeurs des na-
vires detruits ou detenus par rAlabama, par le Florida, ou par le Shenan-
doah apres sa sortie de Melbourne, (la correction etant faite des erreurs
notees dans le memorandum qui accompagne nos tableaux,) estimees
d'apr^ les preuves soumises, s'eievent k (588, 247 50

PROTOCOLS OP THE CONFERENCES.

Ce montant doit Aire soustrait de la soinme totale dans le sommaire
annex^, si le txibonal accorde les reclamations des baleiniers pour la
ptehe perspective et pour Vinterrnption du voyage.

B« — ^Les r^lamations pour les gages des officiers et des hommes des navires
marchands ainsi d^truits ou detenus, estim^es d'apr^s les preuves sou-

mises, s'^l^ventli... $408,070 00

Quelques-uns des navires d^truits on detenus ^talent snr lest. En tous
cas pareils, nous insistons sur ce que le tribunal nous accorde le total des
gages r6clam^. Plasieurs, on mdme la plupart, des navires dtaient
charg^ de fret. Dans tous les cas oti le tribunal est con vaincu que le fret
r6clam6 est fret pur, il doit accorder les reclamations pour gages ; mais
dans tons les cas oh le tribunal est convaincu que la reclamation pour
fret est pour fret brut, il doit refuser d'accorder les reclamations pour
gabies. Ceci est expose d'une mani^re tr^s-precise dans le memorandum
qni accompagne nos tableaux.

€• — Les estimations des reclamations pour les effets personnels des officiers

et dee hommes des navires ainsi detruits ou detenus s'ei^vent h, 421, 000 00

Les £tats-Unis insistent sur ce qu'il leur soit accorde la somme totale
de ces reclamations.

D* — Les tableaux presentes par Fagent des £tats-Unis comprenaient tous
les navires detruits par le Shenandoah. Depuis que ces tableaux out
ete termines le tribunal a decide que la Grande-Bretagne n'est pas re-
sponsable des actes dn ShenandosJh avant sa sortie de Melbourne. Le
montant des reclamations h dednire par suite de cette decision s^ei^ve & . . 453, 290 49

E. — n y a nne erreur palpable de la part du comptable dans le tableau
intitule *' Shenandoah, supplement, classe A.'' La valeur estimee de hnit
navires detenus (c'est-^dire, $80,000 chacun) fnt retenue par le comptable
par naeearde, et jointe aux chiff^ de la coloune des totaux de pertes.
Dans la discussion detailiee devant le tribunal, on se serait aper^u tout
de suite de cette erreur, qui etait demeuree inaper^ue dans la h&te des
preparatifs pour rediger les tableaux. On fournit ci-inclus un tableau
nouveau sous le mdme titre. Le montant de cette erreur, qui se trouve
corrigee ici, est de

F. — L'expose revise ci-joint : totaux des reclamations comparees, exhibe
ces corrections : c'est-^dire, que les montants D et £, qui s'ei^vent ^
$1,093,290.49, sont dednits.

C'est an tribunal k decider si une partie quelconque des montants A et B
doit 6tTe deduite.

640,000 00

TOTAUX DES RECLAMATIONS COMPARfiES.

Montants r6clam6s
dans les tableaux
am6ricaius.

Alabama

Classe A $1,314,286 99

Classe B 1,396,430 8:3

Classe C 3,309,876 10

Classe D 413,288 33

ClassesE et F 123,807 78

Montants accord^s
dans le rapport
^jout6 4 rarga-
ment britanni-
qne.

$460,893 00

618. 538 00

2, 004, 376 00

136,021 00

47, 850 00

6,557,690 03 3,267,678 00

Florida, y compris le Clarence Classe A 228,941 92 108,569 Oa

etleTacony. Classe B » 539, 179 10 644,709 00

* Le comptable, qui a fait Varrangement des navires dans nos tableaux, a place dans
la classe C deux navires qui auraient dft 6tre dans la classe B, savoir :

LOneida $471,849 12

U Windward 22,598 00

494,447 12

Cette erreur corrigee, la somme totale de la classe B (sous le nom du Florida)
serait de $1,033,626.^, et de la classe C, $2,844,962.90. Comme les sommes totales
des reclamations sous le nom du Florida ne seraientancnnement changees par la cor-
rection de cette erreur, purement formelle, j'ai pense qu'il ne valait pas la peine de
changer les tableaux detailies.

42 ABBITRATION AT GENEVA.

TOTAUX DES RfiCLAMATIONS COMPARfiES-Continues.

Montants r6olam6^ Montanta accord^^
dans lea tableaux dans le rapport
am^ricains. i^oiit6 k I'argn-

ment britaimi-
que.

Florida, y compris le Claraence Classe C $3,339,410 02 $1,776,375 00

et le Tacony—Continu6e. Claase D 138, 929 17 44, 570 00

ClassesEetF 278,618 62 61,350 00

Classe G 91,225 10

4, 616, 303 93 2, 635, 573 00

SheDandoah: Classe A et suppldment . .' 3,263,149 55 1,171,464 00

Recapitulation: Alabama .*.. 6,557,690 03 3,267,678 00

Florida 4,616,303 93 2,635,573 00

Shenandoah 3,263,149 55 1,171,464 00

14, 437, 143 51 7, 074, 715 00

Reclamations actnelles des £tats-Uuis pour les d6-
penses caus^es h, leur marine par suite des actes
du Florida, de TAlabama et du Shenandoah 6, 735, 062 49 940, 460 24

21, 172, 206 00 8, 015, 175 24

Reclamations pro venantde Vinterrnption des voyages
et des pertes sur benefices en perspective 4, 099, 302 50

SOMMAIRE.

Totaux des reclamations, (y compris les reclamations proven ant de
. rinterruption des voyages et des pertes sur benefices en perspec-
tive) $25,281,508 50

Si les susdites reclamations sont comprises, il faut deduirci (vide A).. 588, 247 50

24,693,261 00

Totaux des reclamations, (non compris les dites r<Sclamations) $21, 272, 206 20

Dans le cas oti une pareille elimination serait faite, il faudrait ajonter
25%^ sur la valeur des navires et des equipements, {vide le memoran-
dum qui accompagne les tableaux) 400, 127 91

21,672,334 11

En tons cas il faut i^'outer I'interdt de 7^ par an jusqu'au jour du paiement indiqne
par les termes du traite.

After deliberation, the tribunal gave its decision as follows :

The tribunal does not see fit to order the withdrawal of the tables presented on the
part of the United States as requested by Lord Tenterden ; but it declares that it con-
siders these documents only as simple elucidations, such as were required by one of
the arbitrators, Viscount d'Itigub(i, to which the tribunal will give such attention as
is right.

The tribunal determined to devote the next conference to the consid-
eration of the questions concerning the claims for " expenditure incurred
in pursuit of the cruisers, prospective profits, freights, and interest," and
decided to deliberate with closed doors.

Sir Alexander Cockburn, as one of the arbitrators, declared that he
objected to this latter decision.

. The conference was then adjourned until Thursday, the 29th instant,
at half past 12 o'clock.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secretary.

PROTOCOLS OP THE CONFERENCES 43

PEOTOCOL XXVII.

Record of the proceedings of the tribunal of arbitration at the twenty-seventh
conference Jield at Geneva, in Switzerland^ on the 29th of August, 1872.

The conference was held with closed doors, pursuant to adjournment.
All the arbitrators were present. s„„d,y p,„^ ^r

The protocol of the last conference was read; the ap- «'""»«^t«>-
proval and signing of the same was deferred until the next meeting.

The tribunal proceeded to consider the questions concerning the
claims for ^' expenditure incurred in pursuit of the cruisers, prospective
profits, and freights."

As to the claims for expenditure incurred in pursuit of the cruisers,
a majority of the tribunal decided to reject them as comprised in the
costs of the war; Mr. Staempfli and Mr. Adams declared them to be ad-
missible, as belonging to the direct losses, reserving to appreciate their
amount according to the bases laid down in the table at page 120 of
the seventh volume of the appendix to the case of the United States.

As to the claims for prospective profits the tribunal unanimously
decided to reject them, reserving, however, the questions as to the
wages for the whalers and the interest for the value of the vessels and
their outfit.

As to the claims for freights, the tribunal unanimously decided not to
admit of the gross freight, but only the net freight.

The tribunal also decided to consider at the next conference the ques-
tions concerniqg the valuation of the destroyed vessels and the claims
for interest.

Lastly the tribunal decided to adjourn this conference until Friday,
the 30th instant, at 12 o'clock, and to deliberate again with closed doors.

FREDERICK SCLOPIS.
ALEX. FAVROT, Secretary. '

PROTOCOL XXVIIL

Record of the proceedings of the tribunal of arbitration at the twenty-eighth
conference held at Geneva, in Switzerland, on the 30th of August, 1872.

The conference was held with closed doors, pursuant to adjournment.
All the arbitrators were present. ;,,„ „,,„t „a„ed

The protocol of the twenty-sixth conference having been '"p**^^"* '^^""^
corrected was approved, and the protocol of the last conference was
read and approved, and was signed by the president and secretary of
the tribunal.

On the proposal of Sir Alexander Cockburn, as one of the arbitrators,
the tribunal permitted that the counsel of Her Britannic Majesty
should present, on the question of interest, a note which should be
directly communicated by the agent of Her Brittannic Majestj" to the
agent of the United States, in order that the latter may prepare a reply
to it, if he thinks fit.

The tribunal desired that these two communications on the part of
the respective agents should be presented at the conference which will
be held with closed doors on Monday, the 2d of September, at half past
12 o'clock.

AKBITRATION AT GENEVA.

The tribunal proceeded to the consideration of the matters submitted
to them, and unanimously declared that the ^'double claims^ should be
dismissed.

The tribunal having discussed in general the award of a gross sum,
requested Mr. St^empfli, one of the arbitrators, to present for the next
conference copies of a synoptical table which he has prepared on the
subject.

The conference was then adjourned until Monday, the 2d of Septem-
ber, at half past 12 o'clock.

FREDEEICK SCLOPIS.
ALEX. FAVBOT, Secretary.

PROTOCOL XXLS.

Becord^of the proceedings of the tribunal of arbitration at the twenty-ninth
conference held at Geneva^ in Switzerland^ on the 2d of September^ 1872.

The conference was held with closed doors, pursuant to adjournment

Mr suem flis ^^^ ^^^ arbltrators were present.
•u J^eDt'.'S sfr A? The protocol of the last conference was read and ap-

Cociburn's memo- ,*•, . t ^ i^t '-ij. j a *.

randum recard.oc • provcd, aud was sigucd by the president and secretary of
RuminiroM. ^^^ tribuual. Couut Sclopis, as president of the tribunal,
acknowledged the receipt, by the arbitrators, of the note presented by
the agent of Her Britannic Majesty on the question of interest, and of
the reply to the same, presented by the agent of the United States.

The tribunal then proceeded to consider that question, and a majority
of four to one decided that interest should be admitted as an element
in the calculation for the award of a sum in gross.

Mr. St^mpfli, as one of the arbitrators, presented to the tribunal
copies of the synoptical table which he had prepared as a proposition
for the determination of a sum in gross :

Estimate of Mr, Staempfli for the determination of a sum in gross.

Amoant of claims

Expenditure in pursuit.

Prospective profits and interruption of voyage

After the
last Ameri-
can table.

$14, 437, 000
6,735,000

4,009,100

British
allowance.

|7, 074, 000

940.000

Struck out as

such, but for

wages

35 per cent on
the values of
vessels

Mean.

$10,905,00
Struck oat.

588.000

400,000
11, 893. 000

Bound sum $1S,000,COO

Interest from the 1st January, 1864, to the Ibth September^ 1872.

1. At 5 per cent during eight years and eight and one-half months. .8 x $600,000=$4,800,000

6^x 50,000= 425,000

$5,235,000
17.*»5.000

Eventually one yearns interest more 17,825,000

PROTOCOLS OF THE CONFERENCES. 45

S. At 6 per ceot daring eight years and eight and one-half months. . 8 > #790,000=15,760,000

Bi X 60,000= 510,000

• 6,270,000 118,270,000

Eventoallyone year's interest more 18,990,000

1 At 7 per cent, daring eight years and eight and one-half months .8 x |840,000=<6, 720,000

8^ X 70,000= 595,000

7,315,000 #19,315,000
Erentoally one year's interest more 840,000

20,155,000

Bound sum 90,000,000

Sir Alexander Cockburn, as one of the arbitrators, then presented
the following memorandum on Mr. Staempfli's estimate:

Memorandum an Mr. SimcepfiVi estimate.

The figures in Mr. Staempfli's paper require some material corrections, as to^which,
as soon as they are pointed out, there can be no donbt.

The total claim by the United States of $14,437,000 will be found, on an inspection
of the United States tables, to include the following amounts :

A. AU the double claims, without exception, notwithstanding the clear expression of
opinion on the part of the tribunal that they were to be struck out These double
cLaims amount to $1,682,243.

h. The gross freights of the merchant-vessels, amounting to $1,007,153, as to which
the tribunal has decided that at the utmost only half, that is to say $503,576, should be
aUowed.

c The new claim of $1,4.50,000, advanced for the first time on the 19th of August last,
as to which claim Mr. Stuempfli declared he would exclude it from consideration. It
is important to observe that this new claim comprises over and above the entirely un-
supported claims for shares of vessels, and for additional personal effects, the claims
for wages extending over very long and varying periods. The tribunal has decided
that one year's wages in respect of the whalers are to be allowed in lieu of prospective
catch. For this one year's wages, Mr. Stiempfli ha9 made a separate allowance of $588,000
(an allowance which can be shown to be excessive by at least $88,000,) and he has
therefore inclnd«Kl in his calculation the claim for wages twice over.

It is therefore clear that Mr. St^empfli, while he excludes some of the items of claim
which the tribunal has disallowed, has omitted to strike out the other items, against
which the tribunal has pronounced its opinion ; but it is equallv clear that all the dis-
allowed items must be excluded before a comparison can be fairly or usefully made be-
tween the United States claim and the Bririsn estimate.

It is necessary, therefore, in the first place, to deduct from the United States claim
the three amounts specified in paragraphs a, 6, and c, respectively, which will leave, as
ib shown by the annexed table, a properly reduced claim of $10,801,324, as against the
British estimate of $7,465,764, if the difference between paper and gold currency be for
the present purpose disregarded.

It must, however, be carefully borne in mind that the claim of $10,801,324 includes
the following items :

1. A claim o/ $659,021 /or semred earnings^ which ought beyond a doubt to be reduced
by an amount equivalent t-o the wear and tear of the whalers and their outfits, and the
consumption of stores, which must have taken place before these earnings could be
secnred, and for which a deduction should be made, inasmuch as the full original values
of the vessels and their outfits have been allowed.

2. The claims in renpect of the merchant vessels. — These are valued in the United States
tables at more than $60 per ton on the average, although, according to the well-known
official report presented to Congress in 1870, the cost of a first-class perfectly new Amer-
ican vessel, made ready for sea, did not average that amount per ton, and although,
according to the same report, the average value of American vessels engaged in the
foreign trade was, in 1861, ouly $41, and has been since only $45 per ton,

3. The claims in respect of cargoes^ thi insurances, commissions, and profits of the same,
which profit-s are sometimes claimed at the rate of twenty, fifty, and even one hundred
per cent. The various important considerations mentioned at page 13 of the British
report, and the fact that numerous claims for cargoes, presented for the first time in
April last, are unsupported by any vouchers, bills of lading, or like documents, un-
doubtedly require that a very considerable reduction should be made under this head.

4. Several large claims not supported by anu affidavit or declaration on oath.

46 ARBITRATIOX AT GENEVA.

5. yuwuroMM dearly artrttragani daiwu specified in the British reports, SDch as the
claim of $7,000 by a harpooner for personal iojuries, the claim, by a passenger, of
$10,000 for loss of office as <5onsnl, all the numerous claims by the masters of whalers
for wages, sometimes at the rate of $15,000 or $'^).000 a year, and which are, of conrse,
superseded by Mr. St^mpfli's allowance of $5^'!^,000, and many other equally exorbir
taut claims, more particularly specified in the British reports.

From these considerations it is manifest that more than ample justice will be done
to the United States by taking a mean between the claim of $10,301,324, and the
British estimate of $7,464,764, and by adding thereto the allowance of $58^,000 in lien
of prospective catch.

Mr. St^mpfli has also added, for some unknown reason, 25 per cent>. on the values
of the whalers, an addition which can be easily shown to be equivalent to alto-
gether allowing over and above the original values of the whalers and their outfits
a percentage exceeding 90 per cent., and this although the question of interest is still
left open to the decision of the tribunal.

Admitting, however, this extraordinary addition of 25 per cent., and the excessive
estimate of tLe wages, it is shown by the annexed table that if Mr. St^mpfli's figures
be properly corrected, the estimate would scarcely exceed $10,000,000, even without
any allowance being made for the great difference between the values of the paper
and the gold currency.

Mr. Stsempfli's calculations of interest (supposing interest to be allowed) are made
at the alternative rates of 5, 6, and 7 per cent., for the period of eight and one-half years,
from the first of January, 1864, to the 15th of September, 1872.

But to this he proposes to add another year's interest for the period of delay in pay-
ment after the date of the award which is allowed by the treaty.

The tribunal has no power, under the treaty, to award payment of a gross sum with
interest. The amount awarded is to be paid without interest, and if the tribunal
were to add a year's interest to the gross sum which they would otherwise award, in
respect of the year allowed for payment by the treaty, they would be doing indirectly
what they havenoanthoritytododirectly, and would (it is submitted) be contravening
the true intent of the treaty, and charging inter^t where it was the intention of the
treaty that interest should not be paid.

This is the more objectionable because it is proposed to charge a whole year's inter-
est at either 5, 6, or 7 per cent., whereas the British government ha^ the option, under
the treaty, to pay the sum awarded at any time trithin the year allowed for that pur-
pose, and might certainly raise the money, (if that operation were necessary,) at a
considerable lower rate of interest than 5 per cent.

Table in rrference to the estimate of Mr, Stampfli,

Total United States claim in the last reTiaed tables $14,437,143

Necessary redactions to be made from the above sappposed total :

Doable claims |1,C82,S43

New claims 1, 450. 000

One-half gross freight 503,576

3.635,819

Making the total reduced claim 10,801,334

As against the British estimate of 7,464,764

The mean of these two sums is: 9, 133,044

Add to this Mr. Stjemptii's allowances in lieu of prospective catch :

One year's wages |588, 000

Twenty-five per cent, on the values of vessels 400,000

988,000

10. 121, 044

The tribunal also considered the question of the award of a sum in
gross.

After a detailed deliberation, a majority of the tribunal of four to one
decided, under the Vllth article of the treaty of Washington, to award in
gross the sum of $15,500,000, to be paid in gold by Great Britain to the
United States, in the time and manner provided by the said article of
the treaty of Washington.

The conference then adjourned until Friday, the 6th instant, at half
past 12 o'clock, to be held with closed doors.

FREDERICK SCLOPIS.
ALEXANDER FAVROT, Secretary.

PEOTOCOLS OF THE CONFERENCES. 47

PROTOCOL XXX.

Record of the proceedings of the tribunal of arbitration at the thirtieth
conference held at Geneva^ in Switzerland^ on the Qth of Septem-
ber, 1872.

. The conference was held with closed doors pursaant to adjournment.
All the arbitrators were present.

The protocol of the last conference was read and ap- ofSSiioi"*""*'''
proved, and was signed by the president and secretary of
the tribunal.
The 'tribunal proceeded to consider a draught of their decision.
At the request of the tribunal, Mr. Adams and Sir Alexander Cock-
bum kindly undertook to provide for the translation into English of the
French text of this act of decision.

The conference was then adjourned until Monday, the 9th instant, at
half past twelve o'clock, to be held with closed doors.

FREDERICK SCLOPIS.
ALEX. FAVROT, Secretary.

decision
ViBcount

PROTOCOL XXXL

Record of the proceedings of the tribunal of arbitration at the thirty-first
' conference held at Oeneva, in Switzerland, on the 9th of Septetnber, 1872.

The conference was held with closed doors pursuant to adjournment.
All the arbitrators were present.

The protocol of the la«t conference was read and ap- ..aJpS.**^
proved, and was signed by the president and secretary of JuppteiV'SSr''"*
the tribunal.

3Ir. Adams and Sir Alexander Cockbum presented the English trans-
lation of the act of decision, which they had kindly undertaken to pre-
pare.

The tribunal definitely adopted the act of decision, which was consid-
ered at the last conference, and decided to have it printed.

Viscount d'ltajuba, as one of the arbitrators, made the following
statement :

ViBCoant d'ltajuba, while signing the decision, remarks, with regard to the recital
concerning the snpply of coals, that he is of opinion that every government is free to
famish to the belligerents more or less of that article.

The tribunal resolved that the decision should be signed at the next
conference, which was to be held with open doors, and adjourned until
Saturday, the 14th instant, at half past 12 o'clock.

FREDERICK SCLOPIS.

ALEX. FAVROT, Secreta)^.

48 . ARBITRATION AT GENEVA.

PROTOCOL xxxn.

Record of the proceedings of the tribunal of arhitrtUion at the thirty-sec-
ond conferetice held at Geneva^ in Switzerland^ on the lAth of 8epte/n-
bery 1872. .

The conference was held with open doors, pursuant to adjournment.
All the arbitrators and the agents of the two governments

Sifoatnrv of award j.

and diMoiouoa of wcrc prescut.

ir.buML j^^ protocol of the last conference was read and ap-

proved, and was signed by the president and secretary of the tribunal.

The president then presented the decision of the tribunal on the ques-
tion of the "Alabama claims," and directed the secretary to read it ;
w hich was done, and the decision was signed by Mr. Charles Francis
Adams, Count Frederic Sclopis, Mr. Jacques StsempfLi, and Viscount
d'ltajuba, arbitrators, in the presence of the agents of the two govern-
ments.

A copy of the decision thus signed was delivered to each of the agents
of the two governments, respectively, and the tribunal decided to have
a third copy placed upon record ; they further decided that the decision
should be printed and annexed to the present protocol.*

Sir Alexander Cockburn, as one of the arbitrators, having declined
to assent to the decision, stated the grounds of his own decision, which
the tribunal ordered to be recorded lis an annex to the present protocol.'

The tribunal resolved to request the council of state of Geneva to
receive the archives of the tribunal and to place them among its own
archives.

The president. Count Sclopis, then directed the secretary to make up
the record of the proceedings of the tribunal at this thirty-second and
last conference, as far as completed ; which was done, and the record
having been read and approved, was signed by the president and secre-
tary of the tribunal and the agents of the two governments.

Thereupon the president declared the labors of the arbitrators to be
finished and the tribunal to be dissolved.

FREDERICK SCLOPIS.

J. C. BANCROFT DAVIS.

TENTERDEN.

ALEX. FAVROT, Secrttary.

^ For a copy of this paper, see post, No. iii.

- This paper was not annexe<l to the official protocol delivered to the agent of the
United States. A paper entitled ^^ Reasons of Sir Alexander Cockburn for dissenting
from the award of the tribunal of arbitration*' was published in the supplement to the
London Gazette of the 24th of September, 1872, and a copy of this number of the
Gazette was transmitted to the agent of the United States as the paper that should
have been annexed to the protocol. This paper is printed hereafter uuder the title
** Sir A. Cockbnm's Opinions."

III.-DECISION AND AWARD

Made by the tribunal of arbitration constituted by virtue of the first article
of the treaty concluded at Washington the Sth of May^ 1871, bettceen the
United States of America and Her Majesty the Queen of the United King-
dom of Great Britain and Ireland.

The United States of America and Her Britannic Majesty having
agreed by Article 1 of the treaty couchided and signed at
Washington the 8th of May, 1871, to refer all the claims ••o"rorV/ u«.Tiy
" generically known as the Alabama claims" to a tribunal of °'^^^'"'"'^^°"
arbitration to be composed of Ave arbitnitors named:

One by the President of the United States,

One by Her Britannic Majesty,

One by His Majesty the King of Italy,

One by the President of the Swiss Confederation,

One by His Mnjesty the Emperor of Brazil;

And the President of the United States, Her Britannic Majesty, His
Majesty the King of Italy, the President of the Swiss Con- App...ntmentof«r.
federation, and His Majesty the EuJperor of Brazil having '''»"^°'^-'
respectively named their arbitrators, to wit :

The President of the United States, Charles Francis Adams, esquire ;

Her Britannic Majesty, Sir Alexander James Edmund Cock burn,
baronet, a member of Her Majesty's privy council, lord chief justice
of England;

His Majesty the King of Italy, His Excellency Count Frederick Sclopis,
of Salerano, a knight of the Order of the Annunciata, minister of state,
senator of the Kingdom of Italj' ;

The President of the Swiss Confederation, M. James Stampfli ;

His Majesty the Emperor of Brazil, his Excellency Marcos Antonio
d'Arauj6, Viscount d'ltajubd, a grandee of the Empire of Brazil, mem-
ber of the council ot H. M. the Emperor of Brazil, and his envoy extraor-
dinary and minister plenipotentiary in France.

And the iive arbitrators above named having assembled at Geneva (in
Switzerland) in one of the chambers of the Hdtel de Ville onnniMUoii or
on the 15th of December, 1871, in conformity with the terms *"'"*"'''
of the second article of the treaty of Washington, of the 8th of May of
that year, and having proceeded to the inspection and verification of
their respective powers, which were found duly authenticated, the
tribunal of arbitration was declared duly organized.

The agents named by each of the high contracting parties, by virtue
of the same Article 11, to wit :

For the United States of America, John C. Bancroft Davis, esquire ;

And for Her Britannic Majesty, Charles Stuart Aubrey, Lord Tent-
erden, a peer of the United Kingdom, companion of the Most Honor-
able Order of the Bath, assistant under-secretary of state for loreign
affairs ;

Whose powers were found likewise duly authenticated, then delivered
to ea^h of the arbitrators the printed case prepared by ^^^^^^ ^^^^^
each of the two parties, accompanied by the documents, the ' '*"''* **^
official correspondence, and other evidence on which each relied, in con-
formity with the terms of the third article of the said treaty.

4 B

50 ARBITRATION AT GENEVA.

In virtue of the decision made by the tribunal at its first session, the
Delivery of count, couutercase and additional documents, correspondence, and
tr-c^M^. evidence referred to in Article IV of the said treaty were

delivered by the respective agents of the two parties to the secretary of
the tribunal on the 15th of April, 1872, at the chamber of conference,
at the H6tel de Ville of Geneva.

The tribunal, in accordance with the vote of adjournment passed at
DHivery of .mu their sccoiid session, held on the 16th of December, 1871,
mentis rc-assembled at Geneva on the 15th of June, 1872 ; and the

agent of each of the parties duly delivered to each of the arbiti*ators,
and to the agent of the otlier party, the printed argument referred to
in Article V of the said treaty.
The tribunal having since fully taken into their consideration the
DHiberaiion. of trcaty, aud also the cases, counter-ca«es, documents, evi-
tribunni. deuce, and arguments, and likewise all other communica-

tions made to them by the two parties during the progress of their sit-
tings, and having impartially and carefully examineii the same,

Has arrived at the decision embodied in the present award:

AH-xrd.

Whereas, havingregard to the VI th and Vllth articles of the said treaty,
the arbitrators are bound under the terms of the said Vlth article, " in
deciding the matters submitted to them, to.be governed by the three
rules therein specified and by such principles of international law, not
inconsistent therewith, as the arbitrators shall determine to have been
applicable to the case ;"

And whereas the '' due diligence" referred to in the first and third of
Defioition of due thc sald Tulcs ought to be exercised by neutral governments
dii.gent* in exact proportion to the risks to which either of the bel-

ligerents may be exposed, from a failure to fulfil the obligations of neu-
trality on their part ;

And whereas the circumstances out of which the facts constituting the
subject-matter of the present controversy arose were of a nature to call
for the exercise on the part of Her Britannic Majesty's government of all
possible solicitude for the observance of therightsand the duties involved
in the proclamation of neutrality issued by Her Majesty on the 13th day
of May, 1861 ;

And whereas the eflfects of a violation of neutrality committed by
Krtect of a com- Hieaus of thc coustructiou, equipment, and armament of a
n.u..on. vessel are not done away with by any commission which the

government of the belligerent power, benefited by the violation of neu-
trality, may afterwards have granted to that vessel ; and the ultimate
step, by which the offense is completed, cannot be admissible as a ground
for the absolution of the offender, nor can the consummation of his
fraud become the means of establishing his innocence;

And whereas the privilege of exterritoriality aecorded to vessels of
Eiterriiomiiiy of War has bccu admitted into the law of nations, not as an
Teweuofwr. absolutc Hght, but solely as a proceeding founded on the
principle of courtesy and mutual deference between different nations,
and therefore can never be appealed to for the protection of acts done
in violation of neutrality ;

And whereas the absence of a previous notice cannot be regarded as a
Effect of want of fallure in any consideration required by the law of nations,
notice, iu those cases in which a vessel carries with it its own con-

demnation ;

And whereas, in order to impart to any supplies of coal a character
BappiietofcoaL incouslsteut with the second rule, prohibiting the use of

DECISION AND AWARD OP THE TEIBUNAL. 61

neatral ports or waters, as a base of naval operations for a belligerent,
it 18 necessary that the saiil supplies should be connected with special
circumstances of time, of persons, or of place, which may combine to
give them such character ;

And whereas, with respect to the vessel called the Alabama, it clearly
results from all the facts relative to the construction of the R„pon.ibiiityfor
ship at first designated by the number "290" in the port of «i.oitheAia»,am*.
Liverpool, and its equipment and armament in the vicinity of Terceira
through the agency of the vessels called the '' Agrippina" and the '' Ba-
hama,^ dispatched from Great Britain to that end, that the British gov-
ernment failed to use due diligence in the performance of its neutral
obligations ; and especially'that it omitted, notwithstanding the warnings
and official representations made by the diplomatic agents of the United
States during the construction of the said number " 290,^ to Uike in due
time any effective measures of prevention, and that those orders which
it did give at last, for the detention of the vessel, were issued so late that
their execution was not practicable ;

And whereiis, after the escape of that vessel, the measures taken for
its pursuit and arrest were so imperfect as to lead to no result, and
therefore cannot be considered sufficient to release Great Britain from
the responsibility already incurred ;

And whereas, in despite of the violations of the neutrality of Great
Britain committed by the " 290,'' this same vessel, later known as the
confederate cruiser Alabama, was on several occasions freely admitted
into the iK)rts of colonies of Great Britain, instead of being proceeded
against as it ought to have been in any and every port within British
jurisdiction in which it might have been found ;

And whereas the government of Her Britannic Majesty cannot justify
itself for a failure in due diligence on the plea of insufficiency of the
legal means of action which it possessed :

Foar of the arbitrators, for the reasons above assigned, and the fifth
for reasons separately .assigned by him,
Are of opinion —

That Grciit Britain has in this case failed, by omission, to fulfill the
dudes prescribed in the first and the third of the rules established by the
Vlth article of the treaty of Washington, 4

And whereas, with respect to the vessel called tkie "Florida," it results
from all the facts relative to the consCtuction of the "Oretp''

• •• ^<»T* 1 ij. * A^ • j_i_ /» « • 1 And of th« Florida.

m the port of Liverpool, and to its issue therefrom, which
facts failed to induce the authorities in Great Britain to resort to meas-
ures adequate to prevent the violation of the neutrality of that nation,
notwithstanding the warnings and repeated representations of the agents
of the United States, that Her Majesty's government has failed to use
due diligence to fulfil the duties of neutrality;

And where^as it likewise results from all the facts relative to the stay
of the " Oreto" at Nassau, to her issue from that port, to her enlistment of
men, to her supplies, and to her armament, with the co-operation of the
British vessel ^^Prince Alfred," at Green Cay, that there was negligence
on the part of the British colonial authorities ;

And whereas, notwithstanding the violation of the neutrality of Great
Britain committed by the Oreto, this same vessel, later known as the
confederate cruiser Florida, was nevertheless on several occasions freely
admitted into the ports of British colonies;

And whereas the judicial acquittal of the Oreto at Nassau cannot re-
lieve Great Britain from the responsibility incurred by her under the
principles of international law; nor can the fact of the entry of the

52 ARBITRATION AT GENEVA.

Florida into the confederate port of Mobile^ and of its stay there during
four months, extinguish the responsibility previously to that time incur-
red by Great Britain :

For these reasons,

The tribunal, by a majority of four voices to one, is of opinion —

That Great Britain has in this case failed, by omission, to fultil the
duties prescribed in the first, in the second, and in the third of the rules
established by Article VI of the treaty of Washington.

And whereas, with respect to the vessel called the *• Shenandoah," it re-
sults from all the facts relative to tlie departure from Lon-
.j^^h^lft/r^ieaTli don of thc merchant- vessel the " Sea King," and to the traus-
Meibouruc foriuation of that ship into a confederate cruiser under the

name of the Shenandoah, near the island of Madeira, that the govern-
ment of Her Britannic Majesty is not chargeable with any failure, down
to that date, in the use of due diligence to fulfil the duties of neutrality ;

But whereas it results from all the facts connected with the stiiy of
the Shenandoah at Melbourne, and especially with the augmentation
which the British government itself admits to have been clandestinely
effected of her force, by the enlistment of men within that port, that
there was negligence on the part of the authorities at that place :

For these reasons,

The tribunal is unanimously of opinion —

That Great Britain has not failed, by any act or omission, *^ to fulfil any
of the duties prescribed by the three rules of Article VI in the tre^ity of
Washington, or by the principles of international law not inconsistent
therewith," in respect to the vessel called the Shenandoah, during the
period of time anterior to her entry into the port of Melbourne ;

And, by a majority of three to two voices, the tribunal decides that
Great Britain has failed, by omission, to fulfil the duties prescribed by
the second and third of the rules aforesaid, in the case of this same ves-
sel, from and after her entry into Hobson's Bay, and is therefore re-
sponsible for all acts committed by that vessel after her departure from
Melbourne, on the 18th day of February, 1865.

And so far as relates to the vessels called —

The Tuscaloosa, (tender to the Alabama,)

And of theTuum- ,-,- ^~, ' ^ "

io«*H. ci«r.-iKt,Ta- Tfac Clareuce,
c.„,,aoaArc...r. Thc Tacouy, aud

The Archer, (tenders to the Florida,)

TlFe tribunal is unanimously of opinion —

That such tenders or auxiliary vessels, being properly regarded as ac-
cessories, must necessarily follow the lot of their principals, and be sub-
mitted to the same decision which applies to them respectively.

And so far as relates to the vessel called "Retiibution,"

The tribunal, by a majority of three to two voices, is of

for the Rptribntion. OpiniOU-^

{^.'ffie.^T^^^^^ That Great Britain has not failed by any act or omission

MH.,orch.tkamau««. ^^ fyi\^\ auyof thc dutics prcscribcd by the three rules of

Article VI in the treaty of Washington, or by the principles of inter-
national law not inconsistent therewith.

And so far as relates to the vessels called —

The Georgia,

The SumterJ

The Nashville,

The Tallahasse, and

The Ghickamauga, respectively,

DECISION AND AWARD OF THE TRIBUNAL. 53

The tribunal is unanimously of opinion —

That Great Britain has not failed,, by any actor omission, to fulfil any
of the duties prescribed by the three rules of Article VI in the treaty of
Washington, or by the principles of international law not inconsistent
therewith.

And so far as relates to the vessels called —

The Sallie,

The Jefferson Davis, »on Dav... mu.h.

wmmm -« r • IklHtOH, mid V. H.

The Music, Joy n»t t^t«>n into

>w«i -r^ . « consideration.

The Boston, and

The V. H. Joy, respectively,

The tribunal is unanimously of opinion —

That they ought to be excluded from consideration for want of evi-
dence.

And whereas, so far as relates to the particulars of the indemnity
claimed by the United States, the costs of pursuit of the con- cuim, lor ro.t of
federate cruisers are not, in the judgment of the tribunal, **"""'^"''""°'*^''
properly distinguishable from the general expenses of the war carried
on by the United Stutes:

The tribunal is, therefore, of opinion, by a majority of three to two
voices —

That there is no ground for awarding to the United States any sum
by way of indemnity under this head.

And whereas prospective earnings cannot properly be made the sub-
ject of compensation, inasmuch as they depend in their na- ^„d f^, pro.p«i
ture upon future and uncertain contingencies : ireeamin*^

The tribunal is unanimously of opinion —

That there is no ground for awarding to the United States any sum
by way of indemnity under this head.

And whereas, in order to arrive at an equitable compensation for the
damages which have been sustained, it is necessary to set s>t f„i,ht. oniy
aside all double claims for the same losses, and all claims for '""''^
" gross freights,'^ so far as they exceed '' net freights ;"

And whereas it is just and reasonable to allow interest at a reason-
able rate ;

And whereas, in accordance with the spirit and letter of the treaty

of Washington, it is preferable to adopt the form of adjudication of a

sum in gross, rather than to refer the subject of compensation for further

discussion and deliberation to a board of assessors, as provided by

/Article X of the said treaty :

' The tribunal, making use of the authority conferred upon it by Article
VII of the said treaty, by a majority of four voices to one, ^i5..v».ooo rom
awards to the United States a sum of $15,500,000 in gold, »^n-»»i«"«^"'i*«'^
as the indemnity to be paid by Great Britain to the United States, for
the satisfaction of all the claims referred to the consideration of the
tribunal, conformably to the provisions contained in Article YiL of the
aforesaid treaty, i

And, in accoroance with the terms of Article XI of the said treaty,
the tribunal declares that "all the claims referred to in the me payment to be
treaty as submitted to the tribunal are hereby fully, per- •*"'•
fectly, and finally settled."

Furthermore it declares, that "each and everyone of the said claims,
whether the same may or may not have been presented to the notice of,
or made, preferred, or laid before the tribunal, shall henceforth be con-
sidered and treated as finally settled, barred, and inadmissible."

In testimony whereof this present decision and award has been made

64 ARBITRATIOX AT GENEVA.

in dnplicate, and signed by the arbitrators who have given their assent
thereto, the whole being in exact conformity with the provisions of
Article VII of the said treaty of Washington.

Made and concluded at the Ilotel de Ville of Geneva, in Switzerland,
the 14th day of the month of September, in the year of our Lord one
thousand eight hundred and seventv-two.

CHARLES FRANCIS ADAMS.

FREDERICK SCLOPIS.

STAMPFLI.

VICOMTE dTTAJUBI.

IV.-OPINIONS OF THE ARBITRATORS.

1. Opinions of Count Frkdkrick Sclopis.

2. Opinions of Viscount d'Itajuba.

3. Opinions of Mr. Jacques St^mpfli.

4. Opinions of Mr. Charles Francis Adams.

5. Opinions of Sir Alexander Cockburn.

OPINIONS OF COUNT SCLOPIS.
I. The three questions of law on which the tribunal of

ARBITRATION, IN ITS SITTING OF THE 25TH JULY, 1872, REQUEST-
ED ELUCIDATIONS FROM THE COUNSEL OF THE HIGH PARTIES
PRESENT AT THE BAR.

In its sitting of the 25th July, 1872, on the proposal of Viscount
d'ltajub^, one of the arbitrators, tlie tribunal decided to require a writ-
ten or printed statement or argument from the counsel of Great Britain
upon the following questions of law :

1. The question of due diligence generally considered.

2. The special question as to the efifect of the commissions of confed-
erate ships of war entering British ports.

3. The special question as to supplies of coal in British ports to con-
federate ships, with the right to the other party to reply either orally or
in writing, as the ca«e may be ; the whole under the terms of Article V
of the treaty of Washington.

The questions refer to Article VI of the treaty of Washington, which
is as follows :

Article VI. In deciding the matters submitted, to the arbitrators they shall be gov-
erned by the following three rules, which are agreed upon by the high contracting
parties as rules to be taken as applicable to the case, and by such principles of inter-

Opiniorm du Comte Fr4d4ric Sdopin ftar les trois questions de droit sur lenquellfs le tribunal
tCarhitragCy dans sa seance du 2ojuillet 1872, a demand^ des ^claircissemenis aux conseils dts
kautes parties pr^entes d la bar re.

Dans la sdance du 25 juillet 1872, sur la proposition de M. le Vicomt*^ d^Itajnbii, Tun
des arbitres, le tribunal d^cida de demander au conseil de la Grande-Bretagne une
exposition on argumentation, dcrite ou iinprim6e, sur les trois questions de droit sui-
vantes :

1. La question des dues diligences, traitde d'une mani^re gdn^rale;

2. La qnestion sp^ciale de savoir quel a 6t6 Tetfet des commissions possMdes par
les vaisseaux de guerre {*>OBi'6(\6r68 qui sont entrds dans des porU britanniqnes;

3. La question spdciale des approvifionnements de charbon accord6s aux vaisseaux
cou{6d6T^Ji dans les ports britanniqnes.

Tont en r<^servaut ii la partie adverse le droit de ri^pondre, soit oralement, soit par
^rit, selon le cas, le tout aux termes de I'article V du trait<5 de Washington, les ques-
tions se rdf^rent ^ Varticle VI du traits de Washington, ainsi con^u :

**AUTICLK VI. Dans la decision des matit^res k eux soumises, les arbitres seront gnidc^ »

{»ar les trois regies suivantcs, dont les hantes parties contractantes conviennont de
aire ane application spdciale h cette question, et par les principes du droit des gens

56 ARBITRATION AT GENEVA.

national law not inconsistent therewith as the arbitrators shall determine to have bet
applicable to the ca^e :

RULES.

A nentral government is bonnd —

1. To nse due diligence to prevent the fitting ont, arming, or equipping, within it
jurisdiction, of any vessel which it has reasonable ground to believe is intruded t
omise or to carry on war against a power with which it is at peace; and also to us
like diligence to prevent the departure from its jurisdiction of any veasel intended t«
cruise or carry on war as above, such vessel having been specially adapted, in whole o
in part, within such jurisdiction, to warlike use.

2. Not to permit or suffer either belligereut to make use of its ports or waters as the
base of naval operations against the other, or for the purpose of the renewal or aug-
mentation of military supplies or arms, or the recruitment of men.

3. To exercise due diligence in its own ports and waters, and, as to all persons within
its jurisdiction, to prevent any violation of the foregoing obligations and duties.

Her Britannic Majesty has commanded her high commissioners and plenipotentiaries
to declare that Her Majesty*s government cannot assent to the foregoing rules as a
statement of principles of international law which were in force at the time when the
claims mentioned in Article I arose, but that Her Mt^jesty's government, in order tc
evince its desire of strengthening the friendly relations between the two countries, ant
of making satisfactory provision for the future, ageees that in deciding the questions
between the two countries arising out of those claims, the arbitrators should assume that
Her Majesty's government had undertaken to act upon the principles set forth in these
rules. And the high contracting parties agree to observe these rules as between them-
selves in future, and to bring them to the knowledge of other maritime powers, and to
invite them to accede to them.

8ir Roimdell Palmer, formerly attorney-general, on behalf of Great
Britain, General C. Cnshing, Messrs. Evarts and Waite, on behalf of
the United States, have been heard by means of tUeir respective argu-
ments.

cfui, sans 6tre en d^sjiccord avec ces r^glos^ aurout 6t6 reconnus par les arbitres comme
ayant <5te appiicables dans I'esp^ce :

" REGLE8.

" IJn gouvernement neutre est tenu —

" 1. De faire les dues diligences pour prdvenir Tarmement en gnerre ou r<5quipemont,
dans les limites oil s'exerce sa juridiction, de tout vaisseau qu'il pent raisonnablement
soupyonner etre destine i\ croiser ou faire la guerre centre une puissance avec laquelle
ce gouvernement est en paix; de faire m^me diligence pour empecher le ddpart hors
des limites de sa juridiction de tout navire destin<5 i\ croiser ou faire la guerre, comme
il est dit ci-dessus, quand ce navire aura 6A6 sp^cialement a<lapt<^, en tout ou en partie,
dans les limites de sa dite juridiction, h, des usages belligerants.

*'2. De ne permettre ni souffrir que Fun des bellig^rants fasse usa^e de ses ports ni
de ses eaux comme d'une base d'opi5rations navales centre I'autre belligi^rant, ni pour
lenouveler ou augmeuter ses munitions militaires et son armemeut, ou s'y procurer ses
recruls.

"3. D'exercer les dues diligences dans ces eaux, et d'emp^cher qu'aucune personne,
dans Teiiceinte de sa juridiction, ne viole les obligations et les devoirs prdcddents.

"Sa M}ijest<5 britannique a charg^ ses bants commissaires et pl<5nipotentiaires de
d^^clarer (jUe le gouvernement de sa Majest<5 ne saurait donner son asseutiment aux
regies prr^c^dentes comme i\ un expos^ de principes du droit des gens en vigueiir
an moment oil se sont dlev«5es les n^clamations mention^es h I'article I; mais, pour
donner uu temoignage de son ddsir de fortifier les relations amicales entre les deux
pays et de prendre en vue de I'avenir des precautions satisfaisantes, lo g')nvernpment
de sa Majest(5 consent :\ ce (pi'en (U^cidant les questions qui naissent de ces reclama-
tions entre les deux pays les arbitres tiennent pour accord^ que le gouvernement de
sa Majesty a voulu agir en conformity avec les principes ^noncds dans ces regies. Les
bautes parties coutractantes s'engagent ii observer ces r^gles dans leurs rapports
mutnels h Favenir, et h les porter a la connaissance des autres puissances mari times,
en les invitant si y adh<5rer."

Out ete entendus, dans leurs plaidoyers respectifs. Sir Ronndell Palmer, ci-devant
attorney-general, pour la Graude-Bretagne, MM. le gdu^ral C. Cnshing, Evarts et
Waite, i)our les fitais-Unis.

OPINIONS OF COUNT SCLOPIS. 57

. i. — Due diligence.

We are about to enter on the discussion of questions of principle.

'he first which presents itself, which will serve as a moral Duedu. ence

olestar in the opinions we shall Uave to form as we come " ""'"**

3 the different practical cases which await our decision, is the true sig-

ifieation to be attached to the words ^^due diligencej^ which have been

nployed in the first of the three rules laid down in Article VI of the

eaty of Washington. A lengthj' discussion has taken place between

e two powers as to the greater or less scope to be given to the

unification of these words. It assuredly ciinuot be said that there has

»en any want of explanations on this point. In the original American

fie we find the whole of a long passage from the Pandects of Ayliffe,

ith copious quotations from the works of Story and Jones, a« ,well as

atements of the practice followed on this point by the Supreme Court

the United States and by the Scotch courts, besides eleven simple

notations from different authors.

The original British case mentions '^due diligencej'^ and gives a defini-
tion of it, (p. 24 of the English text,) which is not absolute, and which
refers to historical facts. In its counter case the British government
enters into fuller explanations on the subject, (p. 2L of the English
text,) and it agrees with that of the United States in considering
that the words due diligence do not create any new or additional
obligation. They exact from the neutral, in the discharge of the duties
imposed on him, that measure of care, and no other, which is re-
quired by the ordinary principles of international jurisprudence, and
the absence of which constitutes negligence ; and to support this doc-
trine the British counter case cites a long passage from Eeddie's work,
" Researches in Maritime and International Law.' | Sir Roundell Palmer
takes these words in the sense that a neutral should employ all the legiti-
mate means in his power, attaching to these words a reasonable con-
struction. The United States seek to increase the measure of respon-
sibility, and they maintain that the belligerent has a right to require the

1. — "due diligence."

Nons allons aborder les questions de priucipes. La premiere qui s'offre ^ dos yeux,
celle qui nous servira comme de boussolo morale duns les appr<^ciations qu'il nous
faiidra faire, parcourant les difiVSrents cas pratiques qui attendeut notre di^cision, c^cst
la veritable sip^nificatiou ii attribuer aiix mots "due diligence," qui out 6t^ employes
dans la premiere des trois rJ^gles (^tablies par I'article vl du trait<S de Washington.
Uue longne discussion s'est dtablie entre les deux puissances sur le plus on le moins
d'6tendne qu'il fallait donner a la signification de ces mots. On ne pent pas dire
assur^Snient quMl y ait d6taut d'dclaircissemeuts sur cette mati^re. Dans le premier
'•Case" am^ricain, on nous a donn^ tout tin long passage des pandectes d' Ayliffe, de
copieuses citations des ouvrages de Story et de Jones, ainsi quo des indications de la
jurisprudence suivie dans la inatii>re par la Coar supreme des fitats-Unis et par les
cours <^cossaises; de plus, onze simples 9itations d'autenrs.

Le premier "Case" anglais parle de la "due diligence," et il en donne une diSftnition
(page 24, texte anglais) qui n'est point absolue, et qui s'en rapporte aux faits histo-
riques. Dans le " Counter-case," le gouTernement britannique entre dans de plus am-
ples explications a\ cet dgard, (page 21, texte anglais,) et il s'accorde avec celui des
^tats-Uuis ii considdrer que ces mots, les dues diligenceSj ne crdent aucnne obligation
nouvelle on suppldnientaire. lis exigent du neutre, dans I'accomplissement des devoirs
qui lui sent imposes, cette niesure de soin (et pas d'autre) qui est requise en vertu des
principos ordinaires de la jurisprudence internationale, soin dont I'absence constitute la
negligence et, pour appuyer sa doctrine, le "Counter-case" anglais prodnit un long
passage du livro de RMdie, " Kecberches sur le droit maritime et international." Sir
Roundell Palmer prend ces mots dans le sens qu'un neutre doit employer tons les moyens
legitimes en son ponvoir en donr.ant h ces mots une port<5e raisonnable. Les ^tats-
Unis dteudent le cas de responsabilitd et ils «ontiennent que le bellig<^rant a le droit de

68 ARBITRATION AT GEKEVA.

nentral to enforce its mnnicipal laws, and als<v the proclamations of it«
executive. They assert, moreover, that the belligerent has the right to
require that the powers with which the neutral is armed should be aug-
mented by legislative measures.

Copious explanations have been fuFnished on either side by the parties
in dispute.

It seems to me that the most simple method of arriving at a defini-
tive opinion upon the legal bearing of the question is to keep steadily
in view the following ideas :

The words due diligence necessarily imply the idea of a relation be-
tween the duty and its object: it is impossible to define a priori and
abstractly an absolute duty of diligence. The thing to which the dil-
igence relates determines its degree. I Taking the scale of degrees of de-
fault according to the Roman law, descending from the dolus by the
culpa lata and culpa levis to the culpa lerissitnaj we find that their appli-
cability changes according to the objects to which they refer. I pass
over the responsibility of the guardian, of the trustee, and several other
cases specified in the law, and will only cite as examples cases in which
responsibility is incurred by the culpa levis and even levissima. Such is
that, for instance, which attaches to persons charged with the care of
explosive sul^stances, or with looking after the safety of dams in time
of inundation, or in whose charge are deposited papers of exceptional
importance. All these persons, from the fact alone of their having ac-
\ cepted these functions, are bound to exercise an amount of diligence
I determined by the special object of these same functions.
^ In treating of political questions, the greatest extent which could be
given to the duties of diligence incumbent on a neutral would be to
require that he should act with regard to the belligerent as he would
act in similar circumstances in his own interest, f

It is undoubtedly right to take into account the requirements of a
belligerent with regard to a neutral, but these must not be pushed to
such a point as to embarrass the neutral in the normal exercise of his
rights, or in the organization of his administrative functions.

deniander au neutre de mettre k execution ses lois d'ordre int^rteiir ainsi que les pro-
clamations do son ponvior ex^cutif ; lis pr^teudeut, de plus, que le bellig^rant a le droit
de deiiiander que les pouvoirs dont le ueutre est arm^ soieut augmeut^} par mesure
legislative.

De graudes explications out 6t6 fonmies de part et d'autre par les puissances en
disaccord.

II uie paralt que la voie la plus simple pour arriver k fixer 16galement nos id^es sur
la mati^re est de se fixer sur les iddes suivantes:

Les mots diligence due, contienneut n^cessairement V\d6e d'un rapport du devoir k la
chose : il est impossible de d^finir d priori abstraitenieut uu devoir absoln de diligence.
C^est la chose £i laquelle cette diligence se rapporte qui en determine le degr<$. Prenons
r^cbelle des imputabilitds selon le droit romain, en partaut du dolus pour descendre
par la culpa lata et la culpa levis inaqu^k la culpa lerissimaj et nous trouverons que les
applicabilitds se modifient d'aprt^s les objets auxquels elles se r^fbrent. Je past^e sur
la respousabilite du tuteur, du d^positaire, et sAr plusieurs autres cas s}>ecifi<5s dand les
lois, pour ne citer que Texemple des cus oil la responsabilit^ est encourue par la culpa
leviSf on m6me par la levissima. Telle est celle, par exemple, qui frappe celui qui est
charge de garder des matieres explosibles, on qui doit veiller k la sflrete des digues
dans le temps des inondationn, celui qui garde uu d<5p6t de papiers d^une importance
exception nelle. Toutes ces personnes, par le scul fait qu'elles out accepts ces fonctions,
sont tenues d'exercer une diligence determiu^e par Tobjet special de ces memes
fonctions.

£n se portant sur le terrain politique, la plus grande etendue que I'on puisse
attribuer aux devoirs do diligence d'uu neutre sera de lui imposcr d'en agir k regard
du bellig6rant comme il agirait pour son propro int<Sr6t dans des cas analogues.

II est juste sans doute de tenir des exigences d'un belligerant k I'dgard d^in neutre,
mais il ue faut point les pousser au point de gduer le neutre dans Taction normale de
ses droits^ dans Torganisme de ses fonctions gouvernantes.

OPINIONS OP COUNT SCLOPIS. 59

I willingly admit, on the other hand, that the duties of the neutral
power cannot be determined by the laws which that power may have
maiie in its own interest. This would be an easy means of eluding
positive responsibilities which are recognized by equity and imposed by
the law of nations. There exists between nations a general law, or, if
it is preferred, a common tie^ formed by ecjuity and sanctioned by re-
spect for reciprocal interests; this general law receives especial develop-
ment iu its application to acts which take place at sea, where no
frontiers are marked out*, and where there is the greater necessity that
tiberty should be secured by a common law, without which it would /
be impossible to defend one's self by positive guarantees from the most V^
flagrant acts of injustice. This is what ])rompted the saying of one who
had been brought up in habits of servility, to say, " The Emperor is
master of the earth, but the law is the mistress of the sea."* I grant
then the right of the belligerent to require that the neutral should not
shelter his responsibility under rules made by himself in his own interest,
and I enter fully into the views of Article VI of the treaty of Wash-
ington, which simply gives the preference to rules of general equity t
over the provisions of any particular system of legislature, whatever it
may be. i

It does not, however, seem to me admissible that a belligerent should
be able to require of a neutral that, iu order to fulftll his neutral duties,
he should increase his military establishments or his ordinary system of
defense. This would be an encroachment on the independence of a state,
which is not bound to abdicate a portion of its material sovereignty
because it finds itself involuntarily in a special position with regard to
the belligerent. The neutral may be asked to put the powers of his
government into full activity in order to maintain his neutrality ; he can-
not reasonably be expected to modify the organization of his administra-
tive machinery to serve the interests of another power.

We must beware of rendering the condition of neutrals too difficult
and almost impossible. The importance of circumscribing war is a mat-

■ I ■ — . — , ■ — — - ■ - - I ■ . — — — ■ ^ —■ ■ ■-■■■■. ^l... ■ . ■ ■ I - II ^M— »

J'adinets volontiers, d'antre part, qne les devoirs du neutre ne puissent pas 6tre
ddterniin^ par les lois que cette puissance se serait faites dans son propre iut<^rSt.
II y anrait lii nn uioyen facile de se soustraire h, des respousabilit^s positives, que
r^uit^ reconnalt et que le droit des geus impose. Les nations ont entre elles uu droit
coiiimuiif ou, si on ainie roieux uu lieu conimuU; forni^ par I'^quit^ et sanctionn6 par le
respect des int45r6ts r^ciproques ; ce droit conimun se d^veloppe surtout en s'appliquant
anx faits qui sc passeut sur la mer, I(i oh les coutins ne sont point traces, oil la liberty
doit 6tre d'autant plus assurde par un droit cominun sans lequel il serait impossible de
se mettre ^ convert des plus flaj^rantes injustices par des garanties positives. C'est ce
qui faisait dire k cet ancien, nourri dans les habitudes du servilisme : " L'Empereur est
le nialtre de la terre, mais la loi est la maitresse de la mer.'' J'accorde, done, au
bellig^rant d'exiger que le neutre ne mette point k convert sa reponsabillit^ sous des
regies qu'il se serait tix^es dans des vues de son seul int6r6t, et j'entre pleinement dans
les vues de I'article VI du traits de Washington, qui ne fait que donner la pr^fdrence
anx regies de Tdquit^ gi^ndrale sur les dispositions d^une l<^gislation particuli^re quelle
qn'elle puisse 6tre.

II ne me paralt pas cependant admissible qu'un belligdrant puisse exiger du neutre
qne, pour remplir ses devoirs de neutrality, il augmente son pied militaire, son syst^me
ordinaire de defense. II y anrait 1}\ une infraction k I'iuddpendance de chaque 6tat, qui,
pour se trouver involontairement dans une position spdciale k Pdgard du belligdrant,
n'est pas tenn d'abdiquer uue portion de sa souverainetd matdrielle. On pent deuiauder
an neutre de mettre en pleine activit<S les ressorts de son gouvernementpour maintenir
sa neutralit<S ; on ne pent pas raisonnableracnt attendre de lui qu'il modifie I'organisa-
tion de sa machine gouvernementale, pour servir les iut<^T(3ts d'une autre puissance.

II faut bien se garder de rendre la condition des neutres par trop difficile et presque
•mpossible. On parle toujours de I'importance de circonscrire la guerre, et si ou acca-

"* Dix, lib. i, de Lege Rhodia.

60 ARBITRATION AT GENEVA.

ter of continual remark, and if neutrals are to be overwhelmed with a
burden of precautions and a weight of responsibility which is in excess
of the interest they have to remain neutral, they will be forced to take
an a<)tive part in the war; instead of a proper inaction we should have
an increase of hostilities. There will no longer be any medii between
combatants; the disasters of war will be multiplied, and the part of
mediators, which neutrals have often ut^deftaken and brought to a suc-
cessful conclusion, will forever disappear.

Let us then take a view which will Induce neutrals and belligerents
mutually to respect one another. Let us take as a basis the two condi-
tions of neutrality laid down by Dr. L. Gessner.*

These are :

1. To take absolutely no part in the war, and to abstain from all that
might give an advantage to one of the belligerent parties.

2. Not to permit on the neutral territory any proximate hostile act of
jone party against the other.

As to the measure of activity in the performance of the duties of a
neutral, I think the following rule should be laid down :

That it should be in a direct ratio to the actual danger to which the
belligerent will be exposed through the laxitj^ of the neutral, and in an
inverse ratio to the direct means which the belligerent can control for
arresting the danger.

This rule leads us to a solution of the question, so often discussed in the
documents presented, as to the initiative to be taken by the neutral in
order to preserve his neutrality to the profit of the belligerent.

Where the ordinary conditions of the country, or particular circum-
stances which have occurred on he territory of the neutral, constitute
a special danger for the belligerent, who has no direct means of protect-
ing himself from them, the neutral ts bound himself to take the initia-
tive in order that the state of neutrality may be maintained with regard
to the two belligerents.

ble les nentrcs d*un fardeau de pr<^caution8 et d'une rosponsabilit^ qui d^passe IMnt^r^t
qu'ils out k rester daus la neutralit^^ ou les forcera k preudre uue part active ^ la
guerre; au lieu d'une couveuable iuactiou,on aura uue au^nieutatiou dUiostilit^s. II
n'y aura plus de medii entro les combattauts; les ddsastres de la guerre se inultiplieront,
ec le r61e de nK^diateurs, que les ueutres out souvent eutrepris et couduit 4 boune tin,
sera eifac<5 k jamais.

Pla^ons-nous done h. ce point de vue qui puisse encager les ueutres et.les bellitr^rants
k se respecter mutuellement. Prenons pour base les deux conditions de ueutralit6
telles qu'elles sont pos6es par le docteur L. Gessner, c'est-^-dire que —

Les conditions de la neutrality sont :

1. Qu'on ue preuue absoluinent aucune part k la guerre et qu'on s'abstieuue de tout
ce qui pourrait procurer un avantago li Tune des parties bellig(5rantes.

2. Qu'ou ne tolbre sur le territoire ueutre aucune hostility immediate d'une partie
contre Tautre.

Quant k la mesure do Tactivitd dans raccomplissement des devoirs du neutre, je crois
qu'il serait k propos d'dtablir la formule suivante :

Qu^elle doit 6tre en raison directe des dangers rdels quo le bellig<5rant peut courir
par le fait ou la tolerance du neutre, et, en raisou inverse, des moyens directs que le bel-
fig^Tant peut avoir d^^viter ces dangers.

Cette formule nous couduit k r^soudre la question, si souvent ddbattuo dans les docu-
ments produits, de I'iuitiative k prendre par le neutre au profit du bellig<5raut pour
sauvegarder sa ueutralitd.

Ltk oil les conditions ordinares du pays, ou des circonstances particuliferes snrvenues
BUT le territoire du ueutre, constituent un danger special pour le bcllig^rant qui ne
peut avoir des moyens directs de s'y soustraire, le ueutre est tenu d'ciuployer son
initiative atin que r<Stat de neutrality se maiutienno k Tdgard des deux bellig^rants.

♦ " The Law of NeutraUty at Sea," Berlin, 1865, p. 22.

OPINIONS OF COUNT SCLOPIS. 61

This initiative may be taken either on account of a flagrant case of
some enterprise of one of the belligerents against the other, or on the
application of the belligerent denouncing a fact or a series of facts which
would constitute a violation of neutrality in regard to him, i. e., which
wouhl improve the position of one belligerent to the detriment of the
other.

It does not appear that the neutral conld in such case release himself
from responsibility by requiring the belligerent to furnish him with evi-
dence sufficient to institute regular proceedings before the courts. This
would be to reduce the belligerent to the condition of a mere subject of
the government of the country. The law of nations is not contented
with these narrow measures of precaution ; it requires a larger measure
of assistance. This is demanded not only by the comita^ inter gentes,
but also by the real necessity which nations are under to lend recii)rocal
aid and protection in order to maintain their independence and guaran-
tee their security.

The greater, then, the actual danger to the belligerent on the territory
of the neutral, the more is the latter bound to watch over his neutralitv
and to prevent its being violated to the profit of either of the belligfer- /
ents. ^

The matter appears under a somewhat different light when the bellig-
erent can, of himself, by the employment of his forces, hold his enemy
in check, even on the neutral territory. This case presents itself in par-
ticular when the geographical position of a state is sufficient of itself
to secure the means of promptly repressing any enterprise prepared on
the neutral territor3\ Under such circumstances the neutral would no
longer be bound to assume an initiative which would have no object. He
couhl not, however, from considerations of self-respect, allow his neu-
trality to l)e violated, and he would be bound to comply with any just
demand which might be addressed to him, in order to avoid atny kind of
connivance with one or other of the belligerents. »

If from abstract principles we pass to the consideration of the particular
facts for which the United States hold that Great Britain is responsible,

Cette initiative pent 6tre niise en mouveinent, soit par nn cas flagrant de qnelqne
eutreprim; de I'uu des bulIig<^rantD coutre rnutre. soit sur Piu8tance du bellig^rant qni
dduoiice nn fait on nue 8<^rie de faitH qni violeraient k son 6gard les regies de la neu-
tralit<^ — cVst-a-dire, qui rendraient uieilleure la position d'un bellig^raut an ddtriment
de cclle de I'autre.

II ne paralr pas qne 1e nentre pnisse, dans pareil cas, se ddcharger de sa responsabi-
lit<^ en fxigeant dn belligdrant qn'il Ini fonrnisse les preuves sutlisantes pour instituer
uue proce<lure r^^gnli^re devant lea tribnnaux. Ce serait r6duire le bellig^rant ii la
condition d^in simple snjet du gonvernenient dn pays. Le droit des gens ue se coutente
pas de ces 6troites niesures de prdcuutions: il lui faut plus de largeur d'a&sistance. Ce
n'est pas seulenient la comitas inter gentea qni la rdclaiue, c'est le besoin rdel qu'ont les
nations de se pr6ter rdciproqueinent aide et protection pour maintenir leur ind^pen-
dance et garantir lenr s^curit^.

Pins done il y aura pour le belligdrant de dangers r<§els sur le territoire du neutre,
plus celui-ci sera teun de veiller sur sa neutrality, en empSchant qu'elle ne soit viol^
an profit de Pun on de Tantre des belligerants.

La chose se prdsente nn peu ditlVSreninient lorsqne le bellig^rant peut, k lui senl, par
I'emploi de ses forces, tenir en dchec son ennenii, memo sur le territoire nentre. Ce cas
se pr^sente surtout lorsqne la position g^ograpbique d'un ^tat sutlit d'elle-m^nie h
assurer les nioyens de rdprimer promptement tonteentreprise prdpar6e sur le territoire
nentre. Dans ces circonstances le nentre ne serait plus tenu de prendre une initiative
qui serait sans objet. II ne pourra pas cependant tol<$rer, par respect pour lui-nidme,
qn'on viole sa neutralit<S, et il sera tenu de d<Sldrer h toute juste demande qu'on lui
adresserait d'^viter toute esp^ce de connivence avec Tun on I'antre des bellig6rant8.

Si des principes abstraits nous passons ii la consideration des faits particuliers snr
lesqnels les ^tats-Unis croient que la responsabilit^ de TAngleterre est eugag6e, none

62 ARBITRATION AT GENEVA.

we must commence by discussing the construction of ships, and thecir-
cumstances under which such construction took place. Indeed, the fact
of the construction of the vessels, of their armament and equipment,
and of the export of arms, assumes a different aspect a<;cording to the
circumstances of the time, the persons, and the localities in which it
occurred. If the government on whose territory the iicts take place is
aware of a permanent state of atii'airs, leading to a decided probability
that such construction, armaments, and exports will be effected with the
object of assisting the designs of a belligerent, the duty of vigilance on
the part of the government becomes more pressing, jnd exists toagreater
extent.

British unfriendliness.

The British government was fully informed that the confederates had
est^iblished in England a branch of their means of attack and

British unfriendliness. i « » a a i tt ' a y c^a . r^ •• a

defense against the United States. Commissioners represent-
ing the government of Richmond were domiciled in London, and had put
themselves in communication with the English government. Lord Russell
had received these confederat-e representatives in an unofficial way. The
first visit took place on the II th of May, 1861, that is to say, three days
before the Queen's proclamation of neutrality, and four days before Mr.
Adams arrived in London as the minister of the United States; and
further, the English government could not but know that great commer-
cial houses were managing the interests of the confederates at Liver-
pool, a town which from that time was very openly pronounced in favor
of the South. In Parliament itself opinions were before long openly
expressed in favor of the insurgents. The Queen-s ministers themselves
did not disguise that, in their opinion, it would be very difficult for the
American Union to re-establish itself sis before. Then, strange to say,
the most influential members of the House of Commons were seen to
detach themselves, on this question, from the ministry of which they
had been the powerful supporters. The voice of Mr. Cobden and that
of Mr. Bright were raised in favor of the United States. The Ameri-

devoiis d^abord parler de la construction des navires et des circonstances an miliea
de8quelle8 ces constructions eurent Hen. Le fait, en effet, de la construction des vais-
seanx, de leur armement et ^quipenieut, de I'exportation des amies de guerre, prend
un aspect diifdrent, selon les circonstances des t^emps, des personnes et des lieux oil il
s'acconiplit. Si le gouveruement sur le territoire duquel le fait so passe a connaissance
d'un dtat de eboses permanent, auquel vienne se rattacber une probability inarqn^
que de semblables constructions, armenients et exportations se fassent dans le but de
servir aux projets d'un bellig^rant, le devoir de surveillance de la part de ce gouveme-
ment devient plus ^tendu et plus pressant.

Le gouvemeiuent britannique <5tait pleinement inform^ que les conf((^d6r^ ani<^ri-
caius du sud avaient ^tabli eu Angleterre couime une succursale de leurs moyens
d'attaque et de defense vis-^-vis des l^tats-Unis. Un comity de repr^sentauts du gou-
vernenieut de Kicbniond avait ^i6 4tabli li Londres, et il s'6tait mis en rapport avec le
gonverueineut anglais. Lord Russell avait re^u les d6I^gu6s des conf^d^r^s, mais sans
caractbre olficiel. La premiere visite avait eu lieu le 11 mai 1861 — c'est-^-dire, trois
jours avant la proclamation de neutrality de la reine et quatre jours avaut I'arriv^e de
M. Adams h Londres eu quality de niinistre des £tats-Unis. Le gouveruement anglais
ne pouvait pas ignorer uon plus que de fortes maisons de commerce soignaient les in-
t^r^ts des conf^d^r6s b, Liverpool, ville tr^s-prononc^e d^s lors en favour de TAmdrique
dusud.. II ue tanla pas ^ se prononcer en plein Parlement une opinion tout ji fait
favorable aux insargls du sud. Les ministres de sa Majdst^ la Reine, eux-m6mes, ne
dissimul^rent point que dans leur mani^re de voir il ^tait tr^s-difficile que TUnion
am^ricaine pClt se r^tablir telle qu'elle etait auparavant. Alors, chose Strange, on vit
des membres les plus influents de la Chambre des communes se detacher, sur cette
question, du minist^re, dont ils avaient ^t^ de puissants anxiliaires. La voix de M.
Cobden et celle de M. Bright se firent entendre en favour des ^tats-Unis. Les Amdri-

OPINIONS OF COUNT 8CLOPIS. 63

cans of the North could have had no advocates more devoted to their
cause, and they did not fail to take advantage of their authority. These
great movements of public opinion in contrary directions formed as it
were all atmosphere of agitation which ought to have kept the British
ministry on its guard, in order that it mighD succeed in maintaining i>er-
fectly equal relations with the two belligerent parties.

Let us now turn from these n^narks on the fact^ to the consideration
of the special law of the question. In the first of the rules laid down
in Article VI of the treaty of Washington, mention is made of the due
diligence to prevent the building, equipment, and arming of vessels,
which a government is bound to exercise, when it has reasonable ground
to believe that this building, arming, and equipping are for the purpose
of furnishing warlike aid to one of the belligerents.

The same words ow!ur again in the third rule, while they are want-
ing in the second. " Why soF asked Lord Cairns in the debate on the
treaty which took place in the House of Lords on the J 2th June of last
year. It seems to me that it might be answered: because, in the case
of the first and third rules there is room for investigations of persons
and circumstances to ascertain the facts denounced, whereas the second
relates to a series of evident facts on whicdi no inquiry need be made as
regards credibility.

" What," continued the noble lord, " is the standard by which you can
measure due diligence f Due diligence, by itself, means nothing. What
is due diligence with one man, with one i)ower, is not due diligence with
another man, with a greater power."

Duediligence, then, isdetermiued,in my opinion, asl have already said,
by the relation of the matter to the obligation imposed by law. But what
is the measure of the svfficient reason f It will be furnished by the princi-
ples of the law of nations, and the character of the circumstances. And
here, not to leave the question in ambiguity, I will examine some of the
propositions contained in the argunn'ut of Her Britannic Majesty's
counsel on the first of the points mentioned by the tribunal in its reso-

eaiDS dii Dord De ponvaient avoir d'avocats plus d6von68 k leur cause, et lis ne man-
querent pas de se pr6va1oir de leur an tori te. Ces grands mouvenients de ropinion
pablique dans des sens opposds Tun h Tautre formaient comine one atmosphere d^igita-
tioD, qui devait tenir 6veil16 1e rainist^re britauniqne, afin de pouvoir se maintenir
dans de« rapports parfaitement <^gunx avec les denx parties bellig^rantes.

P.'issons maintenant de ces remaiqnes snr les faits ik des consid<^rations sur ce droit
special. Dans la premiere des regies poshes k Particle VI du trait<$ de Washington, il
est parl6 de la due diligence h enipdcher les constructions, 6qnipemeuts et armenients
de vaisseaux qu'un gouvernement est tenu de d^ployer quand il a un '' reasonable
ground '' de croiro que ces constructions, armements et dquipenients ont pour objut
d'aider, pour Tusage de la gnerre, un des belli^^rants.

Les mdmes mots se retrouvent dans la troisienie r^gle ; ils manqnent danslaseconde.
" Ponrquoi cela f deraandait Lord Cairns dansla discussion sur le traits susdit, qui eut
lieu dans la Chambre de pairs le 1*2 juin de Pann^e derni^re. II me semble qu'ou
ponrrait r^^pondre : c'est parce que dans les cas de la premiere et de la troisi^me r^^le
il y a lien 4 des investigations de personnes et de choses pour certifier les faits m-
criniin^s, an lieu que la seconde se rapporte ^ une sdrie de faits 6vidents, sur lesquels il
n'y a pas de recherches h faire en mati^re de credibility.

^'Qnel est done F6 talon,'' poursuivait k dire le noble lord, ''d'apr^s lequel vous
ponvez mesnrer la due diligence? Due diligence^ ^ elle seule, ne signifie rien. Ce qui
est due diligence avec tel homme et tel gouvernement ne Test plus avec tel autre
homrae, tel autre gonvernement plus puissant/'

La du€ diligence se determine done, k mon avis, ainsi qne jo Pai d^jh dit, par le rap-
port des choses avec Pobligation iniposde par le droit. Mais quelle est la mesure de la
raimm suffintntef Ce sont les principes dii droit des gens et la quality des circoustances
qui nous la donneront. £t ici. pour ne pas rester dans le vague, j'examinerai (^[uclques-
unes des propositions contenues dans Pargument du conseil de sa Majesty britannique
sur le premier des points indiqn^s par le tribunal dans son arrdt^ du 24 juillet. Je ne

64 ARBITRATION AT GENEVA.

lution of the 24th July. I will be guided by my owq views only, while
rendering full justice to the s,ubllety of reasoning, and to the wealth of
learning displayed by the illustrious advocate who has drawn up this
document, worthy of being placed in the same rank with the equally
remarkable papers which hiifve emanated from the pen of the counsel of
the American Government.

I read, at page 4 of this argument, that the case of a vessel which
leaves the neutral country unarmed is entirely diflFerent from that of an
armed vessel, sold to a belligerent within neutral territory, which leaves
that territory fully capable of offense and defense, under the control of
the belligerent purchaser ; that dej)arture of the former vessel is no
operation of war ; that she is guilty of no violation of territory, of no
hostile act.

It seems to me that, when a vessel has been built and fitted out for
war, there are strong reasons for believing that it has been purchased
for the service of a belligerent, and that it will suddenly go to sea.
There are strong grounds for supposing that, at a short distance from
the territorial waters, arms and munitions will be brought to that ves-
sel, fittings made to measure. It is exactly the case, to use an expres-
sion of Sir Roundell Palmer, as reported in his speech in the House of
Commons on the 13th May, 1864, to act upon suspicion^ or upon moral be-
lief going beyond suspicion. The fraud is too easily perpetrated not to be
presumed upon its face. All that is necessary to complete it is that
arms and engines of war of every kind should be shipped on board a
vessel strictly mercantile, and that this vessel should meet the other on.
the high seas, or in neutral waters different from those of the territory
from which she originally started. It is the story of the Prince Alfred,
the Laurel, the Alar, the Agrippina, and the Bahama, of all these com-
binations, which cannot, in my opinion, in any way diminish the re8i>ou-
sibility incurred by the Alabama, the Florida, the Shenandoah, the
Georgia^ &c.

These evasions by fragments, this complication of different forms of
action with one identical object, should not mislead the mind of the

nie laiHscrai guider que par mes propres vues, toiiten rendaDt pleine et eoti^re justice
h la tiuesse des observations ct k la richesso de la doctrine de Tillustre jurisconsulte
r<?dacteur de cette pi^co digne d'etre iiiise sur line lu^iue ligne avec les autres dgale-
lueiiT reiiiarquables sorties de la plume des couseilsdii gouveruenient ani6ricain.

Je Hh, ii la page 4 de cet. arguuieut, que le C2i« d'un navire qui quitte lo pays iieutre
sans anuement est tout h fait ditlV^reut du cas d'uu uavire qui, armd en guerre, vendu h
un belligL^rant sur le territoire neutre et en dtat d'attaquer et de se d6fendre, quitte ce
lerritoire sous Tautoritd de Tacbeteur belligerent, que son d<§part n'est en aucune
fafon uue op<5ration de guerre ; qu'il n'est coupable d'aucune violation du territoire
neutre, ni d'aucun acte hostile.

II nie paralt que lor8qu%in vaisseaa a 6t^ construit et pr6pard pour la guerre, qu'il
y a de fortes raisons de croire qu'il est acbet<$ pour le conipte d'un bellig^rant et qu'il
va soudain prendre la mer. II y a bieu des motifs de supposer qu'ii pen de distance des
eaux territoriales on ap[>ortera^ ce vaisseau des amies et des munitions, des vdtements
^ sa taille. Cest bien le cas de se servir d'une {dirase de Sir Roundell Palmer — *'to act
upon HUHpicion^ or upon moral btlief going beyond simpidon^' — qu'on lit dans son discours h
la Cbambre des communes le 13 Mai 18G4. La fraude est trop facile pour qu'elle ne
doive pas <^tre pr^sum^^e. II sufiira de charger sur un vaisseau, strictement de commerce,
des arnies et des engius de guerre de toute sorto, et que ce vaisseau rejoigne le premier
en haute mer, ou dans des eaux neutres dift<6reutes de celled du territoire primitif d'oii
il est parti, pour que lo tour soit fait. C'est I'histoire du Prince Alfred, du Laurel, de
TAgrippina, et du Bahama — de toutes ces combi liaisons qui ne pourraient, ^ mon avis,
diminuer en rieu la responsabilit^ qu'auraieut encourue 1' Alabama, le Florida, le She-
nandoah, le Georgia, &.c,

Ces <Svasion8 par fragments, cette complication de formes d'actionditfi^rentes, dans an
int<ii-6t ideutique, ne doivent point fourvoyer I'esprit du juge. Un vaisseau tout pr6-

OPINIONS OF COUNT SCLOPIS. 65

judge. A vessel, thoroughly fitted out for war, leaves the shores upon
which it has been built without receiving its armament; a simple mer-
chant-vessel is charged with the transport of its armament; the place
of meeting is fixed, and there the arming of the vessel is completed.
The trick is done. But the judge cannot allow his reason and conscience
to be led justray by such stratagems. On the contrary, the maneuver
will only demonstrate more clearly the criminality of both vessels.

I return, then, to what was said by Sir Robert Peel in a memorable
8i)eech delivered in the House of Commons on the 28th April, 1830. '' If
the troops were on board one vessel and their arms in another, did that
make any difference!'^ and I do not hesitate to say that if the vessel
^as fitted out for war and ready to receive her armament, and her arms
were on board another vessel, it made no difference.

I confess that I do not quite understand the true meaning of what I
read at page G : '' With respect to the three niles,^^ (those laid down by
Article VI of the treaty of Washington,) ^^it is important to observe that
no one of them pretends thai it is the duty of a neutral (jovernment to prevent^
under all circumstances ichaterer^ the acts against tchich they are directed,''^
If such is not the dut^' of a government, the cases in which it is neces-
sary to observe them, and those in which it is not, should have been
8i)ecified. Tbe intention of making general the observance of these
rules se<^ms to me to be explicit. The solemn words, '' a neutral govern-
ment is bound^^' and the final clause of this article, not less solemn, that
the high contracting parties engage not only to observe these rules as
between themselves, for the future, but also to bring them to the knowl-
edge of other maritime powers, and to invite them to accede to them,
prove this incoiitrovertibly.

How, then, can we suppose that there exist circumstances, foreseen
and admitted by the high contracting parties, in which these rules are
not obligatory, unless such circumstances are exi)ressly mentioned i

Undoubtedly it is necessary that a case for the application o^ these
rules should be made out regularly, and based on sutticient grounds ;

par^ ponr la guerre qiiitte, sana recevoir sou arincmeut, les pliiges sur lesquelles il a
H^ coustrnit ; un vaisHcaii tout simplenient de coiiiineree se charge tie transporter
rannenent ; le lieu du reiidez-vons est fix<^, lik se complete rarniemeiit en guerre du
vaisMjan. Le tour est fait, Mais la raison et la conscience du juge ue peuvent se laisser

Erendre h ces ruses. Bien au contraire, ce iuau»5ge ue servira qu'a uiieiix faire ressortir
\ culpability? des deux vaisseaux.

J'eu reviens done a ce que disait Sir Robert Peel dans un m<5niorable disconrs pro-
nonc«5 a la Chanilirc des communes le *^>* avril lr<30: "Si les troupes etaient sur nu
vaisseaa et. les amies sur un autre, cela fai»ait-il une ditft'?rence ? " Et je n'bdsite point
iidire, si le vaisseau etait appareill(5 pour la guerre et pret }\ recevoir Tarmemeut, et
les aruies ^taient sur un autre navire, cela ne faisait aucune ditference.

J*avoue que Je ne me rends pas bien compte de la veritable portce de ce que je lis i\
la page 6: '^'^ Pour ce qui coucente ces Iroia reyU's,''^ (celles etablies par Tarticle VI du
traite de Washington,) **t<f eat important de remarqner qiCanvune iVelles ne pretend qnUl soit
du dcroir d^un gouvernement neutre d'empecherj dans tona les cas^ les actes centre lesqneh elles
$ont r^digees^ Si tel n'est pas le devoir d'un gouveruenient, on aurait dfi si>ecitier les
cas oil il etait n<?ces8aire de les observer et ceux oil il ne I'cSrait pas. L'intention de
generaliser Tobservance de ces r^gle8 me parait formelle. Les mots solennels — *' a neu-
tral government is hound^^ — et !a clause tinale de cet article, uon nioins solennelle, quo
les hantes parties contractantes 8'engageut,uon-8eulementj\ observer ces r^gles entre
elles dauH Taveuir, mais eucore iiles porter alaconnaissaucedes autres puissances mari-
times et h. les iuviter h y acceder, le prouveut a Tevidence.

Comment done pourrions-nous supposer qu'il existe des eirconstances pr<5vue8 et
avenges par les hautes parties contractantes oti ces regies n'obligent pas, sans qu'ou
en ait fait mention expresse ? ,

Certes, il fant que le cas d'application de ces regies soit d<5termin<^ rcguli^remeut et

5 B

66 . ARBITRATION AT GENEVA.

hut wlieii this is established, the rules must have full and unrestricted
operation.

These rules, according to the manner in which they are laid down,
constitute an obligation based on the general law of nations, and it
would be to change their nature, to destroy their eftect completely, to
admit, as is contended iu the argument of Her Britannic Majesty's coun-
sel, that the measure of due diligence to be exercised must be drawn
from the rules and principles of legislation peculiar to each of the con-
tracting parties ; that is to say, that the generality and breadth of the
rule may be limited by the municipal law.

No, assuredly, such could not have been the intention of the high
contracting parties in framing the sixth article. England lias declared,
it is true, that she could not assent to the foregoing rules as a statement
of principles of international law which were in force at the time when
the claims mentioned in Article I arose; this is a simple retrospective
question of the. sense and interpretation of the law. But from the
moment wheil England, with the view of strengthening the friendly
relations between the two countries, and of making satisfactory provis-
ion for the future, consents that these rules should be binding for the
past also, she must consider them as provisions of the general law of
auations, conventional, if you please, but superior to any provision of
municipal law. It is not, iu my opinion, to strain the nature of interna-
tional law, to require that it should be applied without any admixture
of political interests by the powers who have accepted it. I agree that
we^eannot require the execution of what is actually impossible. That
,is a^ase of controlling force; ad hnpossibile nemo tenet ur. But I refuse
to reci)gnize the political imiyosHihility appealed to in the argument of
Her Britannic Majesty's counsel. Nothing can be more elastic than
these words; it would be to abandon this vital part of the treaty to the
currents of temporary interests, of the accidents of the moment. It
would be said : Yes, I consented to lay down the rule, but I have not
the means of carrying it out; so much the worse for the rule.

avec line raison suffisante ; mais; cela po86, les regies doivent oii<5rer de pleiu droit,

. et sans auciine restriction.

Ces rb;jle«, de la fayou dont elles sont <5tablie8, constituent une oldif^ation fondee sur
le droit des gens g6n<^ral ; et ce serait en changer la nature, en detruire complctemeut
I'ettet que d'adniettre, ainsi que le voudrait Vargumeut dn conseil dc sa Mnjesto britan-
nique, que la mesure des dues diligences h employer, il faut la d<Miver des regies et
des principeade la li^gislation propre a cbacuno des parties contractantes — c'est-a-dire

' que la g<^n^ralite et la grandeur de la regie pourront etre souniises a des limitations
par la loi municipale.

Non, pour sftr, telle n\a pu ^tre I'intention des bantes parties contractantes en
r<^digeant I'articlo VI. L^Angleterre a d(^clar<5, il est vrai, qu'elle n'entendait point ad-
inettre que les r^gle« pr<^eit<^e8 eussent le caraetree de principes de droit international
en vigueur h I'dpoque oti les reclamations <5nonct'es il I'article I du traite prirent uais-
sanct^, ; c'est lii une simple question retrospective d'intelligenee et d'interpretation
de droit. Mais du moment que I'Angleterre, en vue de ratl'ermir les rapports d'amitie

. entre les deux nations et de pourvoir d'une maniere satisfaisante aux exigences
de I'avenir, consent h ce que ces regies fassent autorit<5, menie pour le passe, elle
doit les consid^rer comme des dispositions de droit des gens gei^eral, eonventionnel si
I'on vent, mais sup<^rieur il toiite disposition de droit municipal. Ce n'est pas, a mon
avis, ontrci' la nature du droit des gens que d'exiger qu'il.soit appliqud sans melange
4l'int6ret politique par les puissances ipii Tout accepte. Je suis d'accord (lu'on ne
puisse pas demander qu'on ex(5cute des choses natarellement impoHHihles ; e'est le cas de
la force majeure: ad imposHibih nemo tenetur. Mais je me refuse ;Y reeonnaitre Vimposn-

^bilile politique invoqude dans Vargumeni du conseil de sa Majeste britanniqne. Kien
n'est plus eiastique que ces mots; ce serait livrer l'exi5cution de cette partie vitale du
tTait<^ aux courants des inti^r^ts t^^mporaires, des accidents du moment. On dirait :
Qui, j'ai consenti il poser la regie, mais les nioyens d'y satisfaire me manquent ; tant
pis pour la r^gle.

OPINIONS OF COUNT SCLOPIS. • 67

I add, in conclusion, that there is no ground to fear that the applica-
tion of these rules can go so far as to violate the principles on which
national governments rest. The nature of the engagement does not
reach that point. It is very possible that their application may some-
times embarrass governments in their political conduct; but it will
more often prevent disorders capable of leading to misfortunes which
could not be sufficiently deplored.

The rules of the sixth af tide of the treaty of Washington are des-
tined to become principles of universal law for the maintenance of neu-
trality. The very text of the treaty says so, and Mr. Gladstone and
Loixl Granville have always, and with reason, insisted on this prospect-
ive benefit to civilization. In order to realize it, the several govern-
ments must take measures to obtain fitting powers for the execution of
the law. As regards the past, there have been great discrepancies on
this point in the legislation of different nations. The United States,
with their district attorneys, their marshals, and organized police offi-
cers, were better assisted than England was, with its customs and
excise officers only. I do not doubt that these views will be received,
if the treaty of Washington is to-be carried out in earnest, and it would
be a great misfortune if it were not.

I do not think it is absolutely necessary for our purpose to discuss
the observations which have been made respecting different quotations
from the work of Sir Robert Philliraore, nor to dwell on the compara-
tive study of the legisLations of America and England in matters of neu-
trality. This may be more useful when framing regulations to be made
iu pursuance of Article VI of the treaty.

It is to be hoped that this process of rectifying or supplementing the
precautions to be taken in order to insure the execution of the treaty
to its full extent will not be delayed.

We have witnessed the anxiety of England to modify her neutrality
laws on the breaking out of the war in 1870 between France and Ger-
man v.

J*ajonte, i)onr en fiuir, quMl n'y a pas h craindre que Tapplication de ces regies
pnisse arriver aa point do violer les priucipes sur lesqnels reposent les gouvernements
Datiouaux. La nature de I'engagemeut ne va pas j usque liH. II est tres-possible que
cttte application g<^ncqueIquel'oi8les gouvernements dans leur conduite politique, luais
eile enip^cbera plus sonveut de^i ddsordres capables de prodnire des malbeurs qu'ou ne
saurait assez d<^plorer.

Le8 regies de I'article VI du traitcS de Washington sont destinies h> devenir des
principes de droit comniuu pour la garantie de la neutrality. Le texte niOnie le dit, et
M. Gladstone et Lord Granville out toujours, et avec raison, insists sur cette prc^vision
d'un bieufait acquis h, la civilisation. Pour que cela so rdalise, 11 faudra que les
ditforents gouvernenients prennent des luesures atin d'avoir les moyens convenables
pour exdcuter la loi. Pour le pass<5, il y avait de grandes vari^t^s en cette mati^re
dans la legislation des diffdrents peuples. Les Iltats-Unis, avec leurs attorneys de dis-
trict, leurs niari^cbaux, otficiers de police organisde, <5taieut niieux assist<?s que I'Angle-
tcrre, avec ses senls employes de la douane et de I'accise. Je ne doute point que I'on
nVntre dans ces vues, si Fexdcutiou du traitd de Wasbiugton doit 6tre cbose sdrieuse;
el ce serait nn grand uialbeur s'il ne I'dtait pas.

.Je pense qu-ilu'cst point absolunient n<5ce8saire pour uotre ^tude de discuter les ob-
servations qu'ou a faites toucbant dilferentes citatious du livre de Sir Robert Philliniore,
ni de nous arreter sur I'dtude des legislations conipar^es d'Ainerique et d'Angleterre en
fait de neutrality. Cela pourra niieux servir quand on travaillera aux r^glements j\
faire d^jjendaniment de I'article VI du traits.

II est k espo.rer que cette rectification, ou ce supplement do precautions k prendre
pour assurer I'execution du traite dans toute son etendue, ne se fera point attendre.

Nous avons vu la sollicitude do I'Angleterre j\ modifier ses lois sur la neutralite i\
I'ouverture de la guerre, en 1870, eutre la France et TAllcmagne.

68 ARBITRATION AT GENEVA.

Why should we not hope for equal anxiety now to conform to the let-
ter and spirit of the treaty of Washington f

I come to the application of the considerations I have put forward.
It results from this, according to my views, that the English govern-
ment found itself, during the first years of the war of secession, in the
midst of circumstances which could not but have an influence, if not
directly upon itself, at least upon a part of the population subject to the
British Crown. No government is safe against certain waves of pub-
lic opinion which it cannot master at its will. I am far from thinking
that the animus of the English government was hostile to the Federal
Government during the war.

Yet there were grave dangers for the United States in Great Britain
and her colonies which there were no direct means for averting. Eng-
land, therefore, should have fultillrd her duties as a neutral by the ex-
ercise of a diligence equal to the gravity of the danger. I need
only here rei)eat a passage from a report of the law-officers of
Her Britannic Majesty, given in reply to a request of Lord Rus-
sell, on the 12th December, 1863. Speaking on the subject of the
Georgia, the law-officers observe that the facts resulting from the depo-
sitions received fiinmh additional grounds to those already existing for
strong remonstrance to the confederate government on account of the sys-
tematic violation of British neutrality by their agents in British territory,
(British Appendix, vol. i, p. 440.)

It cannot be denied that there were moments when its watchfulness
seemed to fail, and when feebleness in certain branches of the public
service resulted in great detriment to the United States. The con-
sequences of such feebleness can be no other than a reparation for the
damages suft'ered. Earl Russell writes to Lord Lyon«, in a letter of the
27th March, 18C8, that ^'he had said to Mr. Adams that the cabinet
were of opinion that the law was sufficient, but that legal evidence could
not always be procured. That the British government had done every-
thing in its power to execute the law ; but that he admitted that the

Pourqiioi ne pa« esp^rer qu'on sera empresses aiijourd'hui t\ se conformer ^ la lettre et
h I'cspiit ties stipulations de Washington ? '

J'eu viens h I'application des consi(l45rations que j'ai faites. II r^sulte h nies yeux
que le gouvernemcut anglais s'est trouvo, ])cndant Ics preniitres auuees de la guerre
de la Kceession, au milieu de circonstauoes qui n'ont pu qu'avoir une inlluence, si ce
n^st directuient sur lui. du moins sur une partie des populations sonmiscs a la couroune
d'Angleterre. Nul gouvernement n'est h Tabri de certaines seeousses de Topinion pu-
blique, qu'il n'e^t pas libre do niaitriser a sou gr<5. Je suis loin de pouser cpie Vanimits
du gouvernemout anglais ait 6t6 hostile pendant cette guerre au Gouvernement I'e-
d<^ral.

Cependant, il existait de graves dangers en Anglcterre et dans ses colonies pour les
;f5tats-Unis, qui n\avaient aucun moyen direct de les conjurer. II faillait done que
TAngleterre mlt, k garder les devoirs de la ueutralit<^, une diligence corfespondante ;\
la gravit<5 de ces dangera. II me suflit de rappeler ici un passage d*une consultation
des conseillers l<^gaux de sa Majestc britannique, t^mise, sur I'invitation de Lord Rus-
sell, le 12 dc^cembre 1863. Parlant au sujet du Georgia, ces conseillers observaient
que les faits resultant de dispositions revues ^"foiiniiHsaiaii desraisons Aajoulerd, cellcf qui
exifitaient dejd pour adreaaer de I'ivcfi rtinontrance.H au gouvernement confMe're\ apropos de la
violation nystematique de la neutrality angUme^ commxse par ses agents sur le territoire britan-
nique.^' (Appendice britannique, vol. i, p. 440.)

On ne saurait nier toutefois qu'il y eut des momenta oti la rigueur de surveillance
parflt faiblir. De \h des defaillances dans certaines parties du service public, qui ont
tournd au grand d^savantage des fitats-Uuis, et la cons<5quence de ces defaillances ne
pent 6tre autre qu'une reparation de domniages soufferts. Le Comte Russell <$crit h
Lord Lyons, dans une lettre du 27 mars 186:{, qu'il "avait dit ii> M. Adams que le cabi-
net <?tait (Fopinion que la loi sufflsait, mais qu'on n'avait pas pu tonjours apporter des
preuves IcSgalesJ que le gouvernement de la Grande-Bretagne avait fait tout co qui
6tiiit en sou ponvoir pour exdcuter la loi; mais qu'il recounaissait que les cas de

OPINIONS OF COUNT SCLOPIS. 69

cases of the Alabama and Oreto were a scandal, and in some degree a
reproach, to the Britsh laws."

Subsequently, at the very moment when he made the motion praying
tlie Queen to refuse to ratify the treaty of Washington, Earl Eussell
candidly admitted that the Queen's proclamation of May 13, 18G1, en-
joining neutrality in the unfortunate civil war in North America, had
several times been practically set at naught on British territory by the
acts of parties.

The obstacles which, at the moment when the letter which I have just
quoted was written, fettered the action of the British goveinment, no
longer exist, thanks to the liberal principles imposed by Article VI of
the tieaty of Washington ; but the consequences of the acts which Earl
Bussell so candidly and so energetically condemned, still exist ; and it is
to the reparation of these damages in a just measure, and based always on
sufficient grounds, that the decisions oi' the tribunal of arbitration should
tend.

I will dilate no further on this point. As to the disposition which
should prevail to make provision for the future, I need only cite the
Biitish foreign-enlistment act, passed on the 9th August, 1870. This
act shows what progress has been made in the means for preserving
neutrality.

The three rules laid down in Article YI of the treaty appeared to the
English ministry less embarrassing for' the government than the act I
have just alluded to. " There is not one of these rules,'' said Lord Gran-
ville in the House of Lords on the 12th June, 1871, " which is not com-
pletely covered by that act, and it even goes fnrther than they do." The
retrospective character of these rules forms their especial character,
which governs the whole question submitted to the decision of the
arbitrators.

n.— VESSELS WHICH HAVE RECEIVED COMMISSIONS.

If we consult the most esteemed authors on public international law,

I'Alabamact de TOreto avaieDt 6t6 un scandale et en quelque degr^un reproche aux lois
an^laiscH."

Plus tard, au moment m6me ofi il faisait la motion de supplier la Reiue de refuser la
ratification du traits de Washington, le Comte Russell avouait loyalcment que la
proclamation de la Reine du 13 mai 1861, enjoignant la neutrality dans la nialbeureuse
guerre civile de TAmdrique du Nord, avait ii^ plusieurs fois pratiquement rdduito h
uoant sur le territoire anglais pur le fait des partis.

Lea obstacles qui, au moment oh la lettre que je viens de citer fut dcrite, entra%Tiient
Taction du gouvernenient britaunique n'existent plus, grftce aux principes libdraux
impost par Tarticle VI du traits de Washington ; mais \q» cons<5quences des faits, que
le Comte RusseU r(?prouvait si loyalement et si (5nergiquemeut, subsistont encore, et
c'est ;\ rdparer ces dommage« dans une juste mesure, et ton jours avec Tappui d'uue raison
suflLsante, que doivent tendre les decisions du tribunal d'arbitrage.

Je n4rai pas plus loin sur ce terrain. Quant k Tesprit de prdvoyance qui doit prdva-
loir ^ I'avenir, U suffit que je cite le foreign-enlistment act de la Grande-Bretague, votd
le 9 aoi\t 1870. Get acte nous montro quels progr6s on a fait quant aux moyens de
maintenir la neutrality.

Les trois regies posces ^ Particle VI du traits out paru au ministi^re anglais moins
g^nantes pour le gouvernenient que Facte que je viens de citer. " II n'y a pas une seule
de ces regies," disait Lord Granville h la Chanibre des lords le 12 juin 1871, ** qui ne
8oit comprise dans cet acte, qui va m^me beaucoup au-del^." La r<5troactivitd de ces
ri^gles en forme le caract^re spdcial, qui domlne toute la mati^re soumise au jugement
de8 arbitres.

II. — VAISSEAUX DEVENUS NA VIRES COMMISSIONN^S.

Si noas consultons les auteurs les plus accrddit^s de droit public international, et par-

70 ARBITRATION AT GENEVA.

and especially two writers of great weight, whose authority will be denied
Kfl>ct of commi* neither by America nor by England, namely, Story and
•"°"» Phillimore, we find that the privilege, usually accorded to

ships of war, of being considered as a ])ortion of the state whose flag
they carry, and being thus exempt from all other jurisdiction, was in its
origin a privilege only granted by courtesy.* As this privilege is only
derived from the usage of nations, it can be canceled at any moment
without cause for offense being given.

The opinion of Story, delivered in the case of the Exchange, and
quoted by Phillimore, appears to me decisive :

"It may, therefore," he says, "be justly laid down as a general proposition, that
all persons and property within the territorial jurisdiction of a sovereign are amenable
to the jurisdiction of himself or his courts: and that the exceptions to this rule are
such only as, by common usage and public policy, have been allowed, in order to pre-
serve the peace and harmony of nations, and to regulate their intercourse in a manner
best suited to their dignity and rights. It would, indeed, be strange, if a license, im-
plied by law from the general practice of nations for the jiurposes of pence should be
construed as a license to do wrong to the nation itself, and justify the breach of all
those obligations which good faith and friendship, by the same implication, impose
upon those who seek an asylum in our ports."t

Taking these general principles, and above all the eteirnal rules of
good sense and the dictates of good faith, as our point of departure, is
it possible to admit that a vessel, which has been fraudulently built on
the territory of a sovereign, in open contravention of the duties of neu-
trality which that sovereign is bound to fulfill, and with the object of
privateering on behalf of one of the belligerents, can, by the simple act
of such belligerent, with a view to escape disasters, be transferred
into a commissioned vessel, and thus, with impunity, defy that same

ticulii^rement deux <5crivains d'un grand m<?rite, dont Tautorit^? ne sera desavouee, ui
par I'Auic^rique, ni par I'Augleterre, tels que Story et Pliilliniore, nous troiivons (|ue le
privil<^ge, g^ndralement accord^ aux bA,tiineuts de gm*rre, d'etre consid^rt^s comme une
fraction de I'etat dout ils portent le pavilion, et par la exempts de toute autre juridic-
tion, n'a <5te originairement qu^me coucession faite par courtoisie. Comme cette c(^u-
cession ne d(?rive que de I'usage des nations, elle peut etre r<^voqu6e k quelque <Spoque
que ce soit, sans que cela puisse ^tre con8id«5r6 coinme une olfense.

L'opiiiion de Story, (Snoncee dans le cas de TExchange, et rapport<5o par Phillimore,
me parait decisive :

" On peut," dit-il, " ^tablir avec justice, comme proposition g«5n<5rale, que toute per-
sonne et toute propri^t<!?, dans la juridiction territoriale d'un souverain, sont sonniises
a la juridiction de ce souverain ou de ses cours de justice; et qu'il n'y a d'exceptions
i\ cette rt^gle que celles uniquenient qui sont admises par I'usage conimun et par la
politique publique, dans le but de maintenir la paix et rbarmonie entre les nations, et
de regler leurs rapports de la fayon la mieux d'accord avec leur dignite et leurs droits.
II scrait, en vt5rit*^, fort <5trange qu'une autorisation, quo le droit a tacitement deduite
de la pratique g<5u6rale des nations, dans des vues favorables :\ la paix, pflt etre iuter-
pretee conune une autorisation de faire du mal ii ces niernes nations, et co»)ino justifi-
cation de I'iufraction de ces devoirs, que la bonne foi et I'aniitid, provenant de la meme
source, iniposent a ceux qui chercheut un itsile daus nos ports."

En partaut de la g<5neralite de ces principes, et snrtoiit de,s regle.s de lYternel bon
sens, et des inspirations de la bonne foi, est-il possible d'admettre qu'un navire, qui a
Hv frauduleusement construit sur le territoire d'un souverain, en pleine contravention
aux devoirs de ueutralit<5 que ce souverain est tenu de remplir, et dans le but de se
livrer a la course dans I'int^ret d'un des belligerants, puisse, par le seul fait de ce bel-
ligerant, en vue de se soustraire ji des chances nialheureuses, etre transfornid en vaisseau
comniissionu«5, et braver par lil impuntSnient cette niOme souverainete qu'il avait ;\ son

* Phillimore, " Commentaries upon International Law," vol. i, p. 399, et seq. Second
edition, 1871.

t Ibid, p. 401. Lampredi does not admit that a vessel on the high seas can be
considered by other nations to be a part of the territory of the state whose flag slie
carries; he recognizes this ajjisumption of territoriality only in respect to the internal
nuiuagement of the ship and the civil and political relations of those ou board of her.

OPINIONS OF COUNT SCLOPIS. 71

sovereigT'ity against which she had at the outset so gravely offended ?
Assuredly not; these changes to the eye, like the shifting of a scene,
these transformations, effected with equal audacity and ease, cannot be
taken seriously. The contravention of which the ship was guilty at the
eommenceinent of her career, with respect to the sovereign of the place
where she wjis built, is not effaced by the operation of an indecent
stratagem. All the written maxims of reason revolt against such
trickery : dolus ncmini patrocinari debet We must look to the bottom
of the matter, and mete out full justice to the fraud ; plus valet quod
a{jitur quam quod simulate concipitur. The guilt inherent to the vessel
will not be purged even when she has received a commission, a com-
mander, and a flag from the power who can only profit by the fraud in
tiaijrant violation of all the rights of neutrality.

The weighty authority of Story, in the case of the Santissima Trini-
dad, is generally quoted with regard to the question now raised before
us, (and I have myself quoted him.) But I Observe that Story's doc-
trine, on the respect due to the commission given to a ship by a govern-
ment, is only a general thesis on which everybody agret^s; it does not
directly touch on the question of the original guilt incurred by a vessel
before her commissioning, and which cannot be blotted out without a
•disturbance of aV the principles which govern the duties of neutrality.

After all, even if precedents could be quoted contrary to the opinion
which I maintain, I should reply that the letter and spirit of the three
rules laid down in the sixth article of the treaty of Washington do not
allow us to follow the old ruling.

It must be steadily borne in mind that it is a new law, full of equity
and foresight, which we are now to follow.

It is true that, according to generally-accepted ideas, a sovereign who
is no longer willing to grant the privilege of exterritoriality to the com-
missioned ships of other powers, must previously give notice to that
effect, so that foreign navies, forewarned, may take their precautions in

debut si gravement offensive f Non, en vdrit6: ces chanjieiTients h vuo, coramo s'il
s'agissait ties decors d'un th<5}\tre, ces trausformatioiis opi^rc^es avec autant d'aiidace
que de fjicilit^, ne penvtMit point Atre pris an 8<^rieux. La contravention dont ce
navire sV'tait rendu coupablc au commencement de sa carriere, envers le soiivorain da
lieu oil il a 4tv construit, ne s'efface point par I'effet d'une ruse ind^cente. Tontcs los
uiaxiuieH de la raison ecrite sVjlevent contre de senibabh^s supercheries ; dolus ncmini
patrocinari debet. 11 faut re^arder le fond de la chose et faire bonne justice de la simu-
lation ; plus valet quod agitnr quam quod simulate concijntur. Le vice inherent au vais-
seau ne disparaitra point quaud meme il aura re^u uue patent<>, un commandant et uii
pavilion de la puissance qui ne tend qu'a protiter de la fraude, en contradiction ouverte
u tous les droits de neutrality.

On cite ordinairement, j\ propos de la question qu'on a 80ulev<5e devant nous,
Fimposante autoritd de Story (que j'ai moi-meme invoqude) dans le cas de la
Santi.sima Trinidad. Mais .{'observe que la doctrine de Story, sur le respect dft a la
eommissiou dont un ^ouverncment a revetu nn navire, n'est qu'uue these g<^m(5rale, sur
laquelle tout le monde est d'accord ; elle ne touche pas directement jY la question du
vice d'origine contracte par un navire avant qn'il soit commissionn(^; vice d'ori^ine
<|ui ne pent s'effacer sans troubler tous les principes qui gouvernent les devoirs de la
neutrality''.

Apres tout, qnand m^ine on pourrait citer des pr<?c^c1ent8 contraires j\ I'opinion que
je soutiens. Je rt^pondrai que la lettre et I'esprit des trois regies poshes ii Particle
VI du trait^ de Washington ne nous permettent plus de suivre I'aneienne juris-
prudence.

II faut se mettre bien dans I'esprit que c'esfc un droit nooveau, tout imbu d'dquito et
de prt'voyance, que nous devons suivre mainteuaut.

II eat vrai (pie, selon les id<*e8 gt^ndralement re^Mies, un souverain qui ne vent plus
accorder le privildge <l'exterritorialit<< anx navires commissionn^s des autres puissances,
d<»it en donner pr^alablement avis, atin que les marines etrangeres, averties, prennent
leurs b(iret<^d ii cet <5gard. Mais cela ue veut pas dire qu'il ne puisse y avoir d'oxceptiou

72 ARBITRATION AT GENEVA.

this respect. Bat this does not mean that there raay not be exceptions
arising from a certain special train of circumstances, and not from the
simple caprice of the sovereign and his government. Now, it is on the
nature of these special circumstances that the first rule, laid down in
Article VI of the treaty of Washington, specifically rest«. Tiie operation
of this rule would be illusory if it could not be applied to vessels subse-
quently commissioned. The object in view is to prevent the construc-
tion, arming, and equipping of a vessel, and to prevent her departure
when there is sufficient ground for believing that she is intended to
carry on war on behalf of one of the belligerents; and when probability
has become certainty, shall not the rule be applicable to the direct and
palpable consequeuctes which it originally was intended to prevent!
Can this act, in vindication of a right which has at the first been obvi-
ously violated, be looked upon as a violation of public good faith and
of tlie law of nations in regard to one of the belligerents? I can see no
violation of public good faith where there is only a flagrant abuse, a
manifest contravention of the principles of neutral duties sanctioned by
the foregoing rule.

The honorable attorney-general, in the memorable speech which he
made in the House of Commons on the 13th of May, 18G4, in reply to Mr.
Baring, formally declared '' that he had not the least doubt that Eng-
land had the right, if she thought fit, to exclude from her ports any
particular ship, or class of ships, if she considered that they had violated
her neutrality, but that such power is simply discretionary, and should
be exercised with a due regard to all the circumstances of the case.''
(United States Documents, vol. v, p. 583.) Why was not, then, thivS
right exercised at least with respect to the vessels which had flagrantly
violated the duties of neutrality t

I will not follow the argument of the United States in thd distinction
it seeks to draw between public ships of recognized and sovereign na-
tions and the ships belonging to a belligerent power whose sovereignty
is not recognized. The status of belligerents having been accorded to

d<?rivant tVun certain ordre de faits sp^ciaux, et non du simple caprice da souverain et
do sou goiiverueraent. Or, c!e8t sur la nature do cos faits spc^ciaux qne la premiere
regie pos<^o h Tartiele VI du traits de Washiugtou s'appuie precisenieut. La
disposition de cette r«igle scrait parfaiteuient illusoiro si on ue I'appliquait pas anx
cas de vaisseaux postdrieurement com mission u<5s. On veut ompc^cher la construction,
I'armoment et r<5(|uipemont d^in vaisseau, en empechor la sortie quand il y a raisou
suftisante de croire que ce \iiis8eau est destine it faire la guerre an profit d'un des
belligdrants; et quand les probabilites auront fait lieu ii la certitude, la regie ne sera
plus applicable dans les con8d([uences directes et palpables qu'elle voulait d'abord
emp{*cher. Get acte de revendication d'un droit, qui a 616 evidemment viol^ an
commencement, pourrait-il ^ti*e envisage commo une violation do la foi publique, ainsi
que dn droit des gens, en vers Tun des belligerants ? Je ne 8aui*ais voir violation de la
foi publique la on il n*y a qu'un abus llagrant, une contradiction manifeste aux
principes des dev^oire du neutre sanctionn^^s par la regie pr<5citde.

L'honorable attorney-general, dans le m«^morable discours qu'il a prononc^ dans
la 8<5ance de la Cliambre des communes le 13 mai 1864, en response a celui de M.
Baring, a formellement (I6clar<5 "n\v avoir le moiudre doute que I'Angleterre a le droit
d'exclure de ses ports, si elle le croit convenable, tout vaisseau on toute classe de
vaisseaux, si elle croit que ces vaisseaux out viol<5 la neutralit<^ ; mais que ce droit est
tout simplement discretion nai re et doit s'exercer eu dgard j\ toutes les circonstances du
-cas." (Documents produits par les fitats-Unis, vol. v, p. 583.^ Pourquoi done n'a-t-on
pas au moins us6 de ce droit h I'egard des vaisseaux qui <Staient en contravention
llagrante aux devoirs de la nentralitc!^ f

Je ue suivrai pas le plaidoyer des ^Ctats-Unis dans la distinction quMl propose
entre les navlres publics des nations reconnues et souveraines d'avec les navires
appartenant ii une puissance belligc^rante qui n'est pas une souveraineto reoonnne.
L'^tat de belligd.rant ayant 6X6 reconnu des deux c6t«5s des ]K)pulations americaines, il
n'est point ndcessaire d'iusister sur cette question; je dirai avec le juge amdricain

OPINIONS OF COUNT SCLOPIS. 73

both parties in America, it is not necessary to dwell on this question.
I will say, with the American Judge Grier, "foreign nations recognize
tkat there is war by a proclamation of neutrality."*

The fact that a vessel, after having been commissioned, has been re-
ceived as a ship of war in the ports of different powers before her en-
trance into the ports of the power whose neutrality she had originally
violated, should not, in my opinion, influence the recognition of the
character of such vessel. Where the vessel had no liability to answer
for.it wiis natural that she should be admitted as a ship of war; but
circumstances entirely change when the vessel enters the territorial
waters of the sovereign towards whom she is guilty, of the sovereign
whom she has compromised as regards the other belligerent. Here her
{ruilty character cannot be overlooked ; she may be seized and con-
demned.

I think that it is for the interest of all maritime nations that they
should hold to the principles which have just been propounded. The
naniber of vessels fraudulently built on neutral territory, with the in-
tention of privateering on behalf of belligerents, will decrease in pro-
portion as increased severity is shown towards them, even when they
present themselves under the protection of false pretensions to which
they are not entitled.

The powers which signed the treaty of Washington express, in this
same Article VI, the desire and hope that the three rules which they
have there laid down will be adopted by the other maritime powers.
It must then be inferred that the signing powers considered these rules
a« clear, precise, and applicable to the various cases which are therein
contemplated. If, on the contrary, it is to be supposed that the inten-
tion of the contracting parties at Washington was to admit explana-
tions and reservations of these same rules in the sense '*of not largely
traoscending the views of international maritime law and polic}^ which
would be likely to commend themselves to the general interests and in-
telligence of that portion of mankind," t the advantage of the example

Grier: ^'Les nations 6trang^res reconnaissent qu'U y a guerre par une proclamation d^
neutrality."

La circonstance qu'iin vaisseau, devenu commissionnd, ait 6t6 re^u comma vaissean
(le guerre dans des ports des diflV^rentes puissances avaut que d'entrer dans des. ports
de la puissance dont il avait d^abord viol^ la neutralit(5, ne me paralt point devoir
influer sur la reconnaissance du caract^re de ce'navire. Lt\ oil ce vaisseau n'avait
aucnne comptabilit^ h r<?gler, c'dtait naturel qu'il fftt adniis comme batinient de
guerre; mais la chose change totalement d(>s que ce vaisseau entre dans les eaux
territorialea du souverain envers lequel il s^est rendu coupable, du souverain qu^il a
compromis vis-jVvis de Tautre belligc^rant. Ici on ne pent lui faire remise de sa
penality ; il pent otre saisi et condamne.

Je pense qu'il est de I'int^ret de toutes les nations maritimes de sV-n tenir aux prin-
cipe^ que Ton vient d'<5noncer. 11 y aura d'autant moins de constructions frauduleuses
snr uu territorie neutre de navires destin<?s {\ la course en faveur de belligdrants qu'il
y aura plus de 8<5v<5rite envers ceux-ci, lors m6me quails se prdsenteraient sous de pr6-
teudues garanties, qu'ils ne in(?ritent pas.

Les puissances signataires du traitd du Washington expriment. dans ce niAme arti-
cle VI, le desir et I'espoir que les trois regies qu'elles y out dtablies soient adoptees
par les autres puissances maritimes. II faut en conclure que les puissances signataires
ont euvi8ag<5 ces r^gles comme claires, prdcises, et applicables aux diflV^rents cas qui y
sont contempl6s. S'il fallait snpposer, au oontraire^ que Tintention des parties contrac-
tante« h. Washington <^tait d'admettre des explications et des reserves sur ces mdmes
regies dans le sens " de no pas d<^pa88er de beaucoup les id<fes de loi et politique
maritime interuationale qui avaient le plus de chances de se faire agr6er des int^r^ts

*In the recent case of the Hiawatha, British prize, captured by the United States at
the commencement of the civil war.

t Argument of Her Britannic Majesty's counsel on the points mentioned in the reso-
lution of the arbritrators of July 20, i872, p. 70.

74 ARBITRATION AT GENEVA.

given would be entirely lost. The uncertainty of its interpretation
would always endanger the stability of the rule.

ni. — SUPPLIES OF COAL.

I can only treat the question of the supply and shipment of coal as
(.of coal connected with the use of a base of naval operations
suppheao coal. (jirectcd agaiust one of the belligerents, or as a flagrant
case of contraband of war.

I will not say that the simple fact of having allowed a greater amount
of coal than was necessary to enable a vessel to reach the nearest port
of its country constitutes in itself a sufficient grievance to call for an
indemnity. As the Lord Chancellor of England said on the 12th. of
June, 1871, in the House of Lords, England and the United States
equally hold the principle that it is no violation of international law to
furnish arms to a belligerent. But if an excessive supply of coal is
connected with other circumstances which show that it was used Jis a
veritable res hostilis^* then there is an infringement of the second rule
of Article VI of the treaty. It is in this sense also that the same Lord
Chancellor, in the speech before mentioned, explained the intention of
the latter part of the said rule. Thus, when I see, for example, the
Florida, and the Shenandoah choose for their field of action one, the
stretch of sea between the Bahama Archipelago and Bermuda, to
cruise there at its ease, and the other, Melbourne and llobson's Bay,
for the purposes, immediately carried out, of going to the Arctic seas,
there to attack the whaling- vessels, I cannot but regard the supplies

<j;<?n(^.nuix et de cette partio de I'hiimanit^," ravanta<:o de I'exemple doniit^ scrait
entierement perdu. L'iiiterpr<5tation flottaute oiiipieterait toujoiirs sur la fenuet*^ de
la li'gle.

II.— APPRO VISIONS EM KNT DE CHAIIBON.

Quant j\ la question de I'approvisionnemeut et du chargcuient de charlion, je dc
saurais la traiter que sous le point de vue d'un cas couuexe avec Tusage d'une base
d'opdrations navales dirig^es centre I'un des belligtlrauts, ou d'uue cas llagraut de
coutrebande de guerre.

Je ne dirai pas que le simple fait d'avoir allou6 uue quantit<^ de cliarbon plus forte
que et'llo u<f'cessaire aux vaisseauxt pour regaguer le j)ort de leur pays le ]dus voisiu
constitue a lui seul uu grief sutlisaut pour donuer lieu h uue iudeuiuitd. Ain.si que le
disait le cbaucelier d'Aiiglv^terre le I'ijuui J87l,i\la Cliauibre des lords, TAu^loterre
et les l^tatsUuis se tieuueut dgalement attaeln^s au priucipe pratique qu'il u'y a pas
violation du droit des gens ou fouruissaut des amies aux belligorauts. Mais si vjX
excddaut de proportion dausl'approvisiounemcnt de charbon vieutse joindre a d'autres
eircoustanees qui marqueut qu'on s'en est servi couuue d'une veritable I'dt hosUlin,
alors il y a infraction li la deuxieme regie do Particle VI du traite. Cost dans cr
sens aussi quo le nienie lord cbancelier expliquait dans le diseours precite la portee de
la deruiere partie de la dito r«^gle. Aiusi, lorsqueje vois, par exenq)le, le Florida et le
Sbeuaudoab cboisir pour leur champ d'action, Tun, Tespace de nier (jui est entre
I'archipel des iles Bahamas et les Berniudes, pour y croiser a sou aise; Tautrc, Melbourne
et la baie de Hobson, avec le dessein, ex<?cute immddiatement apri's, de se rendre daus
les mors Arctiques, pour y attaquer les baleiniers, je ne puis m'empecher de considt^rcr

*The learned Lampredi, speaking of contraband of war, says: *'Two concurrent
circumstances are necessary in order that these articles should assume the character
of contraband:

" 1. They must have actually become the property of the enemy, or, at least, be dis-
posed in manner that they may so become.

"2. They must have been sent out of the territory subject to the neutral and pacific
sovereign. They then brcome its hoslllia; they assume the character of contraband
goods, &c." (G. M. Lampredi, " Of the Commerce of Neutral Nations in time of AVar.'*)

OPINIONS OF COUNT SCLOPIS. 75

of coal in quantities sufficient for such purposes as infringements of the
second rule of the sixth article.

IV. — THE ALABAMA.

The vessel which has had the unenviable privilege of giving its name
to the mass of claims advanced b}^ the Government of the
United States against the government of Her Britannic
Majesty was the object of anxious care . on the part of the representa-
tives of the United States from the time when she was in course of con-
stnietion.

The contract for her construction had been concluded between Cap-
tm Bullock, a known agent of the confederates, on the one part, and
Messrs. Laird on the other. She was evidently a vessel of war. She
was of about 900 tons, was 230 feet in length, 32 in breadth, and 20 in
depth ; when provisioned and supplied with the coal necessary for a
craise she drew 15 feet of water. Her engines were of 300 liorse power ;
she carried eight guns, six broadside and two on pivots, one forward,
the other abaft the main-mast. On the 15th of May, 18G2, the vessel
was humched under the name of the 290, her buiUling number in the
yard. Formal representations were addressed to Lord Kussell by Mr.
Adams on the 23d of June, in which he made an express demand
that the projected expedition should be stopped, or else that it should
be established that the purpose of the vessel was not hostile to the
people of the United States. Mr. Adams based his statements on pub-
lic report, on special presumptions, and on a letter intercepted by the >
Government of the United States. k

Lord Kussell referred the matter to the proper department of Her
Britaunic Majesty's government. A report was received from the cus-
toms officers in which it was said that the builders of the vessel did not
attempt to disguise what was, in fact, apparent, namely, that she was
intended for a ship of war. The British government promised to keep
special watch upon her. The system adopted by the customs officials

les charpeinents de charl3on on qnantit6 analogue au besoiu de ces exp<5dition8 comme»
des infractious i\ la deuxieme regie de Tarticle VI.

l'alabama.

Lc vaissean qui a eu le triste privil<^<;ode donner son nom il^la luasse der<^claniatlous
adre:*^e8 par h; Gouvfinenieiifc des I^^tats-Unis au gouvemeuiont do sa Miijestd britau-
niqne, a ote Tobjet de vives sollicitudes de la part des reprdseutants des ^tats-Unis des
le temps oil il etait en coustruction.

Le coiifrat pour cette construction avait ^A6 conclu par lo capitaine Bullock, agent
eouDn des conf(^d<^rds, d'une part, et par MM Laird de I'autre. C\^tait (ivideunneut uu
vaisseau de guerre. II etait d-envirou 900 tonucs, avait 2:50 pieds de loug, Ii2 de large,
•20 de proloinleur ; quand il dtait ai)provn.sioune et ctait pourvu do cliarl)«)n n<^ce.ssairo
a nno croisiere, son tirant 6tait de 15 pieds. Sa macliine dtait de la force de 300 cbe-
vanx ; il etait arni<5 d^buit canons, six sur les vM6h et deux a pivot places, I'un al'avant,
I'antre a I'arriere du grand milt. Le 15 mai 1862, le vaisseau fut lancd sous le nom de
'*290," cliitlre de construction au cbantier. Des r«5clamation8 formelles furent port(5e8
k Lord RuJ^sell par M. Adams le 23 juiu; il y dtait express<Smeut fait demander d'ar-
reter I'expi'dition projet<:?e, ou bieu d'^tablir que le vaisseau n'avait pas d'inteutious
hos^iles coutre le peupb^ des f!tats-Unis. M. Adams se foudait sur la voixpublique, sur
le« presoniptions spi^'ciales, et sur un© lettte iuterceptee par le Gouvernemeutdesfitats-
Unis.

Lord Russell remit raffairo au ddpartement compc^teut du gouvernement de sa
Majest*^ britaunique. II s'ensuivit un rapport des ofticiers des douanes, daus lequel il
e.st dit <\nv les coustructeurs du navire u'essayaient pas de dissimuler un fait tres (Evi-
dent, savoir, qu'il etait destintS h devenir un vaisseau de guerre. Une surveillance 8p<5-
ciale fut promise de la part du gouvernement britaunique. Lo systt^me adoptd par les

76 ARBITRATION AT GENEVA.

during the whole course of Mr. Adams's complaints was to take no
initiative, and to require always a formal requisition on the part of the
United States, admissible before an English court of law. An eminent
English Counsel, Sir E. P. Collier, consulted by the American consul
at Liverpool, did not hesitate to declare that the vessel in question
might be seized by the principal officer of customs at that port, and he
advised the said consul to apply to the Secretary of State for Foreign
Affairs to ratify the seizure it* made, or to direct that it should be made.|

Five affidavits were produced, which Mr. Collier, in the first instance,
and the government afterwards, recognized as furnishing conclusive
evidence that the character and destination of the vessel were in direct
contravention of the foreign-enlistment act. If the act is not enforced
on ilm occdsion^ added Mr. Collier, it is little better than a dead Utter,
The American consul at Liverpool forwarded this opinion to the under
secretary of state for foreign affairs, and to the secretary to the board
of customs. The under secretary of state took no immediate steps upon
this communication, and the secretary to the board of customs htul to
await the orders of the lords of the treasury, which did not reach him
until the 28th of July ; the same documents were also communicated to
Lord Kussell. On the same day, the 28th, the law-officers of the Crown
gave their opinion that the vessel should be seized; orders to that effect
were consequently given oii the 29th by the British government. The
circumstance of the illness of the Queen's advocate has been advanced
to justify the length of time which elapsed between the presentation of
the documents to the minister for foreign affairs and the delivery of
the opinion to the law-officers of the Crown. It is difficult to accept this
excuse when we bear in mind that there were other counsel to replace
this officer, and that any delay was perilous. Under these circum-
stances, the vessel had ample time to escape. I will not enter into the
details of the precautions taken by the commander of the Alabama
to elude the not over strict vigilance of the customs officers, nor into
the calculations of the distances, longer, or shorter, which had to be
traversed, in order to arrive in time to arrest the vessel on her touching

^onctionnaircs do la donane pendant tout ce cours de plaintes de M. Adams dtait de ne
prendre aucnne initiative et d'exiger toujours une instance formelle do la part des fitat-8-
Uuis recovable par les tribiinaux anglais. Un Eminent It^giste anglaib, Sir R. P. Collier,
interrogd par lo consul auidricaiu h Liverpool, n'hdsita point i\ declarer que le vaisseau
en question jmuvait otre saisi par le chef des officiers de douanes au susdit jtort, et il
consoilla au dit consul de s\idresser au niinistere des aftaires dtrangcres, atin qu'il ratifi&t
Cette saisie si ellc etait faite, on I'ordonnat si rile ne r<?tait pas.

Cinq affidavits furent produits, que M. Collier d^ibord et ensuite lo gouvernement
reconnuront comnie preuves concluantes sur la qualitd et la destination du vaisseau en
pleine contravention au foreign-enlistment act; si ce statut n'est pas api)liqu<^, rfrtws celts
eircon8tanc€f ajoutait M. Collier, il n'est gulre qnUme Jettre inorte, Le consul aniericain h
Liverpool remit cctto consultation au sous-secretaire d'dtat des affaires <?ti'ang(Nre8 et
au secrdtairo du bureau des douanes. Lo sous-secr<^tairo d'6tat ne donna pas de snit«
immediate i\ cette communication, et le secretaire du bureau des douanes dfit attendre
les ordres des lords do la trdsorerie, qui ne lui parviurent que le*^8 juillet; les m^mes
documents furent aussi communiqu<?s h. Lord Ruasell. Ce m^me jour, 2S juillet, les
conseillers l<^gaux de la couronno ayant formula lour avis de faire arnHer le vaisseau,
le 29, des ordres furent donnds dans ce sens par le gouvernement britanniquc. Pour
justifier le long d<51ai qui <?tait intervenu entre la presentation des documents au mi-
nisttire des affaires etrangiires et le prononc^ de Tavis des conseillers Mgaux do la con-
tonne, on invoqua la circonstance de la maladie de Tavocat de la Reine. On a de la
peine h s'arr^ter sur cette excuse, du moment qu'il se trouvait d'autres l^gistes qui
pouvaient remplacer ce fonctionnaire, et qu'il y avait pdril en la demeure. Sar ces
entrefaites, le vaisseau eut tout le temps de s'^chapper. Jo ne m'^tendrai pas sur les
details des precautions prises par le commandant de PAlabama pour eiuderla vigilance
assez peu severe des officiers des douanes, ni sur les calculs des distances, plus oa
moins longaes,qu'on aurait h frauchir pour arriver^ temps de faire faire arr^ter le navire

OPINIONS OF COUNT SCLOPIS. 77

at Beaumaris, Moelfra Bay, and Point Lynas. These diflficnlties in the
way of prompt action at the last moment do nor, it must be admitted,
atone for the want of an active supervision which had been promised,
but which, uufortun«ately, was not exercised. y

Allow me here to reproduce a passage from tlie pleadings of Great
Britain, in which it is said, with reference to tire complaints of the United
States on the subject of the escape of the Alabama, '' It is asking that
a jjovernment, with its various departments, with its modes of action
which are, of necessity, methodical and more or less complex, shall act
at all times with a mechanical precision which is not applicable to the
practical business of life." It seems to me, in the first place, thai the
circnmstances in which the British government was placed at this
moment were not exactly the ordinary course of life. Too many interests
were at stake, too many contending fears and hopes were brought into
play at the commencement of the formidable contest between the North
and the South of the American Union, to allow of the matters which
relate<l to these great agitations following the ordinary course of life.

The measures to be taken for the preservation of English neutrality
were, moreover, neither very complicated nor over arduous. It would
have sufficed that the customs officers should have been more attentive,
more alert, and, perhaps, less prejudiced in favor of a cause which had
become popular at Liveqjool, and other British ship building centers.*
There is ground for some surprise at finding the collector of customs
constituting himself a judge of legal evidence, when what was required
was a prompt recourse to more direct means of guaranteeing the duties
of neutrality. I In the Counter Case presented by the government of Her
Britannic Majesty, (page 81,) 1 read that it is true that, in cases of this
nature, neutral governments ordinarily expect to receive information
from the ministers or consuls of belligerent powers resident within their
territories. I stop at the word ordinarily, and I infer from it that the
British government itself recognizes, and with grejit reason, that there

louchant ;\ Beaumaris, h Moelfra Bay et li Point Lyuas. Ces difliciiU<^s d'agir prompte
ment ik la deniii'ie lieureiie couvrtMit pas, il faut I'avouer, le mauqiic d'uiiy surveillance
active, telle qii'elle avait 6t6 promise, maisqui malbeureusemeut n'a pas ^t^ cxercde.

Qu'il luc soit permisde reprodnire ici uu passage du plaidoyerde laCiiande-Bretagiic,
oil il est dit i\ i)ropos des plaintes des Ctats-lJnis, au sujet de I'cvasion de TAlabauia :
*• CVst demauder qu^in gouveruement, avec' ses branches varit''*es, ses ressorts doiit
ractioii est necessairement compliqiR''e et plus ou moins m(^tIiodi(iue, Ibuctionue en
tout temps avec uue precision mecanique qui u'est pas applicable au train ordinaire de
la vie." II me parait d'abord que les circonstances on se trouvait le gouveruement
britannique, en ce moment, n'dtaient point precisoment le train ordinaire de la vie.
Trop d'inter^ts t''itaient en jeu, trop de craintes et d'espdrances se contrecarraient au
commeoeement de la lutte Ibrmidable entre le uord et le sud de I'Union americaine,
pour que les affaires qui avaient trait a ces graudcs agitations dussent suivre le train
ordinaire de la vie.

L«8 uiesures tt prendre pour sauvegarder la neutrality anglaise n'dtaient d'aillcurs ni
trop compliqu^es ni trop ardues. 11 aurait sufti que les ofiiclers des douanes eussent
^t^ plus atteutifs, plus alertes, et peut-^tre moins pr<5veuu8 en faveur d'uue cause qui,
^ Liverpool et dans d'autres cbantiers anglais, etait devenue populaire.t II y a lieu
d'etre quelquo pen surpris, en entendantle collecteur des douanes s'eriger en apprdcia-
teur de preuves l^gales, taudis qu'il aurait fallu recourir ^romptement i\ des moyens
plus directs de garantir les devoid de la neutralit<5. Dausle " Counter-case " present(^
par le gouveruement desa Miijestd britannique, (page 81,) je lis qu'il est vrai que, dans
des cas de cette nature, les gouvemenients neutress'attendeut d^ordinaire k recevoir des
renseignemeDts des ministres ou des consuls qui repr<^sentent sur leurs territoires les
pnissances bell igdran tea. Je m'an'6te sur le mot d^ordinaire (ordinarily) et j'en ddduis
que le gouvemement britannique reconnait lui-meme, avec graude raison, qu'il x)eut y

• See Speeches and Dispatches of Earl Russell, vol. ii, pages 259, 2(30.
t Voir '* Speeches and dispatches of Earl Hussell," vol. li, pp. 259 ii 2<30.

78 ARBITRATION AT GENEVA.

may be extraordinary cases in which a neutral should take actioii to
enforce respect for its neutrality, withoAt awaiting information from a
belligerent.

That the case of the No. 290 was not an ordinary case seems to me
evident, since the construction of the vessel had given rise to so much
anxiety.

When the departure of this vessel was ascertained, Lord Russell, fore-
seeing that probably it might not be possible to arrest her in the waters
on the coast of England, where search was being made for her, stated
that he would further give orders to arrest her at Nassau, where it was
probable that she might be found.

Wten the Alabama quitted Moelfra Bay she had a crew of eighty
men ; she kept for some time along the Irish Sea, then rounded the north
coast of that island, and steered for Terceira, one of the Azores, where
she arrived on the 10th August.

The Alabama was joined in the waters of Terceira by two vessels, the
Agrippina and the Bahama, which had also started from English ports,
and which brought her a considerable sui)ply of cannon, munitions, and
stores.

The combined action of vessels carrying and receiving munitions and
provisions constitutes a complex act entailing a joint responsibility.
Those wlio may raise any doubts on this question may be answered in
the words of Sir Kobert Peel, pronounced in the House of Commons on
the 28th April, 1830: " Was it then to be contended that no expedition
was a military expedition except the troops had their arms on board the
same vessels with them I If they were on board one vessel and theh*
arms in another, did that make any difference f W^as such a pretense
to be tolerated by common sense f "

The vessel, completely armed, abandoned her arithmetical designation
"290'' for the name of the Alabama and hoisted the flag of the confed-
erate government, which however, on occasions, she replaced by the
British flag in order the better to deceive vessels which she wished to
attack. She thus commenced and pursued her adventurous and devas-

avoir dea cas extraordinaires oil iin neiitre doit ajijir sans attendro des renseignenieiit!*
d'lin bellij^c^raiit pour faire respecter 8a neutralit<;?.

Que le eas dii N" '21)0 iie fiit i)oint un ca^ ordinaire, cela me paralt dcimontr^, poisqne
sa construction avait doun<5 Tcveil i\ tant de sollicitudes.

Quaud le d»5part de ce vaisseau fut constat^. Lord Kussell, pr<5voyant que probable-
ment il ne pourrait plus Hvg arreted dans les eaiix on on allait le chercber aux cotes de
I'Angleterre, dit qu^iu surplus il dounorait des ordres pour I'arrerer jV NavH^aU; oil il
dtait probable qu'on le trouverait.

Quand I'Alabaina quitta la bale do MoellVa, il avait un ^([uipage de quatre-viugt
homines, 11 suivit pendant quelque teuips la mer d'Irlaude, puis tourna la cote nord de
cette lie et se dirigea sur Terceira, I'une des Azores, ofi elle arriva le 10 aoftt.

L\\labama fut rejoint dans les eaux de Terceira par deux vaisseaux : I'Agrippina et
le Bahama, sortis egalenieut des ports d'Augleterre, ([ui liii apportc^rent un renfort con-
siderable de canons, do munitions et d'approvisionnement.

L^action combin<^e de vaisseaux portant et recevant des munitions et des appro-
visionnements constitue un fait complexe emportant une respousabilit^S solidaire. A
cenx qui souleveraient des doutes h cet dgard, on i)ourrait rcpondre aivec les paroles de
Sir Robert Peel, prononcees* dans la s(^ance de la Ohambre des communes le 28 avril
1830: "]5tait-cc ii dire qu'aucune expedition n'etait une expe'ditiou miliraire Ti moius
que les troupes n'eiissent Icurs amies avec elles sur le mfime vaisseau? Si les troupes
<^taient sur nn vaisseau et les amies sur un autre, cela faisait-il une difiVSrence? Une
telle pr<5tention (^tait-elle supportable par le sens commun f '

Le vaisseau armd compl^tement en guerre quitta son indicat^urarithmdtique ***290"
pour prendre le nom d'Alabama, hissa le pavilion du gouvernement des conf(6(l<?r6s, ([u'a
i'occasion cependant il rempla^ait par le pavilion britannique, pour mieux tromper les
vasseaux qu'il voulait attaquer. II entreprit et poursuivit ainsi ses courses a vent urea-
ses et d^vastatrices. EUes parorent d^crites avec des details minutieux et techniques

OPINIONS OF COUNT SCLOPIS. 79

tating cruises. They appeared, described with minute and technical
details, iu the journal kept on board by Mr. Fullam, and even under
the form of romance in a work intended to satisfy public curiosity, at
that time much excited on the subject. Among the vessels destroyed
by the Alabama was the Federal war-steamer Hattera^s.

Ou arriving at Jamaica, the Alabama found in the port three English
vessels of war. Instead of being arrested in English waters by the
Euglish ships, the crew met with the best reception ; she was supplied
with the means of'repairing her damages, and seven days afterward the
Alabama steered for the coa«t of Brazil, and thence to the Cape of Good
Ho]>e.

The conduct of the English authorities, under these circumstances,

was approved by Lord Russell, who confined himself to expressing a

hi>[>e that the vessel would be required to leave as soon as the necessary

repairs were finished.*

On her arrival at Saldana Bay, in the colony of the Cape of Good

. Hope, ami consequently in the territorial waters of the British empire,

the commander of the Alabama informed the governor that he had put

into this bay with the object of eftecting some indispensable repairs.

The United States consul protested, without loss of time, demanding
that the vessel should be seized aftd sent to England, whence she had
clandestinely escaped, adding that the repairs making to the vessel,
namely, that of repainting her, could not be considered as of an urgent
nature. The same consul added that he had, with his own eyes, seen
the Alabama take a prize in those same waters. The government replied
tliat this had taken place at a distance from the shore to which British
jurisdiction did not extend.

After her arrival at the Cape, the commander of the Alabama in-
tornied the government that he had left outside of British waters one
of his previous prizes, the Tuscaloosa, and that she would shortly ar-

(lans le joarnal tenu h bord par M. Fullain, et meme sous des formes romanesques dau8
nil onvrago destine jI dc^lVayer la curiosity publique, alors surexcitee. Paniii lea des-
triictious de vaisseaux op(5r<?e8 par 1' Alabama, il y eut celle du steamer de guerre i'^-
•I^Tal, le Hatteras.

Arriv^' h la Jamaiqne, I'Alabama y rencontra dans le port trois vai&seaiix de guerre
anglais. Au lieu d'etre arr6t6 daus ces eaux anglaisQS par des navires anglais, I'equi-
pii^e y rev'ut le meillenr accueil : on lui donna les inoyens de r(5parer ses avaries, et sept
jours apres TAlabama se dirigea sur la c6ce du Bresil et de la vers le Cap de Bonue-
KsjK? ranee.

La eonduite des antorit^^s anglaises, daus ces circonstances, fut approuv<?e par Lord
Rnsseli, qui seborna a esp^rer que ce vaisseau aurait ^t^ requis de partir aussit6t apres
<)ue les reparations iudispensables auraieut 6te termindes.t

Arriv^ h la baie de Saldanha, daus la colonie du Cap de Boune-Esp^rauce, et partant
<lans les eaux territoriales de la souverainet^ auglaiso, le couiinandaut de I'Alabama
informa le gouvernement qu'il ^tait veuu t\ cetto baie dans le but de faire quelques
r<'>parations iudispensables.

Le consul des Ltats-Unis ne tarda pas i\ protester, en demandant que le vaisseau ft^it
Kiisi et envoy<5 en Angleterre, d'ou il 8'<^tait dchapp6 clandestinement, enajoutantqu'ou
ne i>ouvaiti)a«considerercomme uue r<5paratiuu nrgentedu navire celle que I'on faisait —
c\*«t-iVdire, de le repeiudre. Le mc^me consul ajoutait qu'il avait vu de ses propres
.MMix TAlabama executer des prises dans ces m<Mues eaux. II lui fut repondu par le
;;onverneinent que cela s'ctait pass6 d. uue distauce de la c6te ii laquelle la juridiction
aiiglaise ue pouvait pas s'^tendre.

Apri'S sou arriv^e ti la ville du Cap, le commandant de VAlabama informa le
gouvernement qu'il avait laiss^ hors des eaux anglaises uue deses captures prdc<3dentes,
le Tuscaloosa, et qu'elle arriverait bient6t en quality de temler. Ce navire arriva, en

* Letter fmni Mr. Hammond to Sir F. Rogers, February 14, 1863.
t Lettre de M. Hammoud ii Sir F. Rogers, 14 ll^vrier 1863.

80 ARBITRATION AT GENEVA.

rive in the capacity of tender. This vessel in fact arrived, and her
cargo of wool was made over to a merchant of Cape Town to be taken
to Europe and sold there. The carg^o was disembarked at a point
named Angra Pequefia, outside of British jurisdiction.

^A'llen the Tuscaloosa appeared in the port, the Britsh rear-admiral
Sir Baldwin Walker, wrote to the governor to know if this vessel onght
still to be considered as a prize, although she had never been condemne<L
as such by a competent tribunal. He persisted in his opinion, whicl^
was in direct variance with the tolerance of the governor ; the latter
referred to the attorney-general, and he subsequently replied ou thc^
advice of this last officer, but in terms which betrayed a faltering con-
viction that the vessel might be considered as a vessel of war.

A correspondence ensued between the governor of the Cape and the
colonial minister, the Duke of Newcastle, as to the legality of the cap-
tures. That minister disapproved the conduct of the governor and the
application of the principles of law on which the attorney-general had
based his opinion.

While this was taking place the Tuscaloosa had returned to the port,
and having thus placed herself within the limits of British jurisdic-
tion she was seized. The British government, when informed of this
act, disavowed it, and ordered that the vessel should be restored to the
confederate lieutenant who commanded her; in case that officer had
left the Cape, directions were given to wait till the vessel could be
handed over to some person whom the commander of the Alabama or
the government of the Confederate States might nominate for the pur-
pose. The English minister, reversing in some degree his former decis-
ion, based the instructions as to the restitution of" the vessel on the
peculiar circumstances of the case.*

Her Britannic Majesty's minister declares, in the same dispatch, ''that
it becomes unnece^sartf to discuss wJiether, on Jier return to the Cape, tlie

eft'et, c<5da sa cargaisou de laine ^ un marchand de Cape Town pour la trausporter en
Europe, afin d'y t>tro vendue. La cargaisou fut d6barqu6e sur uu point appel<S Augra
Pequeiia, en dehoi*8 de la juridiction britanuique.

Lorsque le Tuscaloosa parut dans cot endroit, le contre-amiral anglais, Sir Baldwin
Walker, dcrivit an gouverneur pour savoir si co vaisseau devait t^tre encore considers?
comme nne prise, bien qu'il nVfU; jamais 6t6 condamu^ conime telle par un tribunal
conipdtent. 11 insista dans son Topinion tout i\fait oppos^e h la tol«5rancL' du gouverneur ;
celui-ci en r<^f<5ra h Tattorney-general, et r6pondit eusuite, d'apres I'avis de ce dernier,
niais dans dos termes qui trahissaient une conviction chaucelante, quo oe navire
pouvait se considdrer comme vaisseau de guerre.

Une correspoudance s'ensuivit entro le gouverneur du Cap et le rainistre dcs colonies,
due de Newcastle, sur la l(^galit($ des captures. Ce ministre desapprouva la conduite
du gouverneur et I'applicatiou des principes de droit sur lesquels rattorney-general
s'dtait fondd.

Pendant que cela se passait, le Tuscaloosa <?tait rentr<5 dans le port ; et s'dtant ainsi
placd dans les limites de la juridiction anglaise, il fut saisi. Le gouvernement
britanuique, iufornid de cet acte, le ddsavoua, et tit rendre ce vaisseau an lieuteuant
confdddre, qui le commandait ; dans le cas oil cet otiicier eftt quittd le Cap, il ajouta
qu'il fallait attendre pour remettre le vaisseau i\ la persoune que le commandant de
TAlal^ma, ou le gouvernement des dtat«-confdddrds, aurait ddsignde t\ cet effet : le
ministre anglais, revenaut en quelque sorto sur ses premieres decisions, basait des
instructions relatives li la restitution du navire aur les circoudtauces exccptionnellca de
Faffaire.

Le ministre de sa Majestd britanuique d<$olare dans la m^me (i6\}(!^c\\Q qu/iJ n' est plus
utile de discuter sid son retour au Cap le Tuscaloosa conservait toujours le caractere d^une prise

* Dispatch of the Duke of Newcastle to Sir P. Wodehouse, March 10, 1864 : " I have
now to explain that this decision was not founded on any general principle respecting
the treatment of prizes captured by the ovuisers of either belligerent, but on the pecu-
liar circumstances of the case.''

OPINIONS OF COUNT SCLOPIS. 81

Tuscaloosa still retained the character of a prize, or whether she had lost
that character and had assumed that of an armed tender to the Alabama,
andiiohether that new character, if properly established and admitted, would
have entitled her to the same privilege of admission which might be accorded
to her captor, the Alahama,^

In my capacity as arbitrator, I cannot avoid a discussion, even though
it should be without use to one of the parties, and I must admit that it
seems to me that the observations originally made with equal candor
and good sense by Rear- Admiral Walker, of the British navy, should
guide the opinion of the tribunal in the decision of the point which the
British government regarded as difficult and doubtful.

To resume, I am of opinion that the neutrality of Great Britain was
gravely compromised by the vessel named the Alabama. Consequently
Great Britain is responsible for the acts of the said vessel, as well as
for those of her tender the Tuscaloosa.

V. — THE SHENANDOAH alioS SEA KING.

First part.

The first charge which the Unifed States bring against the British
government with regard to this vessel, which was built on
the shores of the Clyde, is that she was sold to Richard sh^-n^'^oth.

Wright, of Liverpool, a British subject, and father-in-law of Mr. Prioleau
of South Carolina; this latter being the head partner of the firm of
Fraser, Trenholm & Co., notorious for its intimate relations with the
confederate government.

The United States maintain that in view of the above relations, which
could not be unknown to the English jgovernment, this latter ought to
hare watched the transfers of the cla^s of vessels which from their build
betrayed designs hostile to the United States. Mr. Adams, on the
ground of two depositions of sailors on board this vessel, denounced her
to Lord Russell as destined for the confederate government.

(n t^il acait pa'du ce caracth'e pour prendre celui (Fun hdtiment de servitude armi pour
T Alabama^ et ni ce nouveau caracthrCj dument constate et admiSj lui aurait donn6 droit aux
meme9 privUdges d^admimion qu^on aurait accordes d. son vainqueury V Alabama.

Dans nia qiialitd d'arbitre je ue puis pa^) dcarter une discussion, quaud m6me elle ne
serai t point utile ^ I'une des parties, et je dois avouer que les observations faites d'abord
arec autant de loyaut^ que de bon sens par le con t re-am iral Walker, de la marine
britanuiqne, me paraisseut devoir dirigor I'opiuion des juges dans la jldcision de ce
point, que le gouvernement britannique envisageait comme difficile et douteux.

£n me r<^«umaut, je snis d'avis que le vaisseau nomm<^ I'Alabama a gravement
compromis la neutrality britannique. Cons<^quemment, laresponsabilit^ de la Grande-
Bretagne se trouve engag<So taut pour les faits du dit vaisseau que par ceux de son
tender, le Tuscaloosa.

LE SHENANDOAH, ALIAS SEA KINO.

Premise pariie,

Le premier reproche que, les fitats-Unis adressent an gouvernement anglais h propos
de ce vaisseau construit sur les bords de la Clyde, c'est qu'il a 6t^ vendu h, Ricbard
Wright, de LiverptKjl, sujet anglais, et bean-p^re de M. Prioleau, de la Caroline du Sud;
ce dernier associe principal de la maison Fraser, Trenholm et C^", connue par ses rela-
tions intimes avec le gouvernement des confdd^res.

Les ^tato-Unis soutiennent que, vu les relations susdites, qui ne pouvaient 6tre igno-
r^es par le gouvernement anglais, ce dernier aurait dfl surveiller les transferts de cette
categoric de vaisseaux, qui, par leur construction accusaient des projets hostiles aux
£tatfi-Uni8. M. Adams, appuy6 de deux depositions de matelots h bord de ce navire,
d^noD^ait ^ Lord Russell la destination de ce vaisseau au gouvernement des conf^d^r^.

6 B *

82 ARBITRATION AT GENEVA.

Tbe Sea King took out a clearance for Bombay, and coal and supplies
for a cruise of twelve months. Hardly had she weighed anchor, when
a telegram sent to Liverpool announced her departure to the confederate
agent at that port. The same evening a screw-steamer, nearly new,
admirably adapted for equipment as a privateer, named the Laurel,
manned by men thoroughly devoted to the confederate cause, who had.
served on board the Sumter, Alabama, and Georgia, was laden with,
arms and steered for the bay of Funchal, in the island of Madeira,
where she awaited the Sea King, which arrived two days after her.

In a desert corner of the bay of Madeira, the arms and ammunition
were transshipped from the Laurel to the Sea King. A man named
Corbett, an Englishman, who had received from Wright a power of at-
torney to sell the vessel, addressed the ci ew, announced the sale of the
vessel, wiiich was about to change her name and take that of Shenan-
doah, and endeavored to persuade the men of the crew to follow the
vessel in her new career in the confederate service. Of eighty sailors,
twenty-three only consented to remain in the new vessel of war.

The conduct of Corbett appeared to be in such evident contravention
of the foreign-enlistment act, that the British consul at Funchal sent
him home in custody to England. Captain Waddell succeeded him in
command.

Mr. Adams did not fail to inform Lord Eussell of all that had taken
place w ith regard to these two vessels ; he added that of the officers
transfeired to the Shenandoah, the greater part were British subjects
who had been saved by English intervention at the moment when they
were going on board the Alabama.

The Shenandoah went from Madeira to Melbourne ; on the passage,
which lasted ninety days, she destroyed several vessels of the merchant
navy of the United States with their cargoes, and finished by anchor-
ing on the 25th Januar^^, 1865, at Sandridge, a small village two miles
from Melbourne.

If we are to believe a letter addressed by Mr. Blanchard, United

•

Le Shenandoah prit ses papiera de bord pour Bombay, et du cbarbon et des approvi-
sionnemeiita pour une croisi^re de doiize luois. A peine le Sea King avait-il levd l*ancre
qu'un t<^l<^gramnie exp<^di<^ ^ Liverpool aunon^ait son depart h Tagent conl'(5d<^r<^ de ce
port. Dans la ui6nie 8oir<?e un steamer ^ h<Slice, presque ueuf, admirablement api>ropri6
b. un armement de course, noinm<5 le Laurel, uiont6 par des homuies t^^s-d6vou^8 an
parti confdd<5r6, qui avaient servi i\ bord du Sumter, de TAlabama et du Georgia, cbargea
des amies et so dirigea vers la bale de Funcbal, dans Pile de Madere, oil il atteudit le
Sea King, qui arriva dei»x jours apr^s lui.

Dans un coift desert de la baie de Madere il se fit un transbordement d^armes et de
munitions du Laurel sur le Sea King. Un nomui^ Corbett, un Anglais qui avait re^u
de Wrigbt une procuration pour vendrc le navire, se pr^senta k P^quipage, annon^a
la vente faite du vaisseau, qui allait cbanger de nom et prendre celui de Shenandoah, et
engagea les honmies de P^quipage 5, suivre ce vaisseau dans ses nouvelles de«tin6es au
service des conf^ddrds. Sur qualre-vingt matelots, vingt-trois seulement conseutirent
h Tester sur ce nouveau vaisseau de guerre.

La conduite de Corbett parut si ^videmnient contraire an foreign-enUslmeni act que le
consul anglais ii Funchal Tenvoya prisonnier en Angleterre. Le capitaine WaddeU
lui 8ucc<?da dans le commandement.

M. Adams no nianqua pas d^informer Lord Russell de tout ce qui 8*6tait pass^ k propos
d') ces deux vaisseaux; il lui ajouta que parmi les officiera transf^r^s sur le Shenan-
doah, la plupart ^taient de« sujets anglais, qui avaient ^t^ sauv^ par une intervention
auglaise au moment oti ils se rendaieut k bord de I'Alabama.

Le Shenandoah se porta de Madere snr Melbourne; dans le trivet, qui dura qnatre-
vingt-dix jours, il d^truisit plusieurs vaisseaux de la marine marchaude des ^^tats-Unis,
ainsi que leurs cargaisons, et Unit par jeter Tancre, le 25 Janvier lt?65, k Sandridge, un
9etit village k deux miUes de Melbourne.

Si Ton en croit uue lettre adress^ par M. Blanchard, consul des ^tats-Uuis ^ Mel-

OPINIONS OP COUNT SCLOPIS 83

States consul at Melbourne, to Mr. Seward, Secretary of State at Wash-

iugton, the mail from Europe, which had arrived some days before, had

brought news that the Sea King had left England with the intention of

being transformed into a vessel of war to cruise against the commerce

of the United States.

The United States consul at Melbourne informed the governor, with-
out loss of time, of all the circumstances which he considered as proofs
that the Shenandoah was not a vessel of war of a recognized belligerent,
but rather a privateer bearing all the marks of its gnilt.

The British authorities at Melbourne are accusecl of having been ex-
cessively complaisant toward the commander and crew of the Shenan-
doah ; it is asserted that the governor had unofficially re-assured her
commander before officially granting him what he requested.

Captain Waddell did not hurry himself to state what were the repairs
and supplies which he needed, and the governor, instead of adhering
rigorously to the general instructions with which the British govern-
ment had furnished him, referred it rather to Waddell to determine the
length of time to be granted him. While the repairs were slowly going
on, Waddell was making recruits in the town of Melbourne to fill up
the gaps which were left in his crew.

In the American Appendix (vol. v, pp. 660 ei seq,) are inserted the
reports of the proceedings of the legislative assembly at Melbourne,
which show that the opinion of the majority was in favor of treating
the commander of the Shenandoah with leniency, and leaving the mat-
ter to the decision of the government and the colonial authorities.*

Pressed by the remon strati ces and protests of the United States con-
sul, the governor referred the question to the law-officers of the colo-
nial government, who replied that there was no evidence of piracy hav-
ing been committed by any one on board the vessel, and that she should
be treated as a ship of war,

bourne, li M. Sewanl, Secretaire d'etat 4 Washington, la malle d'Europe, arriv<$o quel

ques jours anparavaut, avait apport6 la nouveUe que le Sea King avait quitt<S FAngle-
terre avec Tinteution de se transformer en vaisseau de guerre pour croiser contre le
coumierce des fitats-Unis.

Le consul des fitats-Uuis dans cette viUe ne tarda pas h informer le gouverneur de
toutes les circoustauces par lesqneUes il croyait prouvd que le Shenandoah n'^tait point
du tout un vaisseau do guerre d'un bellig<5rant reconnu, mais hien plutOt un corsaire,
ayaut toutes les marques de sa culpabihtd.

On accuse les autorit<^s anglaises de Melbourne d^avoir 6t6 excessivement condescen-
dautes cuvers le commandant et l¥quipage du Shenandoah; on pr<$tend que co gouver-
neur avait rassnr<5 officieusement le commandant avant de lui accorder officiellemeut
ce qn*il demaudait.

he capitaine Waddell ne se pressa point pour faire connattre qnelles 6taient les
r<^paratioDs et les approvisionnements qu'il lui fallalt, et le gouverneur, au lieu de s'en
t^uir h la rigenr des instructions g^n^rales que le gonvernement anglais lui avait
trausmis*3s, »\iu rapporta plutrtt j\ Waddell sur Tespace de tem][>s k lui accorder.
Pendant qu'ou proc<!^dait lentenient aux reparations, Waddell faisait des rocrues dans
la ville de Melbourne, pour remplir les vides quo laissait son (Squipage.

Dans Pappendice amdricain (vol. v, pages 6()0et suivautes) on a insure des rapports des
act^s de rsissemblde legislative de Melbourne, qui marquent que Topinion de la majority
inclinait ^ manager le commandant du Shenandoah et ^ s'eu remettre ^ Pavis du gou-
vernement et des autorit^s colonialc8.f

Presse par les instances et les protestations du consul des l^ltats-Unis, le gouverneur
defera la question aux couseillers l^gaux du gonvernement colonial, qui r^pondirent
qn*il n\^ avait aucnne preuve de piraterie commise par qui que ce fdt au bord du navire^
et que I'ou devait traiter celui-ci comme un b&timent de guerre.

* See the speech of Mr. O'Shanassy, p. 663 of the volume referred to.
t Voir le discours de M. O'Shanassy, p. 663 du volume cite.

84 ARBITRATION AT GENEVA.

The suspicions which had been entertained of the clandestine ship-
ment of some persons on board the Shenandoah continued to increase.
The permission granted to the captain to take in supplies and make re-
pairs was suspended, and the government published a proclamation for-
bidding British subjects to give aid or assistance to the Shenandoah.

The assertion of the fact of the clandestine shipment of certain men
on board the Shenandoah was borne out, and the commander and offi-
cers of that vessel had to give explanations as to the assurance they
had given that no shipment of this kind had taken place, aud.a^ to the
fact that they had unfortunately not fulfilled this engagement made on
their word of honor.

The American case and the British counter case contain details as to
the facilities which the topographical situation of Hobson's Bay and
Port Philip afiforded for the escape of men watched by the police, whose
insufficient means did not allow of their exercising supervision at every
point, in order to prevent the departure of the persons enlisted. It
may also be doubted whether the legal advisers of the colonial gov-
ernor and his police officers were over- anxious to second the energetic
efforts of the United States consul.

I will note two circumstances which appear to me to deserve special
attention :

1. The confidential instructions, by which the authorities at Mel-
bourne had, from the first, said that they must be guided, are published
at page 125 of the fifth volume of the Appendix to the British Case,
and the last document contained in them traces exactly the line of
conduct which was finally followed by the government toward Captain
Waddell.

2. The postscript of a letter from Mr. Adamson to Mr. Davis, which
is to be found at page 637 of the documents annexed to the American
counter case, (French translation,) reveals a moral pressure producing
a cynical disavowal.

The Shenandoah, on leaving the port of Melbourne, took with her
400 tons of coal, if the American consul is to be believed, with full

Lea soiipvons que Ton avait de rembarqiiement olandestin de quelques personnes k
bord du Snenandoah ne firent qn'augQienter. La permissiou accord^e au capitaine de
fairo des approvisioiuiemeDts et des r^Sparations fut suspeudue. et le gouvernemeut
publia uno proclamation pour ddfendre aux sujots britauniques de prater aide et assis-
tance au Shenandoab.

^assertion du fait de rcmbarquement clandestin de quelques bommes du Shenan-
doab fut maintenue, et le commandant et les officiers de ce vaisseau dureut donner des
explications sur la parole quMls avaient donni^e qu^aucun embarquemont do ce genre
n'avait eu lieu, et sur le fait qu'ils n'avaient malbeureusement pivs r6pondu k cet engage-
ment de parole d'bonneur.

Le "Case" amdricain et le "Counter-case" anglais contienrient des details sur la
faculty que la situation topograpbique de Hobson's Bay et Port Philip pr6tait ^ l'6va-
sion d'hommes surveillds par la police, dont les faibles moyens ne permettaiont point
d'exercer une surveillance sur tous les points, afin d'emp^cher ces sorties de gens em-
baucb^s. II est aussi permis de donter que les conseillers l^gaux du gouverneur colonial
et ses offlciers de police fussent des mieux dLspo8<Ss k seconder rempressement des
d-marches du consul des £tat4S-Uuis.

Je noterai deux circonstauces qui me paraissent m^riter une attention sp^ciale :

1. Les instructions confidentielles d'apr^s lesquelles les autorit^s de Melbourne
avaient dit d'abord dtre oblig<5es de se rd^ler furent publi^es 2i la page 125 du cinqui6me
volume de Tappendice au " Case " anglais, et la derni^re piece qui s'y rattache trace
exactuient la ligne qui a 6t6 suivie par le gouvernemeut en dernier lieu vis-ii-vis du
capitaine Waddell.

2. hti po8t-8ciHptum d'une lottre de M. Adamson ^ M. Davis, qui se lit h la page 637 des
pieces auuexdes au "Counter-case" am^ricain (traduction franyaise) rdvMe une
pression morale produisant un cynique dd&aveu.

Le Shenandoah, en quittaut lea eaux de Melbourne, emportait avec lui 400 tonnes de

OPINIONS OF COUNT SCLOPIS. 85

sailing rigging, trasting more to her sailing than to her steaming pow
ers. This excess of supplies was denounced to the governor, and the
United States, reckoning up the several shipments of coal made by the
Shenandoah, infer that she was meditating a fresh cruise on her depart-
ure from Melbourne, so that that port became a base of naval opera-
tions for the insurgents.

The cruise of the Shenandoah furnishes materials for a special de-
scription, and among the reviews of the facts relating to this vessel is
one to which I will here refer — that of Mr. Montague Bernard, who
says that so large a number of recruits as we may believe to have been
shipped by her, could not have come on board without Captain Wad-
dell's knowledge. I shall return to this question of the number of re-
cruits, which is evidently exaggerated.

One cannot resist the belief that the tolerance of the authorities at
Melbourne contributed greatly to enable the vessel to pursue her adven-
turous career in the Arctic seas, whither she repaired by Behring's
Straits.

The number of whaling- vessels which the Shenandoah destroyed in
these waters, at a time when the confederate government had ceased
to exist, raises the amount which the United States lay to her charge,
to a sura little less than that for which the Alabama is held responsible.
It is not proved that the Shenandoah absolutely lost her original
character of a British vessel manned by a British crew. It is affirmed
that this vessel shipped at Melbourne 300 tons of coals, which had
been sent to her from Liverpool. The Government of the United
States adds that the name of the vessel which brought this coal was
tlie John Fraser, and this occurrence it seeks to adduce as an incrim-
inating circumstance.

The British government, in its counter case, (page 110 of the French
translation,) says that, at the present day, when the distance of time
and x)lace prevents an exact knowledge of all the particular circum-
8t4mces, it would serve no useful purpose to follow all the details of a
technical discussion founded largely on conjecture.

cbarbon, si Ton en croit le consul aiu6ricain,'nue mature complete, s'eii tenant plus h
la voile qu'^ la vapeur. Ce luxe d'appro vision ueui en t fut di^nonc^ au gouverueur, et
lesJ^tats-Unis, en supputant lesdivers ohargements de charbon faits par le Shenandoah,
en dMuisent quMl projettait une nouvelle croisi^re en sortant de Melbourne, de sorte
qne ce port devenait pour les in8urg<5s une base d'op<^rations navales.

La CToisiere du Shenandoah fournit la matiere k une description toute pailiculit^re,
et parmi les appr<^ciations des faits qui conccrnent ce vaisseau il y en a une que je
rapport* ici, celle de M. Mountague Bernard, qui dit qu'un nonibre aussi grand de
recrues qu'on pent croire, qui ait 6A6 embarqu<$ h son bord, n'auralt pu s*y reudre sans
que le capitaiue WaddeU en edt conuaissance. Je vais revenir sur ce uombre de
recrues <^videniinent exagcrd.

On ne i>eut se refuser i\ croire que la tolerance des autorit^s de Melbourne a beaucoup
aid<^ ^ inettre ce vnisHojiu eu ^^tat de poursuivre sa carriere aventureuse dans les mers
Arctiques, on il se rendit par le diHroit de Behring.

Les destructions des baleiniers que le Shenandoah op<5ra dans ces eaux, dans un
temps oil le gouvernement des conf^dcrds avait cess<5 d'exister, ferait monter la coinpta-
bilit^, dout les fitats-Uiiis le chargent, h un chiffre de pen inf<5rieur ^ celui dout on
chai-ge la resiwnsabilit*^ de 1' Alabama.

11 nVst pas prouv^ que le fehenandoah ait effectivement perdu sou caract^ro primitif
de vaisseau et d'<5quipage britannique. II est affirni<^ que ce vaisseau embarqua j\
Melbourne 1300 tonnes de charbon, qui Ini avaient 6t€ exp<^di<?es de Liverpool. Le
Gouvernement des fitats-Unis ajoute que le nora du vaisseau qui apporta ce charbon
^tait le John Fraser, et il pr<^,tend en deduire un argument de culpabilitd.

Le gouvernement britannique, dans son contre-m^moire, (p. 110 de I'ddition franf aise,)
dit qu'^ cette heure, oti le temps et la distance empdchent de reconnaltre avec exacti-
tude tous les details accessoires, il n\v aurait aucnne utility r^elle ^ suivre tons lea
details d'une augmentation technique forg6e largement sur des conjectures.

86 ARBITRATION AT GENEVA.

The American Govemraent does not relinquish its complain ts« I con-
sider that, in order to form a judgment on the last period of the cruise
of the Shenandoah, it is of the greatest importsmce to dwell on the
sworn depositions of the two masters of whaling-vessels, Ebenezer !N je
and Thomas Hathaway, which are given at the end of tlie second part
of the selections from the Appendix to the Case of the United States,
(French translation.)

To replace the force of a vessel in a proportion equal to that which it
had lost, is not, strictly speaking, an augmentation of force. We find
this maxim laid down in a judgment of the Supreme Court of the United
States, quoted in the interesting memorandum of Mr. Abbott, (Lord
Tenterden.) It is necessary, therefore, to prove an extraordinary aug-
mentation of force in order to establish a solid presumption of fresh
attempts against the duties of neutrality. It is on these much-dis-
puted facts, which are, in my belief, capable of further elucidation, that
1 beg my honorable colleagues to assist me with their information. If
necessary I will apply to the parties themselves for further explanations.

Second part

In the session of the day before yesterday, being placed in the deli-
cate position of having to determine, by my casting vote, the decision
in the Important and complicated case of the Shenandoah, I applied to
my honorable colleagues for elucidations calculated to determine my
opinions, disturbed by doubts. 1 may be excused this hesitation, caiKsed
by certain apparent contradictions in the facts of the case, and by the
desire not to allow myself to be led away by a combination of appear-
ances, which, though supported by plausible reasoning, might, never-
theless, be deceitful.

I now beg you, gentlemen, to allow me to state to you my opinion,
hesitating the day before yesterday, confirmed to-day by the results of
the discussion which 1 have elicited, and which you have succeeded in
rendering fruitful and decisive by your information.

Le gouverneiiient aiu<5ricain lie se ddsiste pas de ses plaintcs. Je crois qu'il est
d'niie extreme importauce, pour former uii jugeiiieiit sur la dernifere pdriode de la
croisiere du Shenandoah, de s'arrOter sur les depositions assermentc^es des deux patrons
des navires baleiniers. Ebenezer Nye et Thomas Hathaway, que Ton trouve vers la fin
de la deuxif^me partie du choix des pieces justiticatives 2i I'appui du m<5moire des £tats-
Unis.

Le remplacement de la force d'un vaisseau dans una proportion dgale h celle qn*il
avait perdue n'est pas, ii parler rigoureusement, une augmentation de force. Nous
trouvons cette maxime consignee dans un jugement de la Cour supreme des fitats-Uuis,
cit<^ dans I'int^^ressant memorandum de M. Abbott, (Lord Tenterden.) II faut done
dtablir une augmentation de force en sus de I'ordinaire, pour quHl y ait prdHomption
foud^ de nouvelles entreprises contre les devoirs de neutrality?. C'est sur les faits
tr^8-controvers6s, et, ^ ce que je crois, susceptiblesd^une plus grande Elucidation, que je
prie nies houorables collegues de m'aider de leurs lumi^res. S'il est udcessaire, je de-
manderai encore aux parties elles-m^mes des dclaircissements.

Deuxihme partie,

Dans la s<^ance d^avant-hier, placd dans la circonstance trds-d^licate de determiner
par'mon vote la majority pour la decision du cas aussi grave que compliqud du Shenan-
doah, je demandais tl mes houorables collogues des eclairclssement^ propres ii fixer nies
iddes agit^es par le doute. On me pardonnera ces agitations pi-oduites par certaines
contradictions apparentes des faits de la cause, et par le d^sir de ne pas me laisser
en trainer par I'eusemble d'a]>parences qui, bien que rattach6es ii des motifs plausibles,
pouvaiont neanmoins 6tre trompeuses.

Je vous demande maiutenant, messieurs, la permission de vons exposer mon opinion,
chancelant« avant-hier, arr^t^e aujourd'hui par suite de la discussion que j'ai sonlevde,
et que vous avez su rendre feconde et decisive par vos luniieres.

OPINIONS OF COUNT SCL0PI8. 87

I onght, in the first place, to repeat what I have already said, that,
iu my opinion, it is not absolutely proved that the fact of the repairs ot
the Shenandoah at Melbourne constitutes by itself grounds for a charge
of Tiolation of neutrality. It is proved that these repairs were neces-
sary, and it is not shown that the replacement of the force of this vessel,
by means of these repairs, surpassed the measure of its former condi-
tion.

It remains to be seen, then, whether the excess in the supply of coal,
and above all the clandestine recruitment of part of the crew, effected
at Melbourne, assume, or not, the character of a base of naval opera-
tions, such as is contemplated in the second rule of Article VI.

The Shenandoah, on her departure from England, in the month of
October, 1864, had a crew, according to the American reports, of forty-
seven men.*

At the time when she parted from the Laurel, the Shenandoah had
no more than twenty-three men on board, including officers.!

It appears that in the voyage from Madeira to Melbourne she shipped
many more men, since the governor at Melbourne says that on her ar-
rival at Hobson's Bay the crew of the vessel amounted to ninety men.|
It appears, also, that a considerable number dispersed themselves after
that arrival, as Captain Waddell declares, since an officer in the confi-
dence of tbe governor, instructed to make confidential inquiries as to
the state of the vessel, estimates the number of the crew at no more
than forty or fifty, all rough and undisciplined men.§

It is very difficult to ascertain exactly the number of men who were
on board the Shenandoah when she left Melbourne on her way to the
Arctic seas.

According to a report of the Melbourne police,§ the number of men
shipped at Melbourne on board the Shenandoah was said to amount to
sixty or seventy. According to the affidavit of William A. Temple, the

Je (lois d'abord r<Sp6ter ce que j^ai dfjh, dit, qu'^ mon avis il n^est pas absohiment
proQv^ que le fait dee rdparatious du Shenandoah k Melbourne constitue, k lui seul, uu
ar^ment de violation de neutrality II est prouv<S que ces reparations 6taient n^ces-
saires, et il n'est pas d^^.montr^ que le remphicenient de la force de ce vaisseaa, par suite
de ces reparations, ait ddpasse la mesure de son etat pr6c<SdeHt.

I\ faut done voir si Pexuberauce de Papprovisiouneinent de charbon, et surtout le
recrutement clandestin d'uue partie de I'dquipage opdrd k Melbourne, prennent, ou
non. le caract6re de base d'oxj^rations navales, telle qu'elle est prdvue par la 2"® r^gle
de Particle VI.

Le Shenandoah, k son depart d'Angleterre, an mois d'octobre 1864, avait un 6quipage,
d'aprc^ les rapports americains, de quarante-sept homnies.

Au moment oil il quitta le Laurel, le Shenandoah n'avalt plus que vingt-trois hommes
k bord, y compris les ofiiciers.

II paralt que dans le trajet de Mad^re k Melbourne il embarqua bien d^autres
hommes, puisque le gouverneur de Melbourne ditqu'si son arrivde dans le Hobson'a Bay
r^quipage du vaisseausemontait ^quatre-vingt dix-huit horames. II paratt auasi que
bon noinbre s'en dispersa aprfes cette arrivide, ansi que le ddclare le capitaine Waddell,
puisc|u'un officier de coufiancedu gouverneur, chargd de prendre des iuforniatious con-
iidentieUes sur V6tat de I'embarcation, ue porte le uombre de I'equipagequ'ii quarante
ou ciuquart€3, tous gens grossiers et indisciplines.

II est tres-difficile de savoir au juste le nombre des hommes qui se trouvaient k bord
da Shenandoah quand il partit de Melbourne pour se rendre dans les mers Arctiques.

lyapr^s un nipport de la police de Melbourne, le nombre d'homnieseniliarquevS ii Mel-
bourne k bord du Shenandoah s'tSl^verait k soixante ou soixante-dix. D'apr^s I'aj^dart^

• American Appendix, vol. v, p. 560.
t Ibid., p. 610.

t Appendix to British Case, vol. i, p. 564.
i Ibid., p. 557.

88 ARBITRATION AT GENEVA.

crew of the Shenandoah on her return to Liverpool amounted to one
hundred and thirty-three, a number which includes some men who had
died at sea.

In the deposition of Captain Ebenezer Nye, it is said that, when he
came on board the Shenandoah, the want of sailors was much felt, as
there were only forty-five, half the number required. It is said, also,
that Mr. Xye, in conversation with Mr. Hunt, lieutenant of the Shenan-
doah, learned from him that forty-two men were enlisted at Melbourne;
that Captain Waddell, had refused the governor the right to search the
ship while a number of recruits were on board. From the affidavit of
Temple may be gathered certain details as to the men who came on
board the Shenandoah from several vessels captured in the Arctic seas.
They seem to have been twenty-six in number, which, added to fifty,
the presumed crew of the Shenandoah on leaving Melbourne, and further
adding the officers, fifty-seven in number, would give a total of one hun-
dred and thirty-three, corresponding to the number given by Temple,
with the deduction of the two men who died at sea.

This witness has, no doubt, been much discredited, but in the letter
from Mr. Hull to Mr. Batesdn* will be found a formal denial, in Cap-
tain WaddelPs name, of several of the assertions of Temple, without
any mention of the list of the crew, which, no doubt, deserved special
attention, and which, notwithstanding, is not disputed. Lord Claren-
don himself, in his letter to Mr. Adams, of January 19, i860, while he
examines the bearing of some of the remarks in Temple's list, makes no
observation as to the correctness of the figures.

The law-officers of the Crown themselves, in their opinion of the 28th
of March, 18G6, while refusing to attach credence generally to Temple's
statement, do not specially discredit the list. They seem to believe that
none of the persons on board the Shenandoah had been guilty of acts
on which legal proceedings could be founded; and they advise that the
matter should be allowed to drop.

de WiHiam A. Temple, Fi^quipage du Shenandoah k son retour h Liverpool aurait ^t^ de
cent trente-trois, nombre qui compreud qiielqnes homuieH niorts en mer.

Dans la disposition dn capitaiue Ebenezer Nye, il est dit que, lorsqu'il passa ak bord
du Shenandoah, le manque de uiat-elotsse faisait viveinentsentir, puisqu'il u'yen avait
que quarautre-ciuq, la moiti^ du nombre voulu. II y est dit aussi que M. Nye, en
s'entretenant avec M. Hunt, second du Shenandoah, lui avait appris que quarante-deux
houimes furent eur61ds k Melbourne, que le capitaiue Waddell avait refus6 au gonver-
neurle droit de visite tandis qu'u;i certain nombre de recrues 4taieni d hord. De Vaffidavit
de Temple, il r^^sulte certain d<5tail des hommes qui seraient venus \\ bord du Shenan-
doah, sortant de plusieurs navires captur<?8 dans les mers Arctiquea. Leur nombre
serait de vingt-six, qui, se joignant aux cinquante-trois, Equipage pr<58ura6 du Shenan-
doah quittant Me1l>ourne, et en ajoutant lesofficiers au nombre de cinquante-sept, don-
nerait un total de cent treute-trois, correspoudant au chiffre iudiqu6 par Temple, sous
la deduction de deux hommes morts en mer.

La personne du temoin a subi, k la vdrit<$, de tr^-grands reproches, mais dans la
lettre de M. Hull k M. Bateson, on trouve nid formellement, au nom du capitaine
Waddell, plusieurs des assertions de Temple, sans qu'on y parle de la liste de T^quipage,
qui m^ritait, sansdoute, une attention spdciale, et qui, cependaut, n'est point con test^^.
Lord Clarendon, lui-meme, dans sa lettre a M. Adams du 19 Janvier 18(J6, t^indis qu'il
examine la portde de quelques indications de la liste de Temple, ne fait aucune obser-
vation quant ii Tcxactitude des chiffres.

Les otticiers l(?^aux de la couroune, eux-m^mes, dans leur avis du 28 mars 1866, tout
en refusant d'ajouter foi g<^n<Sriquement aux atTirmations de Temple, n'inhrment i>oint
spdcialepient sa liste. lis paraissent croii*e qu'aucuue des personues ^ boixl du
Shenandoah ne s'est rendue coupable d'actious pouvant donuer lieu ii des poursuites
judiciaires, et lis conseillent de laisser tomber Paft'aire.

* Amerioan Appendix, vol. ill/ pp. 501, 502.

OPINIONS OF COUNT SCLOPIS. 89

I will summarize the principal documents relative to the violation of
neutrality.

At Melbourne, the authorities believed generally that the neutrality
had been violated by Captain Waddell. The attorney-general of the
colony, in his report of the 14 th of February, 1865,* expressed, as I
think, a very sensible opinion, in declaring that the exemption which
Waddell claimed was inadmissible.

The governor had adopted this opinion while awaiting instructions
from London.t The legal advisers of the Crown, in their opinion of
the 21st of April of the same year, approved the conduct of the gov-
ernor at Melbourne. That high officer had, in fact, finally formed a
correct idea of the whole case, when, writing to the governors of the
the colonies of Australia and New Zealand, in a dispatch of the 27th
of February, 1865,J he declared that there was no doubt, from the in-
formation he had collected, that the neutrality had been flagrantly violated
hy the commander of the Shenandoah,

Finally, almost on the same day on which the law-officers of the Crown
reported that the case of the Shenandoah might be allowed to drop,
the governor at Melbourne, writing to Mr. Card well, repeated to him
that he believed the neutrality had been flagrantly violated by Captain
Waddell ; and that he had. read without surprise, though with deep re-
gret, the list furnished by Mr. Temple, which he looked upon as furnish-
ing evidence in support of his opinion. §

Lastly, in the observations which Sir Roundell Palmer, Her Britan-
nic Majesty's counsel, submitted to the tribunal, on the 21st of August,
I read that there is no doubt that a shipment of men was effected dur-
ing the night of the 17th of February, at the moment the Shenandoah
was leaving.

In presence of so imposing a mass of declarations emanating from
the British authorities at Melbourne, in view of numerical calculations,

Je r^^ume les docameDts principaux relatifs k la violation de nentralit<$.
A Melbonrne les autorit^ crareut g^ndralement que la neutrality avait ^t^ viol^e
par le capitaine Waddell. L'attorney-general de la colonie, dans son avis da 14
Uvt'ibt 1865, avait 6inis un vote fort 8eus<5, h mon avis, en d6oIarant que Texemption
doot Waddell pr^tendait jouir n'dtait point admissible.

Le gouverneur s'^tait rallid k cette opinion en attendant les instructions de Londres.
Les coQseillers l^gaux de la couronne, par leur avis du 21 avril de la m^me ann6e,
appronv^rent la couduite du gouverneur de Melbourne. Ce haut fonctionnaire s'dtait
en efiet & la tin form6 une id^e juste de I'ensemble de Taffaire lorsqu'en s'adressaut
aax goavemeurs des colonies de TAustralie et de la Nouvelle-Z^lande, dans une
d^p^he du 27 f^vrier 18G5, il di^clara n'y avoir point de doute, d'apr^ les renseigne-
Dients qu'il avait recueillis, que la Heutralit^ avait 4t4 notoirement viol4e par le commandant
du Shenandoah.

Entin, presqne an rnSme jour oti les conseillers Mgaux de la couronne opinaient
pour qu*on laissAt tombor I'affaire du Shenandoah, le gouverneur do Melbourne, en
s'adressant h, M. Card well, lui rdp<5tait qu'il croyait que' la neutrality avait 6t6 notoire-
ment violSe par le capitaine Watldell, et qu'il avait lu sans surprise, quoique aveo
douleur, la liste fournie par M. Temple, qu'il consid^rait comme une preuve h Tappui de
sou opinion.

Eutiu, dans les observations que Sir Roundell Palmer, conseil de sa Majcst6 britan-
nique, sonmit au tribunal dans la stance du 21 ao(\t, on lit : n'y avoir nucun doute
qn il H'op<Sra enibarquement d'hommes dans la nuit du 17 fdvrier au moment oti
le Shenandoah allait partir.

£u pr^ence d?une masse si imposante de declarations emau<5es des autoritds
anglaises de Melbourne, en vue de calculs num6riques qui, slls n'atteiguent pas le

* Appendix to the British Case, vol. i, p. 549.

t Ibid., p. 550.

t British Appendix, vol. i, p. 565.

i Ibid., p. 722.

90 ARBITRATION AT GENEVA.

which, if they do not attain the last decree of precision, still leave no
doubt but that Captain Waddell did actually enlist men at Melbourne,
and afterward ship then> on board the Shenandoah, for his expedition
against the whalers, I no longer hesitate to recognize the responsibility
of Great Britain toward the Government of the United States.

As to the supply of coal in so large a quantity as that which the vessel
received from Liverpool, in addition to that with which she was already
furnished, it can only be regarded as a preparation for hostile expedi-
tions against the commerce of the United States, and this falls precisely
within the scope of the second rule of Article VI of the treaty.

VI. — THE FLORIDA alidS ORETO.

Availing myself of the liberty which each arbitrator has reserved to
himself of giving to the expression of his opinion on the de-
cision of the case, such form as may appear to him most
convenient, I will abstain from following in detail here all the phases of
the career of the vessel Florida. For this, as a whole, I refer to the vo-
luminous documents which have been communicated to us, and which
have furnished matter for three separate statements by the parties. I
am not the less obliged, however, to my honorable colleagues who have
spoken before me, for the statements they have made to us of the series
of events which have led them to form a judgment, not, indeed, as yet
irrevocable, but still strongly defined as the final result of their investi-
gations.

I will confine myself, then, for my part, to informing you of the points of
fact which have had most influence in fixing my convictions on the subject-
matter of the questions which we have to decide, convictions which may
no doubt be modified in consequence (»f an interchange of opinions with
you, but which, for the moment, seem to me to be supported both by
facts and principles.

It does not seem to me to be very necessary to dilate much on the first
part of the career of the Florida, since, during that period, this vessel nei-
ther made any captures, nor assisted in any way the operations of the

dernier dejrt"6 de prdcision, ne laissent cependant aucnn doute qne le capitaine Wad-
deU a edectivement racold h Melbourne des bommes et les a eusuite eiubarques aa
bord dii SheuaDdoah, pour son exp^ditiou contre les baleiiiiers, je n'b^ite pins ^
recoDnaltre que la responsabilit^ du gouvernement britaunique est eugag^e envers le
Gouvernement des £tats-Uui8.

Quant k I'approvisionnement de cbarbon dans une quantity anssi forte que celle
qu'il re^ut de Liverpool, en augmentation de celui dont il dt^it d^j^ fourni, on ne
peut que Fenvisager comme un pr^paratif pour des expMitions bostiles au commerce
des £tats-Uni8, et cela tombe pr6cis<^ment sous la deuxi^me regie de Tarticle VI du
traits.

LE FLORIDA, ALIAS ORETO.

En me servant de la liberty que cbacun des arbitres 8*est rdserv<5e de donner h Pex-
pressioii de son opinion sur la di^cision de la cause telle forme qui lui paraltrait plus
convonable, je m'abstiendrai de suivre ici en detail toutes les pbases de la carri^re par-
courue par le vaisseau le Florida. Je m'en rapporte pour Penserable aux volumineux
documents qui nous out 6t6 comniuniqu<5s, et qui ont par trois fois fourui mati^re aux
dires des parties. Je ne snis ponrtant pas moins oblig6 aux bonorables coll^gues qui
m'out pr6c^d6 en prenant la parole des exposes qu'ils nous ont faits de la s^irie des
^vdnemcnts qui les ont conduits i\ asseoir un jugement, certes pas encore irrdvocable,
mais d^ji\ toutefois tr^fond6 sur les derniers ri^sultats de leurs investigations.

Je me bomerai done, pour ma part, i\ vous faire connaltre les points en fait qui ont
eu le plus dMnfluence h 6tablir mes convictions sur le fond des questions que nous avons
^ juger, convictions qui pourront bien se modifier par la suite de Pdcbange de vos id6es,
mais qui, pour le moment, me paraissent appuydes en fait et en droit.

II ne me semble pas tout h, fait n^cessaire de s'<?tendre beaucoup sur la premiere partie
de la carribre du Florida, puisque duraut cet espace de temps ce vaisseau u'a ni fait de

OPINIONS OF COUNT 8CL0PIS. 91

confederates. It is sufficient to state that this vessel was built in Eng-
land, that from the first she was the object of representations addressed
by the United States minister in London to the British government, and
that the hitter, with the exception of some inquiries which it instituted
as to the real destination of the vessel, made no great effort to prevent her
departure. It is also proved that if this ship was not actually a vessel of
war, she was, at all events, capable of becoming one at any moment,
and that she was registered as an English vessel, and manned by a crew
almost entirely composed of British subjects.

It is denied that the Florida was equipped for war at the time she
left the waters of Great Britain, but it results from a report of the offi-
cers of the Greyhound, a vessel of the royal navy of Her Britannic
Majesty, that on her arrival at Nassnu, the Florida had a complete war-
like equipment, and that all that was wanting on board of her were mu-
nitions of war. It further a|)pears that the captain of the vessel, when
funnallv aiul solemnly interrogated in the presence of three of his offi-
c^iFs, and of the officers of the Greyhound, whether the vessel was al-
ready thus fitted on leaving Liverpool, replied, "Yes, in all respects;
and no alteration or addition had been made whatever."

It is on her arrival at Nassau that the true character of the vessel
and the consequences of her real destination stand forth.

I nanst refer to another clear and complete declaration of the same
captain commanding the Greyhound. This document seems to me most
conclusive as to the moral aspect of the case. Captain Hickley does
not hesitate for a moment to ask the governor of Nassau to seize the
vessel.

When an officer of this rank and experience says that, in the present
condition of the Florida, his professional opinion is that, " with her crew,
guns, arms, and ammunition, going out with another vessel alongside
of her, she could be equipped in twenty-four hours for battle," all my
doahts disappear, and I become convinced of the immediate intentions
of the vessel.

captures, Di doDnd aucnn appui aux operations des conf^ddrds. II me suffit do constater
que ce vaisseau a ^t^ construit en Antjleterre, que des les premiers jours il a ^t6 I'objet
des avertissenients adressi^s par le liiinistre des £tats-Unis h L^pndres au gouverDcnient
britannique, sans que celui-ci, h part quelques renseignenients qu'il a deinand^s snr la
veritable destination du navire, se soit beaucoup occup^ d'en empdcher la sortie. II es^
^^leuient constats que, si ce vaisseau u'avait point Tactualite d*uu bA>tiraent degnerre,
il avait du moins la'capacit<^ de devenir tel ^ un moment donu<$, et quMl a 6X6 enregistr6
comnie un navire anglais et mont^ par un Equipage presque euti^rement compost de
snjets britanniques.

Od contest* I'appareil de guerre du Florida ^ F^poque oh il sortit des eaux de la
Grande-Bretiigne ; mais il r^sulte d'un rapport des officiers du Greyhound, vaisseau do
la marine royale des a Majesty britanuique, qu'^ son arriv^e h Nassau le Florida avait
un coiriplet appareil de guerre, et que seulement il manquait des munitions de guerre ilk
sou bord. II r^ulte de plus que le capitaiue de ce navire, formellement et solennelle-
meut interrog<5 en pr^^sence de trois de ses officiers et des officiers du Greyhound, si en
quittant Liv^erpool le navire 6tait i\6jh. dans cet appareil, rdpondit : ^^YeSjiu all respects;
and no alteration or addition had been made whatever J^

C'est a son arrivde sk Nassau que le caract^re propre de ce vaisseau ot les cons^uences
de sa veritable destination se dessinent.

II faut que je revienne sur une autre d<^c]aration claire et complete du m6me capi-
taine, cowniaudaut le Greyhound. Ce document me semble le plus convainquant pour
la moralit<5 de la chose. Le capitaine Hickley u'h^site pas un moment k deuiander au
gouverueur de Nassau la saisie du navire.

Lorsqu'un ofticier de ce grade et de cette experience dit que, dans la condition actu-
elle du Florida, son opinion professionnelle est '^ qu'avec son Equipage, ses canons, ses
amies «t ses munitions, sMl est accompagnd d'un autre vaisseau, it pent dtre pr^t ii livrer
bataille dans vingt-qnatre heures,'' tons mes doutes disparaisseut, et la certitude se fait
en moi des desseius immediats de ce bA.timent.

92 ARBITRATION AT GENEVA.

The situation of Nassau, which became an asylum of protection for
the Florida, increases in my view the' responsibility of England. Lord
Russell did not hesitate to tell Mr. Adams, in a letter given at page 714
of the first volume of the Appendix to the Case of the United States,
that ^^ Nassau is a position from which, on the one hand, confederate
privateers might have greatly annoyed the commerce of the United
States, and which, on the other hand, might have been a convenient
base of operations for the United States Navy.''

Under these circumstances, did it not become the imperative duty of
England to take care that all the duties of the most scrupulous neu-
tralitv were fulfilled ?

It is true that the vice-admiralty court of the Bahamas, by its judg-
ment, which is given at page 521 of the fifth volume of the Appendix
to the American Case, acquitted the Florida of every charge ; but, while
respecting the authority of the res judicata^ I ask whether it is possible
to deduce from this an argument on which to found a moral conviction
that the English government is released from its responsibility under
the rules laid down in Article VI of the treaty of Washington f I ab-
stain from repeating the considerations into which my honorable col-
leagues who have preceded me have entered on this subject.

It is not the question of special legal responsibility with which we
have here to deal, but rather that of the responsibility which results
from the principles of international law, and the moral conviction at
which we have arrived in consequence of the acts imputed to the Florida.

This conviction is strengthened by a consideration of the terms of the
conclusion of the judgment of the vice-admiralty court, where it is said,
*' that all the circumstances of the case taken together seem sufficient
to justify strong suspicion that an attempt was being made to infringe
that neutrality so wisely determined upon by Her Majesty's government."

The decision of the vice-admiralty court may then be considered as
conclusive, even if not perfectly correct, as between those who claimed
the vessel and the British government, which claimed its confiscation

La situation de Nassan, qni devint I'asile protecteur du Florida, aup^ment>e ^ mes
yeux la responsabilit^ de PAngleterre. Lord Russell n'li<^sitait pas h dire ji M. Adams,
dans nne lettre, cit^ ^Ja page 714 du premier volume de I'appeiidiee au " Case" des
£tats-Uuis, que "Nassau est une position de laquelle d'un c6t^ les coi*saires conf<6d^r^«
ont pu porter un grand trouble dans le commerce des Etats-Unis, et qui d'un autre
c6t6 a pu fournir une base d'o{»^ration couvenable pour les forces maritimes des J^tats-
Unis.

Ces circonstances donn^es, n'<^tait-il pas un devoir rigoureux pour PAngleterre de
veiUer ik ce que tous les devoirs de la jilus scrupuleuse neu trail t<5 fussent roniplis f

II est vrai que la cour de la vice-amiraut<5 de Bahama par sou jug»»ment, quMn lit
^ la page 521 du oiuquit^me volume de I'appendice au "Case" amdricain, a acquitt^ le
Florida de toute accusation ; mais tout en respectant Tantorit:^ de la chose jujj^oe, jo
demande si on pent iuduirede \^ un argument solidede conviction morale, qui ddcharge
le gouvernement anglais de sa responsabilit^ d'apri^s les r^gle8 (Stablies h I'article vl
du trait<S de Washington. Je m'abstiens de rdp^ter les d^veloppements que les hono-
rables colleagues qui m'ont pr6c(Sd(^ nous ont fournis h ce snjet.

Ce nVxSt point de la respousabilit<5 juridique sp^ciale que nous avous j\ nous occu-
per ici ; c^^st bien plut6t de la rcsp<>nsabilit6 qui derive des principes du droit des
gens ; c*est de la conviction morale que nous avous acquise par la suite des faits imput<^s
au Florida.

Cette conviction s'accrolt en considiSrant les termes de la conclusion du jugement de
la cour de vice-amiraut<S, oil il est dit'^que I'ensemble des circonstances de la cause
est de uature ^ justider de fortes pri^somptions qu'une tentative d'iufraction ti la ueu-
tralitd, si sagemeut admise en principe par le gouvernement de sa Majesty, ^tait en
voie d'ex^cution."

La d<^cision de la cour de vice-amiraut6 pent done 6tre consid^r(^e comme con-
cluante, si ce n^est comme parfaitement juste, entre ceux qui r^clamaient le navire et
le gouvernement britannique, qui en demandait la coufiscatiou d'apr^s les clauses da

OPINIONS OF COUNT SCLOPIS. 93

under the clauses of the foreign-eDlistraent act; but I do not think it is
sufficient to bar the cliaiui of the United States against Great Britain.
The United States were not parties to the suit; everything relating to
it is for them res inter alios acta.

As to the proceedings of the Florida, knowingly permitted, if not
favored by the British government, as represented by the Government
of the United States, the same British government declares, at page 78
of its Counter Case, "that it has not the means of verifying or disprov-
ing the truth of this statement. Assuming it to be true, there can be
no doubt that a violation of the sovereignty and neutral rights of Great
Britain was committed by the commander of the Flprida. But the fact
of such a violation having occurred does not argue negligence on the
part of Her Majesty's government.''

The conduct of the commander and crew of the Florida, after she was
released, justifies, and more than justifies, all the suspicions that had
been entertained as to the true character of her voyage.

As to what passed between that vessel and the schooner Prince Alfred
for the purpose of arming the former, the numerous aflfidavits given in
the sixth volume of the American Appendix offer irrefutable evidence
of the acts imputed to the Florida.

It is thus easily understood why the Florida, while equipped for war
oa her arrival at Nassau, had not, as I have mentioned, any munitions
of war on board. It was because she expected them by the Prince Al-
fred, at the spot agreed on beforehand for the scene of her operations.

Supplies of coal play a considerable part in the charges brought against
the Florida. The American Case says that, during a stay of thirty-six
hoars in the port of Nassau, she took in a suflScient quantity for three
months' navigation. I must not, however, omit to observe that the
statement of the quantity of coal is derived only from the affidavit of
John Demeritt, a laborer who had worked at putting the coal on board,
and who says that the quantity might be one hundred and eighty tons,
aa excessive quantity in the opinion of the United States Government.

fordgn-tnlistment act, mais je ne pense pas qn^elle suffise pour d^boiiter les £tat8-Unis
de lears pretentious envers le gouyeruement anglais. Les l^tats-Unis n'<Staient point
en cause ; tout ce qui tiont hi ce proc5s est pour eux res inter alios acta,

Quaut anx errcments du Florida, toldrds sciemuient, si ce u'est favoris^Ss par le
gouvemeiuent britannique, tels quo les repr^^enta le Gouvernement des fitats-Unis, le
meine gouvernement britannique d^clara, 4 la page 78 de son "Counter-case," **qu'il
n'a pas les moyens, soit de v^ritier, soit de coutester la v6nt6 de ce que Ton avance.
Tout en adniettant que cela soit vrai, il ne pent, " dit-il," y avoir de doutes qu'une viola-
tion de la souveraiuet^ et des droits de neutrality de la Graude-Bretagne a ^t^ commise.
Mais du fait que cette violation a eu lieu, on ne pent pas arguer qu'il y ait eu de la
negligence de la part du gouvernement de sa Majesty."

La conduite du commandant et de I'^quipage du Florida, apr^ qu'il fut reI4cli6,
justifie, et au-del^, tous les*soup9ons qu'on avait con^us sur le caract^re veritable de
son exp^ition.

Quant ^ ce qui se passa entre ce vaissean et la goelette Prince Alfred pour
Tarmement du premier, les nombreux affidavits relat<5s au sixi^me volume de Pappen-
dice am^ricain pen vent servir de preuve irrdcusable des faits impute au Florida.

On s'explique ainsi facilemeut pourquoi le Florida, tout en ^tant en appareil de
guerre k son arriv<$e h Nassau, u'avait pas, ainsi que je I'ai note, des munitions de
guerre b, son bord ; c'est quMl en atteudait par le Prince Alfred^ i!^ Tendroit convonu
dVvaDce pour devenir le th^Mre de ses operations.

Les chargements de cbarbon jouent un r61e considerable dans les imputations faite«
au Florida. Le ** Case" americaiu dit que, pendant un sejour de trente-six heures dans
le port de Nassau, il en chargea une quautite suffisante pour trois mois de navigation.
Je ne dois point omettre toutefois de fairo observer que I'indicatiou de la quantite de
cbarbon ne resulte que de Vaffidavit de John Demeritt, un ouvrier <][ui* avait travailie
pour le chargement du cbarbon, et qui dit que la quantite ponvait en ^tre de 180
touoes, quautite exuberaute au jugemeut du Gouvernement des £tats-Unis.

94 AKBITRATIOX AT GEXEVA.

That Goveminent aas^rts that the governor of Xassaa. who allowed
these frtcilities to the Florida, had only ja^ante^l to the Federal vessel
Dakota |>ennis:»ion to take in a mneh smaller snpply of coat. The Eng-
lish government shows the nnfoanded character ot this charge, declar-
ing that the governor of Nassau had no instmctions which forbade him
to grant |>eniiission to take more coaL and that it was the commander
ol the Dakota who did not choose to take more.

►Shortly afterward the Florida again took on board about one hundred
tons of coal in the port of Barbados. The complaints made on this
point by Rear- Admiral Wilkes only elicited an evasive answer from the
governor of the island.

Xhe United States call upon the British government to prove that it
is not in fault with regard to the facilities granted to the Florida while
that vessel was in the territorial waters of the English colonies.

Here, then, would be a case for the application of the second rale of
Article VI of the treaty of Washington, taking all the resources which
the Florida obtained at Nassau, Bermuda, and Barbados as equivalent
to the use of a base of naval o|)erations which enabled her to make prize
of fourteen vessels. Her devastations did not end there : several other
vessels of the mercantile navy of the United States became her prey,
nntil she terminated her career at Bahia on the 7th October, 18(>4.

It seems to be sufficiently proved that the facility with which the
Floritla was allowed to supply herself with coal, notwithstanding that
the English goveniment had prohibited the tormation of dei>ot8 of this
article in those colonies, was not in conformity with the strict neutrality
which should have been observed in these latitudes, whether in view of
the nature of the localities or of the sympathy which the |)opulation of
those same colonies showed for the confederate cause.

To these precise data are added a class of facts more difficidt to ascer-
tain, such as too easy compliance on the part of the English government
in allowing the time requested for repairing and refitting to be pro-
longed at the will of the commander ot the vessel, beyond what the real

CfOonvemenient pretend que le gonvemenr de Nassau, qui permettait ces largesses
an Florida, u'avait accord<5 au vai?vseau te<loral le Dacutah la permission de <*harger du
c])arl>«>n que dans nne proi>ortion fort inferienre. Le gonveruement anglai:^ fait
resMirtir It* i>eu de S4>lidit<^ de ce chef d'accnsation en as^urant que le «iouvfrneur de
Nassau n'avait aucune in.struction qui lui dcfeudit d'aeeorder la faculte de prendre
plus de cliarbou, et que c'eht le commandant du Daeotah qui u'en a pas voulu
davauta^e.

Feu de temps apres, le Florida chargea encore, dans la rade des Barbades, environ
cent tonneH de charbon. Les plaintes s^iulevees a cet <^gard par le contre-amiral
Wilkes u\>btinreiit du gouvernement de Tile qu'une refMinse evasive.

LeM EtatH-Unisdemandent que le gouvernement anglais prouve quMl n\v a pas en de
sa faute dans les facilities accord^es au Florida pendant que ce vaissean etait dans les
eaux territoriales des colonies anglaises. •

II s'agirait done d'appliquer la deuxi^me regie de Tarticle VI du trait<^ de Wash-
ington en considerant toutes les ressonrces que le Florida trouvait 2\ Xassiiu, aux Ber-
roudes et aux Barbades comme Tusage d^une base d'oix^rations navalesqni lui valurent
quatorze prises de vaisseaux. Les devastations ue se l>oruerent point la; plusienrs
autres vaisseanx de la marine commeryante des fitats-Unis devinrent sa proie, jusqu'^
ce que ce vaisseau acheva sa carriere de croisenr h Bahia, le 7 octobre 1?^.

11 parait assez prouv<? que la facility avec laquelle on laissa le Florida s*approvision-
ner de charbon, malgrd qu'il y eCit defense d'e la part du gouvernement anglais d'^ta-
blir des d<^p6ts de cette mati^re dans ces colonies, ne r^pondait pas k la stricte neutra-
lity qu'il aurait fallu observer dans ces parages, soit en vue des loailit^s, soit si cause
des sympathies que la population do ces m^mes colonies moutrait pour la cause des
coiifdderds.

A ces donn^^es' precises viennent s'ajonter des reclamations d'un genre de faits pins
difUcile h coustater, tels que le trop de condescendance du gouvernement anglais k
toldrer que le temps demand^ pour proc^der k des reparations et k des radoubs se pro-

OPINIONS OF COUNT SCLOPIS. 95

necessity of the case required. It cannot bat be acknowledged, how-
ever, that the field which the Florida had chosen for her depredations
offered special circumstances to insure her success.

As to the sta}- of the Florida in the port of Mobile, and the conse-
quences resulting therefrom, I shall confine myself to considering them
as a special proof of the decisive character of the career of the Florida,
and I adopt on this subject the answers to the objections raised by Great
Britain, contained in paragraph 25 of the observations of our honora-
ble colleague, M. Stfcrapfli. I reserve to myself expressly to treat the
question relative to the effect which may be produced by the transfor-
mation of a privateer into a vessel of war of a belligerent, when that sub-
ject, which is to be considered generally, comes before us for discussion.
I refrain from attaching to the British government any very serious
blame for the ofiicial salute returned by the authorities of Bermuda to
the salute of the Florida on her entry into that port ; this may have
l)een the personal fault at the moment of an official of subordinate rank,
bat I maintain that, in matters of habitual administration, and in what
relates to the execution of special regulations, the responsibility for acts
of all subordinate agents, in questions of controversy between two gov-
ernments, must attach to those who are charged with the supreme gov-
enimeut.

Considering the tenders as corps detached from a corps Warmee^ and
consequently as subject to the same responsibility as the principal ves-
sel, that responsibility must be extended to the cases of the Clarence,
Tacony, and Archer, which served successively as tenders to the Florida.
1 will conclude the series of opinions which I submit to my honorable
colleagues by a quotation which appears to me to have decisive weight.
Lonl Kusseli, in a dispatch to Lord Lyons of the 27th March, 1863, re-
porting a conversation which he had had with Mr. Adams, expresses
himself in these terms : " I said that the cabinet was of opinion that
the law was sufficient, but that legal evidence could not always be pro-

longeAt ail gr6 da coinmandant du navire aii deU\ de ce que le veritable besoin aurait
exi^e. Oq ue saurait toiitefois ne pas recounaitrc que le champ que le Florida avait
chuisi pour faire ses ravages r(5uuissait dos (Elements spdciaux pour lui assurer des
succ^s.

Qiiaut an 8<^jour du Florida dans lo port de Mobile ct aux consequences qui purent
en d<^river, jo me bornerai ^ les considerer conime uue preuve 8p«5ciale du caract^ro
(li^clsif de la carri^re du Florida, et j'adopte ilcesnjet les rdpouses eonteuues sous le N<*
25 de^ observations de notre honorable coll6gue, M. Staemplli, aux olyections faites par
la Graude-Bretagne. Je me reserve express<5nient de traiter la question relative j\ I'efl'et
que peut produire la transformation d'un corsaire en vaisseau de guerre d'un beUigd-
rant, loreque cette mati^re, qui doit 6tre consid<5r6e sous un point de vue g^^u^ral, en-
trera en discussion parmi nous.

Je ni'abstiendrai d'inculper trop gravement le gouvernement britannique du saint
officiel rendu par les auto{it<^s de Bermude an Halut du Florida entrant dans le port;
cela pent 6tre la faute persounelle momentande d'un employd d'un ordre infdrieur, mais
je roaintiens que dans les affaires d'administration habituelle et dans ce qui tient ii
Texi'^cution de r^glement^ spdciaux, la responsabilit<5 des faits de tons les agents subal-
terues, lorsqu'il s'agit de controverse entre deux 6tats, doit remonter ix, ceux qui tien-
nent le gouvernement supdrieur.

En considi^rant les tenders comme des corps d6tacb68 d'un corps d'armde, et consd-
qnemment snjets h la indme responsabiIit<S du vaisseau principal, on devra r<5tendre
aux cas du Clarence, du Tacony et de I'Archer, qui out servi successivement d'all^ges
an Florida.

Je finirai la sdrie d'appr^ciations que je soumets k mes honorables collogues par une
citation qai me paralt a'un poids d<^cisif. Lord Russell, dans une d<^p6che a Lord Lyons
du 27 mars 1H63, en rapportant une conversation qu'il avait cue avec M. Adams, s'ex-
prime en ces termes: " Je lui ai dit que le cabinet 6tait d'opinion que la loi sntliHait,
mais qu'on n'avait pas pu toigoars apporter des preuves legates; que le gouvernement

96 ARBITRATION AT GENEVA.

cured, tbat the British government had done everything in its power to
execute the law ; but I admitted that the ca^es ot the Alabama and
Oreto were a scandal, and in some degree a reproach to our laws."

We have now, in my opinion, to repair the effects produced by the
causes of that scandal and that reproach, no longer taking as our point
of departure the provisions of a municipal law, but the principles of in-
ternational law, and the rules laid down in Article VI of the treaty.
Great Britain thereby becomes responsible.

Having acquired a complete knowledge of the points of fact and law,
we shall now proceed to the examination of each head of claims consid-
ered separately, and to the comparative analysis of the figures contained
in the revised list of claims presented by the Department of State of
the United States, and those contained in the two reports of the com-
mittee appointed by the board of trade which have been presented by
the British government.

OPINIONS OF VISCOUNT D'ITAJUBA.

I. — THE SPECIAL QUESTION AS TO THE EFFECT OF THE COMlVnSSIONS
HELD BY THE CONFEDERATE VESSELS OF WAR WHICH ENTERED
BRITISH PORTS.

Sitting of the 25th of July.

The object of the special question submitted for the decision of the
Effect of. cmmi.- tribunal of arbitration is, to determine the extent of the
•••"^ effect which can be attributed to the commission with which

a vessel of war may be provided ; whether that effect is the same in the
case of a vessel built in conformity with the laws of neutrality, as in that
of a vessel built in violation of those laws ; that is to say, whether the
fact of holding such a commission gives to a vessel built in violation of

de la Qrande-Brotagne avait fait toat ce qni dtait en son pouvoir ponr ex6cuter la loi,
mais que je reconuai8.sai8 que les cas de I'Alabama et do TOreto avaieut 6t6 uu scandale,
et en queique degr6 un roproche ^ nos lois."

II s'agit maintenaut, ii mon avis, de rc^parer les effets produits par les causes de ce
Bcandale et de ce reproclie en ne partant plus des dispositions d'un droit municipal,
mais des principes du droit des gens, et des regies po»<5e8 ii Particle VI du traits. La
responsabilit^ de la Grande-Bretngne y est eugagde.

Bien ^difids sur les points de tait et de droit, nous allons proc^der h I'examen de
chaque chef de r<5clamations considered s6par6inent, et r\ I'analyso comparative de chif-
fres port<Ss sur la liste r^vis^^e des reclamations produite par le D<^partement d'dtat des
Etats-Unis, et de ceux port6s sur les deux rapports de la commission nomm^e par le
cotiseil de commerce produits par le gouvernemeut britannique.

La question speciale de savoir quel a ^ti Veffet des commissions possMes par les navires de

guerre confMres qui sont entr4s dans les ports hritunniques.

Stance du 25 Juillet.

La question sp<§ciale soumise k la decision du tribunal d'arbitrage a pour but de
determiner r<5tendue que Ton peut accorder & TefFet de la commission dont un navire
de guerre se trouve pourvu ; si cet eflfet est le m6me pour un navire construit en obser-
vation des lois de la neutralit<5 que pour un navire construit en violation de ces lois-
c'est-^-dire, si, par le fait de posseder une commission, un navire, construit en violation
des lois d'un 6tat neutre, a le droit d'exiger de cet dtat d'etre traits dans ses ports de la

OPINIONS OF VISCOUNT d'iTAJUBA. 97

the law« of a neutral state the right of requiring of such state, that it
shonkl be treated in its porta in the same manner as any other vessel of
war belonging to a belligerent state, and built according to law.
The question, put in this form, answers itself.

In fact, a neutral wishing to preserve his neutrality is bound to abstain

from assisting either of the belligerent parties in their warlike operations;

he is bound faithfully to guard against vessels of war, destined for the

use of one of the belligerents, being bail t or equipped within his territory ;

and, according to the latter part of the first rule of Article VI of the

treaty of Washington, he is bouud " also to use due diligence to prevent

the departure from his jurisdiction of any vessel intended to cruise or

carry on war as a.bove, such vessel having been specially adapted, in

whole or in part, within such jurisdicticm, to warlike use."

Such being the duties of a neutral, he has per contra the right to re-
quire the belligerents to respect his territor}'^; and it is the duty of the
belligerents not to commit, within the territory of the neutral state, acts
contrary to that neutrality. It is only by a scrupulous ohservanijo of
this duty that belligerents acri uire the indisputable right of exacting from
the ueutral perfect impartiality.

If, then, a vessel, built ou ueutral territory for the use of a belligerent,
fraudulently, and without the knowledge of the neutral, comes again
withiu the jurisdiction of the sovereign whose neutrality it has violated,
it ought to be seized and detained; for it is impossible to allow to such
vessel the same exterritorial rights as are allowed to other belligerent
vessels of war, built in accordance with law and without any infraction
of neutrality. The commission with which such a vessel is provided is
iusufficient to protect her* as against the neutral whose neutrality she
has violated.

And how can the belligerent complain of the application of this
principle ! By seizing or detaining the vessel the neutral only prevents
the belligerent from deriving lulvantage from the fraud committed
irithin his territory by the same belligerent; while by not proceeding

mdme niaui^re que tout autre navire de guerre appartenent h des ^tats beUig^rants
et r^guli^rement construit.

La position de la question eu ces termes porte sa r^pouse en eUe-mgnje.

En effet, le nentre qui yeut garautir sa neutrality doit s'abstenir d'aider aucune des
jparties bellig^rantes dans leurs operations de guerre ; il est oblig^ de vciUer fidMe-
ment ^ ce que, sur son territoire, on ne construise ui n'arme des navires de guerre des-
tine ^ rune des parties benigeraut(>s ; et selou la derni^ro partie de la premiere r^gle
de rarticle VI du trait6 de Wasbingtou. il est oblig!^ '* d'eniployer dgalenient les due9
diligences pour empdcher le.d<Spart bors de sa jiiridiction de tout navire destine ^
croiser ou a faire la guerre, comme il est dit ci-dessus, un tel navire ayant 6t/6 adapts
sp^ialement, en tout ou en partie, dans les limites de sa juridiction, k un emploi
guerrier."

Si tels sont les devoirs d*un nentre, il a par centre le droit d'exiger des bellig^rants
qu'ils respectent son territoire; et il est du devoir des bellig^rante de ne point com-
mettre, sur le territoire de I'dtat nentre, des actes eontraires k cette neutrality. Co
n*eet qu^en observant scrupuleusenient ce devoir que les belligdrants acqui^rent le droit
incontestable d'exiger du nentre nue parfaite impartiality.

Si done un navire, construit pour le compte d'un belligdraut sur le territoire d'uu
nentre, par fraude et h Pinsndu neutr^, se prdsente dans les limites de la jiiridiction du
sonverain dont il a viold la neutrality, il doit Stre saisi ouddtenu, car il n'est pas possi-
ble d*aci?order k un tel navire les m^mes droits d*exterritorialit6 que I'on accorde aux
autres navires de guerre belligdrants, construits r^^guli^renient et en dehors de toute
infraction k la neutrality. La commission dont un t«l navire est pourvn ne suffit pas
poor le couvrir vis-^-vis du nentre dont il a viol<^ la neutrality.

Et comment le bellig^^rant se plaindrait-il de Tapplication de ce principe f En saisis-
•ant ou ddtenant le navire, le nentre ne fait qu'empScber le bellig^rant de tirer profit
de 1» fraude commise sur son territoire par'cemdme bellig6rant, tandis que, en ne
7 B

98 ARBITRATION AT GENEVA.

against a guilty vessel, tlie neutral justly exposes itself to having ita
good faith Justly called in question by the other belligerent.

This principle of seizure, of detention, or at any rate of preliminary
notice that a vessel, under such circumstances, will not be received in
the portvS of the neutral whose neutrality she has violated, is fair and
salutary, inasmuch as it is calculated to prevent complications between
neutrals and belligerents, and to contribute toward freeing neutrals
from responsibility by proving their good faith in the case of a fraud
perpetrated within their territory.

The converse of this principle is repugnant to the moral sense, for iU
would be allowing the fraudulent party to derive benefit from his fraud,

The rules established by the empire of Brazil confirm the principle
which we have just laid down, for in its regulations respecting neutrality',
directions are given —

$ 6. Not to admit into tbe ports of the empire a beUigerent who has once violated
the neutrality ; and,

$ 7. To compel vessels which may attempt fn \ iolato the flcutrality to leave the
maritime territory of the empire immediately, Tvit;..>ut 8upplyiu«j them with anything
whatever.

In fine : the commission with which a vessel of war may be pro-
vided has not the power to protect her as against the neutral whose
neutrality she has previously violated.

n.— THE FLORIDA.

The undersigned, after a conscientious examination of all the docu-
ments submitted to the tribunal Of arbitration by the Gov-
ernments of the tJnited States and of Great Britain, relating
to the confederate cruiser the Florida,
Considering,
That from all the facts relating to the building of the Oreto* in the
port of Liverpool, and to the departure of that vessel, and of the Bahama,

procddaut point contro le navire coupable, le neutre s'expose justemeut li ceque I'aatre
bellig^rant snspecte 8 a bonne foi.

Ce principe de saisi, do detention on tout au moins d'avis prdalable qn'un navire,
dans de telles conditions, ne sera pas re^n dans les ports du nentre dont il a viol^ la
neutialit<S, est eqnitable et salutaire en ce qoMl <^vite les complications entre les neutres
et les bellig(5raiits, et contribue ji {\6'^nii;vr la responsabilit^S des neutres en prouvant
leur bonne foi vis-^-vis d'uno fraude commise sur leur territoire.

Le principe contraire froisse la conscience, car ce serait pormettre au fraudeur de
retirer b^n^^fice de sa fraude.

Les regies ^tablies par I'empire du Br6sil consacrent le principe que nous venons
d'exposer, car dans ses rtiglements sur la nentralitd il est ordonnd :

" ^ 6. De ne pas admettre daus les ports de Pempire le bellig^rant qui aura niie
fois viol6 la neutralit<$," et

" $ 7. De fairo sortir immddiatement du territoire maritime de I'empire, sans leur
fouruir la moindre chose, les navires qui teiiteraient de violer la neutrality."

En rdsumd. La commission dont un navire de guerre se trouve pourvu n*a pas pour
effet de la couvrir vis-iVvis du neutre dont il a pr^c^demment voil6 la neutrality.

I.— LK FLORIDA.

Le soussign^ — aprt>8 examen consciencieux de tons les documents sonmis an tribunal
d'arbitrage par les gouvernements des Etats-Unis et de la Grande-Bretagne relatifs
au croiseur conf6d(5r6 le Florida :

Considdrant que de tons les faits relatifs i\ la construction de rOreto*llansle port de
Liverpool^et h la sortie de ce navire, ainsi que du Bahama, charg6 d'armemeut poar

* First name of the Florida.
t Premier nom da Florida.

OPINIONS OF VISCOUNT d'iTAJUBA. 99

freighted with arms for the Oreto, which facts did not induce tbe Brit-
ish authorities to employ any measures calculated to prevent the viola-
tion of the neutrality of Great Britain, notwithstanding tlie repeated
warnings and representations of the diplomatic and consular authorities
of the IJnit/ed Statas, it is evident that the government of Her Britannic
Majesty neglected to use due diligence for the fulfillment of its duties as
a neutral ;

Considering,
Tbat from all tbe facts relating to the stiiy of the Oreto at Nassau, to
her seizure in that port, to her acquittal, to her departure from that
port, to the enlistment of a crew, to her taking in supplies, to her arma-
ment at Green Gay, with the assistance of tiie English vessel Prince
Allre<l, it is evident that there was negligence on the i)art of the Eng-
lish colonial authorities;

Considering,
That in spite of the evident infractions of the neutrality of Great
Britain committed by the Oreto, this same vessel, then known as a con-
federate cruiser, under the name of the Florida, was again on several
occasions freely admitted into the ports of the British colonies ;

Considering,
That the fact of the entrance of the Florida itito the confederate port
of Mobile, and of her stay of four months in that port, cannot deter-
miue the responsibility previously incurred by Great Britain ;

Is of opinion.
That Great Britain failed to fulfill the duties prescribed in the rules
laid down in Article VI of the treaty of Washington, and that she is
consequently responsible for the acts imi)uted to the confederate cruiser
Florida, as well as for those imputed to her tenders, the Clarence, the
Tacony, and the Archer.

III. — THE ALABAMA.

The undersigned, after a conscientious examination of all the docu-
ments submitted to the tribunal of arbitration by the Governments of

rOretOjlesqnels faitsn'ameii^ront de la part des autorites britanniquesremploid'aucunes
mesnres propres ti,/emp6cher la violation rU; la ueutralite do la Graude-Bretague,
nial^rd lt;s avis et lea reclamations rditc^r^es des aiitoritf^s diplouiatiques cfc consulaires
des fitats-Uuis, il^ressort que le gouvcrnemcDfc de sa Majestc britannique a n^glig^
d'employer lea due diligenceii pour le maiutien des devoirs de sa nentralit<S;

Cousid^rant que, detous les faits relatifsan s^jour del'Oreto a Nassau, iisasaisie dans ce.
port, a son acqnittenient, h, sa sortie de ce port, k I'eur61enient d'un Equipage, i\ son appro-
visiouneiucnr, a son armenient avee I'aide du bateau anglais lo Prince Alfred k Green
Cay, il ressort qu'il y a eu ndgligence de la part des autorites coloiiiales auglaises ;

Considdraut que, malgr^ les infractions 6videntes a la ueutralit<5 de la Grande-Bre-
tague, coniniises par I'Oreto, ce ni6me navire, alors connu comuie croiseur couf6d6T6
80U8 le noni de Florida, fut encore k plusieurs reprises libremeot adniis dans les ports
des colonies britanuiques ;

Cousid^rant que le fait de I'entrde du Florida dans lo port C0Qf<5d6r<^ de Mobile, et
de son s^jnur dans ce port pendant quatre mois, ue saurait ddtruire la responsabiliU^
ant^rieurement encourae par la Grande-Bretagne —

Est d'avis que la Grande-Bretagne a nianqu^ aux devoirs presents dans les regies
Stabiles par rarticle VI du traits de Washington, et que, par consequent, elle est
responsable des faits imput^Ss au crosieur coui'6i\6T6 le Florida, aiusi que de ceux: im-
pute k sea uavires auxiliaires le Clarence, le Tacony, et TArcher.

II. — l'alabama.
Le 80ii88ign6 — apr^ examen consciencieux de tons les documents soumis au tribunal

100 ARBITRATION AT GENEVA.

the UDited States and of Great Britain, relating to the conf

cruiser, the Alabama,
Considering,

That from all the facts relating to the building of the 290* in t-
of Liverpool, to her equipment and armament on the coast of T
by the aid of the English vessels Agrippina and Bahama, afll
English vessel Hercules had conveyed a crew on board of hei
evident that the government of Great Britain neglected to use d
igence for the fuinilment of its duties a^ a neutral, since, m
standing the repeated warnings and representations of the dipl«
and consular authorities of the United States while the 290 ^
course of construction, no suitable measures were taken, and
which were at length adopted for the arrest of the vessel were o:
so late that they could not be executed ;
Considering,

That, after the escape of the vessel, the measures taken for pu)
and arresting her were so incomplete that they led to no resul
cannot be considered as sufficient to free Great Britain from re^^v,^^
bility ;

Considering,

That, in spite of the flagrant infractions of the neutrality of Great
Britain committed by the 290, this same vessel, then knowu as a con-
federate ctuiser under the name of the Alabama, was again admitted
on several occasions into the ports of British colonies, whereas she
ought to have been proceeded against in the first British port in which
she might have been found ;
Is of opinion.

That Great Britain failed to fulfill the duties prescribed in the rules
laid down in Article VI of the treaty of Washington, and that she is
consequently^ responsible for the acts imputed to the confederate cruiser
Alabama, as well as for those imputed to her tender the Tuscaloosa.)

d'arbitrage par les ffonvernements des £tato-Unis et de la Grande-Bretagne relatifs an
croisenr coDf6d^r^ P Alabama :

Consid^rant que, de tous Ics faits relatifs 4 la coDstrnction du **290/' dans le port de
Liverpool, ^ sou ^niperaent et armement sar les c6tes de Terdeira par les soins dee
bateaux auglais PAgrippiua et le Bahama, apn^s quo le navire auglais le Hercule lui eat
amend un Equipage, il ressort clairemeut que le gouvernement de la Qrande-Bretagne
a ndgligd d'employer les dues ediligences-pouTle maintien des devoirs de sa Deatralit6,
puisque, mali^r^ les avis et reclamations T6\t6T6es des autoritd^ dinlomatiques et cou-
Bulaires des Etats-Unis pendant le cours de la construction du '*29(^" on neprit aacune
mesure convenable, et que celles finaleuient prises pour faire arr^ter lo navire fdrent si
tardivement ordonndes nu^elles ne purent 6tro ex<Scut<5e8;

Considdrant qu^apr^s la fuite du navire les mesures prises pour le poureuivre et le
faire arrfiter furent si incompletes qu'elles n^amen^rent ancun r6sultat, et ne peuvent
Hre consid<5r(^escomme suffisantes pour ddgager la responsabilit*^ dela Grande-Bretagne;

Consid6rant que, malgr6 les infractions dagrantes ^ la neutrality de la Grande-
Bretagne commises par le "290," ce m^me navire, alors coiinu comme croisenr con-
f6^6r6 sous le nom do TAlabaraa, fnt encore admis ii plusieurs reprises dans les porta dee
colonies britanniques, quand il aurait fallu procdder contre lui dans le premier port
britannique oh il aurait 6t6 rencontrd —

Est d'rtvis que la Grande-Bretagne a manqud aux devoirs presents dans les regies
dtablies par rarticle VI du trait^S de Washington, et que, par consequent, elle est res-
l>onsable des faits imput6s an croisenr couf6d6T6 FAlabama, ainsi que ceox imputes ^

SOD navire auxiliaire le Tuscaloosa.

•

* Number by which the Alabama was originally designated.

OPINIONS OF VISCOUNT d'iTAJUBA. 101

m— THE VESSELS (1) THE GEORGIA, (2) THE SUMTER, (3) THE NASH-
yiLLE, (4) THE RETRIBUTION, (5) THE TALLAHASSEE OR OLUSTEE,
(6) THE CHICKAMAUGA.

The undersigned, after a coiiscieutious examination of all the docu-
meDts submitted to the tribunal of arbitration by the Gov- G^omn sumwr
ernments of the United States and of Great Britain, relat- f::,'':%u]lC:^:
ing to the confederate cruisers, chick«mau«n.

Thie Georgia,
^ The Sumter,
* The Nashville,
The Retribution,
The Tallahassee or Olustee,
The Chickamauga,
Is of opinion.

That Great Britain did not fail to fulfill the duties prescribed in the
roles laid down in Article VI of the treaty of Washington, and that
she is not responsible for the acts imputed to these vessels.

V.-rHE VESSELS SALLIE, JEFFERSON DAVIS, MUSIC, BOSTON, V. H. JOY.

With regard to the vessels,
TheSallie, .u ..r.

-_, -r M* f^ • Salhc, Jeff. Davi»,

The Jeflferson Davis, ^y^, B^ton, v.

The Music,

The Boston, f

The V. H. Joy,
The undersigned is of opinion, •

That they should be excluded from discussion by the tribunal for
want of evidence.

VI. — THE SHENANDOAH.

The undersigned, after a conscientious examination of all the docu-

m.— LES NAVIRES (1),LE GEORGIA, (2) LE SUMPTER, (3) LE NASHVILLE, (4) LE RETRI-
BUTION, (5) LE TALLAH.V8SEE OU L'OLUSTEE, (6) LE CHICKAMAUGA.

Le soiissigu^ — apr^ examen coiiHciencioux de tons les dociinieuts Hoiiuiis an tribunal
d'arbitrage par les gouvernements des £tats-Unis et de la Graode-Bretague, relatifs
aux croiseora coDf(6d6r68

Le Greorgia, ^

Le Sumter,

Le Nashville,

Le Retribution,

Le Tallahassee, ou TOlustee,

Le Chickamauga —

Est d^vvis que la Graude-Bretagno n'a pas manqu6 aux dev^oirs presents dans les
regies Stabiles par VarticleVI du trait6 do Washington, et qu'elle u'est pas responsable
des faits impute k ces navires.

IV. — LES NAVIRES SALLIE, JEFFERSON DAVIS, MUSIC, BOSTON, V. H. JOY.

Le Bonssignd— quant aux navires

Le Sal Ho,

Le Jefferson Davis,

Le Music,

Le Bof?ton,

Le V. H. Joy—

Est d^avife de les 61iminer des deliberations du tribunal, faute do prouves.

V. — LE SHENANDOAH,

Le soassign<S — apr^ examen consciencieux de tous les documents soumis au tribunal

102 ARBITRATION AT GENEVA.

meuts submitted to the tribunal of arbitration by the Governments of
the United States and ot Great Britain, relating to the con-

Shenandoah. t' 3 ^ • j.% ni ji

federate cruiser the Shenandoah,
Considering,

That from all the facts relating to the departure from London of the
merchant- vessel Sea King,* to the departure from Liverpool of the
Laurel, to the meeting of these two vessels near the island of Madeira,
to the transfer of the armament and crew from one of these vessels to
the other, and to the transformation of the Sea King into a confederate
cruiser under the name of the Shenandoah, it is evident that the goy-
ernment of Her Britannic Majesty cannot be accused of having neg-
lected to use due diligence for the fultilliuent of its duties as a neutral ;
Considering,

That while, on the one hand, it is evident from all the facts relating
to the stay of the Shenandoah in the port of Melbourne that some few
irregularities occurred, such, in particular, as the augmentation of her
crew, on the other hand there is no proof that these irregularities can
be laid to the charge of the government of Her Britannic Majesty or
imputed to the negligence of the English authorities, but that they
were the consequence of the violation by Commjyider Waddell of his
word of honor, and of the exceptional difficulties of surveillance which
the conformation of the port presented ;
Considering, moreover.

That the governor of the colony having, after the departure of the
Shenandoah, become aware of the violation of neu^ality of which this
vessel had been guilty, resolved thenceforth to refuse hospitality to
Lieutenant Waddell and the other officers of the Shenandoah, and
wrote fn this sense to the naval and civil authorities of Australia,
requesting them to act in the same way, a fiict which contributes toward
releasing the government of Her Britannic Majestj^ from any responsi-
bility;

Is of opinion,

That Great Britain did not fail to fulfil the duties prescribed in the

d'arbitrage par les gouv erne in outs des ^Itats-Unis et de la Graude-Bretagne, relatifs au
croiseur conf^d^rd le Shenandoah :

Considc^rant que, do tons le-s faits relatifa au d^purt do Londres du navire marchand
le Soa King, au depart do Liverpool du Laurel, i\ la rencontre de cos deux navires pr^s
de I'lle de Madere, au trausbordoinent do Parinomeut et de r<5quipage de I'un de ces
navires sur Tautre, et k la transformation du Sea King en croiseur conf^d^rd sous le
Doni de Shenandoah, il ressort claironiont quo Ton ne sanrait accuser le gouvernemont
do sa Majestd britanniqno d'avoir neglig6 d'employer les dues diligences pour le maintien
des devoirs de sa neutralitc ; ■

Considcrant que si, d'un c6t<$, de tons les faits rolatifs au sdjour du Shenandoah dans
le port de Melbourne, il ressort qu'il y a eu quelques irrc;;uIarltJ5s comiuises, tolles sur-
tout que I'augineutation delVquipage; d'un autre cAtd, il n'est pas prouvo que ces
irr(5gularit<5s puissent 6tro mises h la charge du gouverneinent de sa Majest<$ britannique
et imputi^es.a la negligence des antoritc^s anglaises, luais qu'elles ont dr6 la consequence
do la violation do la parole d'honneur donn^e par le commandant Waddell, et des diffi-
cult^s exceptionnolles do surveillance que pr^sontait la conformation du port ;

Considdrant, en outre, que le gouverneur de la colonic, ayant appris apr^s le depart
du Shenandoah la violation do neutralitc dont co navire s'6tait rendu coupable, d6cida
de refuser dorduavant I'hospitalite au lieutenant Waddell et aux autres ofticiers du
Shenandoah, et ecrivit dans CO sens aux autorities navales et civiles de I'Australie en
les priant d'agir de meiue, ce qui contribue k ddgager la responsabilite du gonverue-
ment de sa Msijeste britannique —

Est d'avis que la Graude-Bretagne n'a pas manqu6 aux devoirs prescrits dans les

* First name of the Shenandoah.

OPINIONS OF MR. ST.EMPFLI. 103

rales laid down in Article VI of the treaty of Washinorton, and tbabsbe
is consequently not responsible for tbe acts imputed to tbe confederate
cruiser Sbenandoab.

OPINIONS OF MR. ST^MPFLI.

I.— OPINIONS ON THE QUESTIONS OF LAW AS TO WHICH THE TRIBUNAL
OP ARBITRATION, AT ITS SITTING OF JULY 25, 1872, REQUESTKD
• ELUCIDATIONS FROM THE COUNSEL OF THE HIGH PARTIES PRESENT
AT THE BAR.

M. Staempfli states that be sees no pprejit advantage in wandering
intolon^ descriptions and theoretical interpretations on tbe questions
of due diligence, the effect of commissioning^ and the fiupply of coal. He
sets forth orally and succinctly his views on these beads, reserving to
hima^lf the right of giving more precise reasons for their application in
each particular case, and confines himself for the present to laying
down tbe following principles only, which will serve him for his general
guidaDce.

General Princii)les of Law.

(Programme inserted in Protocol X, Article A, No. III.) *

In its decisions on points of law, the tribunal should be guided by
the following principles:

I. In the first place, by the three rules laid down in Article VI of tbe
treaty, which provides that— Rai«,r.thetre.i,

Uke precedence.

In deciding; the matters submitted to the arbitrators they shall be governed by tho
following three rules, which are agreed uptin by the high contracting parties, as rules
to betaken as applicable to the case, and by such principles of internatiouul law, not

regies ^tablies par Tarticle VI du trait6 de Washington, et quo, par consequent, elle n'est
pas responsable des fails imputes au croiseur coufod^re le Shenandoah.

Ojrinians sur les questions de droit sur leaqnelles le tribunal d'arhitraffe^ dantt sa stance du
^> Juillet 1872, a denuind4 des 6claircis9ifnwnls aux oonseils des hautes parties pr^sentes a
la oarre,

M. Staempfli declare qu'il ne trouve pas t^^s-opport^n de so perdre, pour les trois
qaestions des dues diligences de Veffet de conimisHions et des approvisionncmtntH dc charbonf
dans de longufs discussions et interpretations thdoriques. II d^veloppo oralement et
domniairemeut ses vuesy relativOvS, en se re.servant de moiiver de plus pivs leiir appli-
cation dans chaque cas special, et so borne pour le moment h poser les seuls piincipea
suivants, qui lui serviront do direction g<5u(5rale.

PRINCIPES g6n6rAUX DK DROIT.

(Programme ins^rd dans le protocole X, Art. litt. A, No. III.)

Dau.s ses consid^rants juridiques, le tribunal doit se guider par les principcs
snivant49:

1*>. En premier lieu, par les trois regies poshes dans Tarticle VI du trait(5, Icquel
porte que —

" Dans la decision des mati^res h oux sou raises, les arbitres seront guides paries
trois regies suivautes, que les hautes parties e;)ntractaute8 sout convenues de regarder
comme des regies ^ prendre comuie applicables h la cause, et par tels principeh dii droit

104 ARBITRATION AT GENEVA.

inconsistent therewith, as the arbitrators shall deteriniae to have been applicable to
the case :

RULES.

A neutral government is Uonnd —

First. To use diligence to prevent the fitting out, arming, or equipping, within its
jnriMliction, of any vessel which it has reasonable ground to believe is intendtid to
cruise or to carry on war against a power with which it is at peace; and also to use
like diligence to prevent the departure from its jurisdiction of any vessel intended to
cruise or carry on war as above, such vessel having been specially adapted, in whole
or in part, within such jurisdiction, to warlike use.

Secondly. Not to permit or snffer either belligerent to make nseof ita ports or waters
as the base of naval operations sigainst the other, or for the purpose of the renewal or
augmentation of military supplies or arras, or the recruitment oi men.

Thirdly. To exercise due diligence in its own ports and waters, and as to all persons
within its jurisdiction, to prevent any violation of the foregoing obligations and
duties.

According: to the treaty, these three rules take precedence of the
principles which might be drawn from historic international law and
from science.

2. Hi.storical international law, or the practice of the law of nations^
as well as science and scientific anthorities, may be considered as sub-
sidiary law, in so far as the principles to be applied are generally rec-
ognized, and are not liable to controversy, nor at variance with the three
rules quoted above. If one or other of these conditions fail, it is for the
tribunal to supply what is wanting by interpreting and applying the
V thre^ rules to the best of its power and in all conscientiousness.
> 3. The laws of a state touching neutrality do not constitute an
M.nir. niiaw.. el^iient of thc law of nations in the sense that they can-
not, at any time, be altered, modified, or added to without
the co-operation or consent of other states, the law of nations itself be-
ing absoluely independent of these municipal laws ; yet, so long as there

- — — ■ ■ ■ — — — I

des gens fpii, sans dtre en disaccord avec ces regies, auront 6t6 reconnns paries arbitres
comme ayaut 6i6 applicables dans Tespt^ce :

" RAGLES.

" Un gouvernement neutre est tenu —

" I De fain^ les dties diligences pour pr6venir la raise en 6tat, Tarmement en guerre
ou Tdquipenient, (fitting outy arming, or equipping,) dans sa juridiction, de tout vaisseau
quHl e^t raisounablenient fond<5 a croire destind '^ croiser ou h fairela guerre contre une
puissance avec laquelle ce gouvernement est en paix ; et de faire aussi mdme diligence
pour em p6cher le depart hors de sa juridiction de tout navire destin<$ ^ croiser on Ik
faire la guerre coranie il est dit ci-dessus, ce navire ayant ^t^ 8p<k;ialeraent adapts, en
tout ou en partie, dans les liraites de sa dite juridiction, k des usages bellig^rants.

'^2 De ne perraettre ni sonffrir que Tun des bellig^rants fasse usage de ses ports on
de ses eanx comme d'nne base d'opdrations navales contro Tautre, ni pour renonveler
ou angmonter ses munitions railitaires ou sou armement, ou s'y procurer des recrues.

"3 D'exercer les dues diligences dans ses propres ports et eanx, et,h lYgard detoutes
personnes dans les limites de sa juridiction, afin d'empdcher touto violation des obliga-
tlons et devoirs pr^c^ents."

D'apres le traits, ces trois regies prevalent sur les principes que Ton pourrait
ddduire du droit des gens historique et do la science.

2° Le droit i\v» gens histgrique, ou bien la pratique da droit des gena, ainsi que la
science et les autorit<5s scientifiques, peuvent etre consid^r^s comme droit subsidiaire,
en tant que les x)rincipes k appliquer sont g<Sndralement reconnus, et ne sont point sujets
k controverse, ni en disaccord avec les trois regies ci-dessus. Si Tune ou Pautre de
ces conditions vient k mauquer, c'est au tribunal d'y supplier en interpr^tant et appli-
quant les trois regies de son raieux et eu tonte conscience.

3° Les lois sur la neutrality propres k nn <5tat ne constituent pas nn <Sl<^ment du droit
des gens dans le sens qu'elles ne peuvent 6tre, eu tout temps, chang6es, modifi€es*oa
conipl6tdt».s sans la coop<5ration ou le consentemeut d'autres <$tat«, le droit des gens Ini-
niOme <^tunt absolument iud^pendant de ces lois municipales; cepeudant, tant que dans

OPINIONS OF MR. ST^MPFLI. 105

exist snch laws in a state, and they have not been abrogated, belliger-
ent states have the right to require their loyal observance, as other-
wise frauds or errors might be committed, to the detriment of one or
other of the belligerents ; as, for instance, when there is known to exist
(although no attention may be paid to it) a decree forbidding a bellig-
erent vessel of war to remain in a port for more than twenty- four hours,
or to take on board more coal than is necessary for her to reach the
nearest ^ort of her country, or to obtain fresh supplies in the same port
within three months.

This principle, at the same time, implies that the absence of all muni-
cipal laws, or the want of sufficient laws on the subject, does not, in any
way, detract from the law of nations, either as regards international
obligations or rights.t

Moreover, the following principles are admitted, which are cited here
to avoid a repetition of them in the judgment to be given respecting
\ each ol the vessels.

^ 4. The "due diligence^ to be exercised implicitly comprises vigilance
and initiative on the part of the neutral itself, with the object
of discovering and preventing any violation of its own neu-
trality. A belligerent state is neither bound, nor has it the right, to
exercise surveillance or to perform police duties in a neutral state in
lien of the local authorities. |

5. The fact that a vessel, built in contravention of the laws of neu-
trality, escapes and gets out to sea, does not free that ves-
sel from the responsibility she has incurred by her violation * •**°"»""*"**»"
of neutrality ; she may, therefore, be proceeded against if she returns
within the jurisdiction of the injured state. The fact of her having been
transferred or commissioned in the meanwhile, does not annul the
violation committed, unless the transfer or commissioning, as the case
may be, was a bona-Jide transaction.

M. Staempfli, following the programme inserted in Protocol X, takes
this opportunity of causing his proimsitious relative to Article A, Nos.
I and II of the said programme, to be also printed :

no 6tAt il sabsiste des lois pareilles et qn'elles n'out pas ^t^ abrog^es, des ^tats be]lig6-
niDte ODt le droit d'en r^clainer Fobscrvatioii loyale, puisque saus cela il pourrait se
comtiiettre des fraiides on des erreurs an detriment de I'na on de Tantro des bellig6-
rants, eouime, par example, qnaud snb8iste pnbliqneuient, bien qn'on ue Tobserve pas,
I'ordonnaDce qui defend k nn navire bellig^rant de s^joarner plus de viugt-quatre
heares dans nn port, on d'embarquer plus de charbon q^nUl ue Ini en faut pour regagner
le port de son pays le pins rapproch6, ou de s'approvisionner de nouveau an nidme port
avant que trois raois se soient ^coul^s.

Ce principe iniplique en nidme tems que le manque de toutes lois innnicipales, ou le
manque de lois snffisantes sur la mati^re, ne ddroge en rien an droit des gens, soit aux
obligations et anx droits internationanx.

£n outre, sont admis encore les priucipcs snivants, que I'bn cite ici afin d'en ^viter la
T^p^tition dans le jugement & porter sur cbacun des vaisseanx:

4° Les ** dues diligences'' ^ exercer coniprennent implicitement la py'opre vigilance
et la propre initiative dans le but de d^couvrir et d'empdoher toute violation de la

Eropre neutralitd; un 6tat bellig^rant n'a ni le devoir ni le droit d'exercer la surveil-
mce, ni de faire la police dans un ^tat neutre d> la place, des aut>orit^ du pays.
5* Le fait qn'un vaissean, constmit contrairement aux lois de la neutrality, s'^chappe
et gagne la mer, ne d<^charge pas ce vaissean de la responsabilit^ qu'il a encourue poor
avoir viol6 la nentralit'6; il pent done 6tre poursuivi s'il rentre dans la jnridiction de
r^tat l^s^. Qne ce navire ait ^t^ c^l^ ou commissionn^ dans Tintervalle, ce fait ne
di^tmit pas la violation commise, h moins que la cession on le comniissionnement, selon
le qas, ii'uit eu lieu bond fide.

M. Staempfli, donnant suite an programme ins^r^ au protocole X, fait k cette occa-
sion imprimcr auasi ses propositions relatives ^ Particle litt. A, N<>* I et II, du dit
programme:

106 AKBITRATIOX AT GENEVA.

(A.) General indications.

L — Question to be decided.

The qnestion to be decided by the tribaoal is laid down in the follow-
Q»«t«« to be de^ ing trords in Article VII of the treaty :

The 8aid tribnnal fhaU first determioe as to each vessel separately whether Great
Britain ba.H, bv anv act or oinissioo, failed to fnlfiU anv of the dntiets set forth in the
foregoing three roles, or reoojjnized by the principles of international law not incon-
sistent with such rales, and shall certify such fact as to each of the said Tessels.

Moreover, the tribunal is anthorized, if it think proper, to proceed
eveutoally to award a sum in gross in payment of all claims.

IL — Definition of facts.

The cases and documents put in by the two powers contain a quantity
of i'ACts which should not be taken into consideration in the
B.tioe acu. jmigji^^jj^ ^Q j^ prouoniiced by the tribunal. Notably :

1. The recognition of the insurgent States as a belligerent power by
the British government.

2. Expressions of sympathy or antipathy during the war, individual
speeches in or out of Parliament or other official assemblies, the attitude
of the press, &c.

3. The permission granted for the trade in arms, and for the departure
from port of ships intended to run the blockade, in so far as there is
nothing in the toleration of either of the^e acts which is at variance
with the ji^ohibition to arm or equip vessels of war and cruisers.

4. The historical precedents of the violation or unequal execution of
neutrality laws and of judicial decrees, in so far as they relate to prin-
ciples of the law of nations which are now open to controversy.

(A.) — Indications g^n^rales.

I. — Qu^iion d decider.

La qnestion k d^ider par le tribanal est pr6cis^« de la mani^re suiTante dans
Particle VII du trait4S:

^^Le dit tribunal cotnmencera par determiner, pour chaqne navire s^par^ment. si la
Grande-Bretagne a manque, par une action on nne omission, ^ reraplir des devoirs
^Donc^s dans les trois pr^o^dentes regies, on reconuue^ par les principes du droit des
gens qui ne sout pas en desaccord avec ces regies, et il certitiera ce fait ^ regard de
chacun des navires snsdits."

En outre, le tribunal est charg<6 ^ventuellement de proc^er, sHl le juge convenable,
k Fadjudication d'une somme en bloc pour toutes les reclamations.

II. — Delimitation des faits.

Les m^moires et prices prodnits par les deux parties contiennent nne foule de faits
qai n'entrent pas en consideration dans le jugemeut ik rendre par le tribanaL Tels
sont notamment:

1. La reconnaissance par le gouvemement britanniqae des etats insnrg6s comme
puissance bellig<Srante;

2. Los expreskiions de sympathie on d^antipathie durant la gnerre, les discours indi-
viduels an sein on ea dehors des pariemeuts oa autres corps officiels, Tattitude de la
presse. Sec.;

3. La permission du commerce des armes et de la sortie des porta de navires destines
h traverser le blocus; en tant qu'il n'y a rien dans la permission de Tun ou do Pautre
de ces actes qui soit en disaccord avec la defense d'armer on d'^quiper des vaisseaax.
de gnerre et des croseurs ;

4. Les precedents historiquee de violation on d'inegal maintien des lois de la nea-
tralite et les arrets judiciaires, en taut qu'il n'en decoule point des principes da droit
de gens, non sujets ^ controverse.

OPINIONS OF MR. ST^MPFLI. 107

The facts to be taken into consideration by the tribunal are only the
acts and omissions of Great Britain with regard to each of the vessels
which form the subject of a comphiint on the part of the United States.

Proposal of M. Staempfli under Article A. " Preliminary decisions^ of

the programme inserted in Protocol X.

(B.) — Decision with regard to each of the cruisers.

Preliminary decisions.

It is admissible that the United States should extend their claims to
other vessels besidft the four mentioned in the British case,
Yizy the Florida, Alabama, Georgia, and Shenandoah. More- .rrt*X*«4jud'lISd
over, the British counter case does not insist on the objection "'*"'
made on this head.

On the other hand, and from the very nature of things, no account
can be taken of the claims for indemnity for losses caused by vessels
Dot mentioned in the pleadings of the United States, and with regard
to which, consequently, no act or omission in violation of neutrality is
advanced or proved against Great Britain. This has reference to the
cruisers named only in the lists of claims for losses, viz, the Boston,
Jeflf. Davis, Sallie, V. H. Joy, and Music.

According to the rules thus laid down, the vessels remaining for dis-
cussion are the following :

1. The Sumter. 6. The Georgia.

2. The Nashville. 7. The Tallahassee.

3. The Florida and her tenders.' 8. The Chickamauga.

4. The Alabama and her tender. 9. The Shenandoah.

5. The Retribution.

In discussing each of these vessels, the order followed by the
American case, coinciding with the above list, will be adhered to.

Les faits qne le tribaual doit prendre en consideration ne sont que les actions et les
omissions de la Grande-Bretagne ii I'^gard do cbacun des vaisseaux qui forment Pobjet
d'aue plain te de la part des £tats-Unis.

Propo9ilion de M, Staempfli d Varticle litt, Aj " d^cisiona prSliminaire8f^^ du programme

ins4r6 au protocole X, -

B. — DlfeCISION RELATIVE A CHACUN DES CROI5EURS.

Decisions preliminairea,

II est admissible qne les ^tats-Unis 6tendent lenrs reclamations & d'antres vaisseaux
qne les quatre nientionnds d.ans le menioire britaunique, ii savoir, le Fiorida^rAlabama,
le Georgia et le Shenandoah. Le coutre-me moire britannique ne maiutient d'aiileurs
pins Tobjection faite ^ cetdgard.

Par contre et d^s le principe, Ton ne prendra point en consideration les demandes
d'indemnite pour destructions causdes par des vaisseaux qui ue sont point ineutionnes
dans les mdmoires des ^^tats-Uuis, et k I'd^ard desqnels, par consequence, I'on n'avance
ni De prouve aucuu acto ni aucune omission contraires ^ la neutralite, d, la charge de
la Graude-Bretugne. Ceci a trait aux croiseurs qui ne sont indiques que daus les
lifites de reclamations pour pertes — c'est-^dire, le Boston, le Jeff. Davis, le Sallie, le
V. H. Joy, et le Music.

I^apr^s ces directions posdes, les navires restant en discussion sont les suivauts :

1. Le Sumter. 6. Le Georgia.

2. Le Nashville. 7. Le Tallahassee.

3. Le Florida, avec see tenders* 8. Le Chickamauga.

4. L'Alabama, avec son tender, 9. Le Shenandoah.

5. Le Retribution.

En traitant de chacun des vaisseaux. Ton adopte Tordre suivi imv l^nemoire ameri-
cain coincidant avec celui qui vient d'etre tracd.

108 ARBITRATION AT GENEVA.

Proposal of M. Staempfli as to the form of introduction to the judgment.

The tribunal of arbitration on the Alabama question, constituted by
virtue of the treaty of Washington of May 8, 1871, having taken
cognizance of that treaty and of the cases, counter cases, and argu-
ments, as well as of all the appendices and documents in evidence pre-
sented by the two governments concerned, has found and determined
what is recorded in the present judgment.

n. — THE FLORIDA.

(A.) — Fa4)ts and considerations. *

The facts relative to this vessel are so complicated and so various,
that, for the sake of clearness and brevity, they cannot be

Florida.

stated apart from the considerations.

I. — Construction and equipment of the ship at Liverpool, and her departure

from that port.

1. This vessel was first known under the name of the Oreto; she was
a screw gun-boat, of 700 tons burden, with two funnels and three masts;
she was ordered from Fawcett, Preston and Co., of Liverpool, by Bul-
lock, military agent of the insurgent States, soon alter his arrival in
England, in the course of the summer of 1861.

2. Representation of the American minister, Adams, to Lord Russell,
dated February 18, 1862, founded upon a communication made to him
by Dudley, the American consul at Liverpool, and describing the Oreto
as a " war-steamer," intended to commit hostilities against the United
States, naming also the persons who had taken part in the ordering of
the vessel, declaring that Fraser, Trenholm & Co., of Liverpool, ^finan-
cial agents of the insurgent States,) had advanced the funds, ana that,
if necessary, he would produce further evidence.

PropoHtion de M, Staempfli aur laformule d'introduotion de Vacte dujiigemeni.

he tribuual d^arbitrage dans la question de PAlabama, institud en verta da traits
de Washinfrton du 8 mai 1871, apr^s avoir pris connaissance de ce traits et des
mdmoires, rdpliqnes et plaidoyers, ainsi que de tons len appendices etdes pieces ^I'appni,
prdsent^ par led deux gouverDements int^ress^, a troavd et arrdtd ce qui est consign^
dans le present acte da jugenient.

Le Florida.

(A.) — FaITS KT CONSIDl^RANTS.

Les faits relatifs k ce vaisseaa sont tellement oompliqads et si vari^ qae, par
raison de clartd et de bri^vet^, ils ne peuvcnt se d6crire ^ part des considdrants.

I. — Construction et 4quipement du navire d Liverpool et sa sortie du port.

1. Ce vaisseaa fut d'abord connu sous le nom de I'Oreto ; c'dtait une cannoni^re k
h^lice, jaageaut 700 tonueanx, munie de deux ohemindes et de trois in&ts ; il fut com-
mand^ chez Fawcett, Prestou et C*% k Liverpool, par Bullock, agout militaire des
6tat8 iusurg^S; pea de temps apr^ son arrive en Angleterre, dans le oonrant de V6t6
1861.

2. R^lamation du ministre am6ricain, Adams, h Lord Russell, en date du 18 fdvrier
1862. s'appuyant sur une comiuunication k lui faite par Dudley, consul amdricain ii
Liverpool, et ddsignant I'Oreto comiue *' dteamer de guerre," destind k coramettre des
hostility contre les fitats-Unis, uommant aussi les persounes qui avaieut pris part k la
commaude du navire, declarant que Fniser, Treuholm ot C'®, h Liverpool, (agence
financi^re des itats insurgds,) avaient fait les avances de fonds, et qae, sM et-ait

'^cessaire, il foarnirait encore des preaves.

OPINIONS OF MR. STiEMPFLI. 109

3. The commissioners of customs at Liverpool, in their report of the
22d of February', 1862, founded on the reports of their agents, state
that '^she is a splendid steamer, suitable for a dispatch-boat; she is
pierced for 4 guns. • • • * it appears that she is intended for the
use of Thomas Brothers, of Palermo. • • • Oar collector states that
lie has every reason to believe that the vessel is for the Italian govern-
ment.'' They add that they have given special instructions to watch tJie
vmel ,

4. On the 26th February, 1862, Lord Eussell forwards to Mr. Adams
a copy of the report of the commissioners of customs ; he does not ask
him for further evidence, although it had been offered to him. He con-
tents himself with directing the English embassador at Turin to make
inquiries as to the destination of the vessel.

5. On the 3d of March, 1862, the vessel was registered in the name of
"Henry Thomas, of Liverpool ;'' the next day she cleared for Paleyno
and Jamaica ; on the 11th of March, Bullock arrived with 4 officers, and '
immediately went on board the vessel.

On the 22d of March, the Oreto left Liverpool in ballast^ with a crew
of fifty-two men, all English, with the exception of three or four, among
whom there was a single American.

At the same time the steamer Bahama left the same -port with guns,
arms, and munitions, brought by rail from Hartlepool (on the east coast
of England) to Liverpool, where they were put on board.

C. In reply to ^e inquiries made by the English ambassador, the
Italian minister for foreign affairs declared that he had no knowl-
edge of the Oreto, but that he would make further inquiries, (March 1 ;)
ie, however, supplied no further intelligence, nor did the English am-
l^assador request any. further information. According to Dudley's re-
port, the Italian constfl at Liverpool had no knowledge of the vessel
. being intended fortttaly ; the English authorities, however, made no in-
Qniries of him, or of the Italian minister in London.

3. Les commissaires des douanes b, Liverpool, dans lenr rapport dn 22 fdvrier
lS62f 86 fondaut sur les rapports de leurs agents, constatent qae ^* o'est un inRgnifiqae
steamer, qui conviendrait pour uu service d'aviso ; il est perc6 pour quatre canons. . .

D paralt qu'il est destip^ 4 I'asage de Thomas fr^res, de Palerme Notre

ooUecteur ddclare qa'il a toute raison de oroire le navire destine an gouvernenient
ilalien/' lis ajoutent quHh wU dannS des instriustioM apSciales pour faire aurveiUer le
vaUseau.

4. Le 26 f^vrier 1882, Lord RusseU transmct ^ M. Adams copie dii rapport des
commissaires de la doaane ; il ne Ini demande point d'aiitres preuves, bien qn^on Ini
en eftt offert. II se contente de charger I'ambassadeur d'Augleterre k Turin de
•'informer de la destination du navire.

5. Le 3 mars 1862, le navire fnt enregistr^ au nom de ^* Henri Thomas, do Liver-
pool;" le lendemain, il s'acqnitta au bnrean de la donane pour Palerme et la'
Jamaique; le 11 mars BuUock arriva avec quatre officiers, et se rendit imniddiatement
h bord du vaisseau.

Le 2*2 mars, VOreto partit de Liverpool sur lest, avec un Equipage de cinquanto-deux
hommes, tons Anglais, k Fexception de trois on quatre, parmi lesquels un seal
Am^ricain. y

Dans le m^me temps, le vapeur Bahama quittait le mdme port avec des canons,
des armes et des munitions, amen68 en cheniin de fer de Hartlopoot (c6te orientale de
TAngleterre) h Liverpool, oil ils furent pris ik bord.

6. Snr les informations demanddes par Fambassadeur d'Angleterre, le ministre
italien des affaires ^trang^res d6clara qu'il n'avait aucune eonnaissance de FOreto,
mais qu'il s'informerait encore, (1*' mars;) il ne fonrnlt toutefois pas d'autre nouvelle,
et Tambassadeur d'Angleterre ne demanda pas non plus d'autres renseiguement^s.
D^apr^ le rapport de Dudley, le consul d'ltalie ^ Liverpool n'avait aucune eonnaissance
que ce navire fClt destine ii I'ltalie ; du reste, les autorit^s anglaises ne prirent point de
reDseigoements chez lul ni ckez le ministre d'ltalie k Londres.

I
110 ARBITRATION AT GENEVA.

7. The reports. of the English officials showed that the Oreto wjis a
vessel of war.

A st^te of war hail been officially recognized as existing between the
United States and the insurgent States, and the uentrality of Great
Britain had been officially proelaimed. •

In spite of this, and in spite of the complaints of Mr. Adams, the En-
glish authorities took no initiative; they did not insist on it^ being
proved what* was the true destination of the vessel, nor who was her
real owner, who had ordered her, and who was to pay for her. They
did not insist on the true position of l^raser, Trenholni & Co. being shown
by legal proof, did not demand positive information as to the crew of
the vessel, nor us to the arrival of naval offi(!ers from the Confederate
States.

8. The special instructions given for watching the vessel appear not
to^iave been carried out or to have been without result.

The colonial authorities were not notified after the departure of the
vess(»l, and generally no steps were taken, notwithstanding the repre-
sentations of Mr. Adams, which were repeated and accompanied by de-
tails furnished by Dudley, under date of the 26th March, 1862.

II. — What took pluce at Nassau up to the time of tJie acquittal oftJie Oreto.

9. On the 28th April, 1862, the Oreto arrived at !5iissau — the Bahama
a few. days later.

Eepresentation made on the 9th May by the American consul, Whit-
ing, to the governor J the attorney-general replies, " that positive facts
are required."

The authorities make no inquiries themselves^

On the 4th of May a fre^h representation, accomp^ied b^^ depositions
of witnesses ; the same answer.

10. McKillop, captain of Her Majesty's ship Bulldog, reports that
"the Oreto is apparently fitting and preparing for a vessel of war.''

7. L«s rapportu cles officiers an<;lais constataieut que I'Oreto ^tait an vaisseaa de
guerre.

L'<5tat d© belliffdrance eutre les fitats-Unis et les etats insureds <Stait officiellement
reconnu, et la neutrality de la Graude-Bretagne avail 6t6 officiellement proclam<Se.

Malgnl cela, et nialgrd les it^iclanjations de M. Adams, lea autorit^s anglaises ne
prirent point d'initiative; olles n'iiisisr^reut point pour que Ton constat^t la veritable
destination du navire, (juel on 6Uiit lo veritable proprictaire, qui I'avait commandt^ et
qui devait le pa^'er; elles n'insist^rent point sur la legitimation de la position de
Fniser, Trenholm, et C®, no demaiiderent point d'etre positivement renseigiides sur
r<5quipage du luivire, ni snr ranivee d'olliciers de marine des <5tat«-conf6d6r<Ss.

8. Les instrnctions sp<Sciales donn(5t>8 pour faire surveillerle navire paraisseut ue pas
avoir ^16 snivies, ou bien 6tre restdes sans r<5sultat.

Les autorit(5s coioniales ne furent point avis^es apr^s lo depart du navire; en
g^n^ral. il no fut pris aucnne mesnre, nonobstant lea representations reiter^es de
M. Adams, accompagu^es de details fouruis par Dudley, sous la date du 26 mars 1862.

II. — Ce qui aepassa A Nassau jusqiCh Vacquittement de r Oreto,

9. Le 28 avril 1862, TOreto arriva h. Nassau; lo Babama, quolques jours plus tard.
Reclamation faite, le 9 mai, par le consul am6ricain, Whiting, au gouveruour;

ratt<>rncy -general rdpond *UjhHI fant des faiia positifs."

Les autoritcs ne font d'elles-m^iues aucnne enqu^te.

Le 4 mai, uouvelle reclamation, accompagnee de depositions de temoins; m6me
reponse.

10. McKillop, capitaine du navire de la marine royale le Bulldog, rapporte que
*< I'Oreto se prepare et se dispose, selou les apparences, en bAtimout de guerre/'

OPINIONS OF MR. ST^MPFLI. Ill

In consequence of this report, the vessel is watched by a ship of war.
On the 8th June McKillop again reports, " that he has vutited and ex-
amined the resselj that she is fitted for war purposes^ that she lias fittings at
variance with the character of a mtrchantvesselP

On the 9th of June the ladiug ot the vessel begins; among other
things, anus and munitions are placed on board her; on the 10th, how-
ever, the cargo is discharged, and the vessel clears out in ballast for
Havana.

11. Report of Hicltley, commander of the Greyhound, signed by all
tbe officers and men of his vessel, the 13th June, 1862.

*'The Oreto is in every respect titted out as a man»of-war, on the
priticiple of dispatch gun-vessels in the English navy."

Nevertheless the attorney-general states that he does not think that
the seizure of the vessel would be justifiable.

12. On the 15th June the crew leave the Oreto, because her destina-
tion is not certain.

On the 17th June, in the morning, Commander Hickley seizes the
vessel, but releases her at once, the attorney-general being of opinion
that there is not sufficient evidence.

The same day, however, the seizure is renewed, with the sanction of
the governor.

13. Thereupon a judicial inquiry is commenced, from which it appears
that the vessel is consigned by Fraser, Treuholm & Co., (financial
agents of the insurgent States in England,) to Adderley & Co., (com-
meicial agency of the insurgents,) at Nassau. ,

On the 2d ot August, 1862, the Oreto was acquitted; still, however,
"as there existed grave suspicions" without costs <lr indemnity being
granted. *'What took place," says the judgment, "before the arrival
of the Oreto at Nassau, can only be admitted by way of elucidation or
. eiplanation," a theory which the British case itself admits to be erro-
neous.
U. The course of action of the authorities at Nassau, the proceedings

A ]a stiite de ce rapport, On fait sarveiller ce navire par iin vaissenu do guerre.

Le 8 jniD, McKillop rnpporte de iiouveau '•^ quHl a fait la visile et Vexamen du vaisseauj
qu'U eisi di^poff^ pour des usages de guerre, quHl y a des installations qui ne repondent pas
an caractbre iCnn vaisseau marchandJ'

L« 9 juiii, on commence h charger lo navire; on y embarqne entr'autres des armes et
des niuuitiouH; cepeudant, le 10, ou ddcbarge la cargaisou et le navire B^acquitte sur
lest pour ia Ha vane.

11. Rapport de Hickley, commandant du Greyhound, signd par tons les officiers et
enjjdoyds de Ron vaisseau lo 13 juiu 1862:

**L'Oreto cBt, hous tons les rapports, {irm6 on b^timent de guerre, d'apr^s le syst^me
de8 cuni>niiiereM-aviso8 de la marine anglaise."

Pourtant rattoruey-general dcScIare qu'il necroit paaqne Ton puisse justifier lasaisie
da vaisj^eau.

12. Le 15 juin, I'dquipage quitte VOreto, parce que la destination du navire n^est pas
certaiue.

Le 17 juin, au matin, le commandant Hickley saislt le vaisseau, mais le reld^ihe aas-
8it6t, rattoruey-geufral 6tant d'avis qn'il u'y avait pas de pieuves suttisantes.

ToutffoiH, le Ui^me jour, ou reno.uveile la saisie avec la Bauction du gouverneur.

Ki. La-dessuB, commencement dViiqn^te judiciare, de laqnelle il r^sulte que le vals-
Bean est consign^ par Fraser, Trenholm et C^" (agents financiers des iusnrgds en An-
gleterre) j\ Add^rly et C*'' (agence eonimerciale des insurg^Ss) ^ Nassau.

Le 2 aotit 18b2, I'Oreto fut acquit (6 ; mais toutefois, "comnie il existait de 8<5rieux
soo|>9onH," sans adjudication de d^pens ni d'indemnitd. '^Ce qui se passa,'' dit le
jngement, "avant Parriv^e de POreto ^ Nassau ue pent dive admis qu'^ titre d^dclair-
cisiienientB ou d'explications" — th^orie que le m<Sm6ire britauuique qualiiie lui-m6me
d'erron^e. /

14. La mani^re d'agir des autoriUSs de Nassau, la procedure et le jugement dans

112 ARBITRATION AT GENEVA.

and the judgment in this matter, exhibit in particular the following
defaults and acts of negligence.

No initiative was taken to procure evidence ;

No account was taken of the reports of the officers of the fleet;

No account was taken of the previous l-istory of the Oreto;

The evidence heard was imperfect; Maffit, commander of the Oreto,
was not heard at fill; as witnesses on behalf of the Crown, persons be-
longing to the vessel under trial only were heard ; as witness for the
defense, a partner in the interested house of Adderley & Co., and, so far
as appears in the minutes, none of these depositions were sworn to.

15. The fact of the omission to transmit instructions in time to the
colonial authorities also operated disadvantageously, in regard to what
took place at Nassau.

The authorities at Nassau were not, from the first, informed of the
previous history of the Oreto, nor of the views of the government.

The judicial acquittal of the Oreto at Nassau took place without wait-
ing for the approval of her seizure, and for the instructions which had
been sent from London, and which were still on their way.

16. Tbe objection that the judicial decision at Nassau relieves Great
Britain of all responsibility cannot be maintained. As regards the in-
ternal (or municipal) law, the judgment is valid; but as far as inter
national law is concerned, it does not alter the position of Great Britain.

Til. — What took place subsequently at the Bahamas immediately after the

acquittal. — Armament and equipment.

17. Enlistmenti of forty men of the crew at Nassau, (according to
the British case itself, the Oreto cleared on the 7th of August, with
fifty-two men, for St. John's, New Brunswick.)

She is provided with guns, munitions, &c., with the aid of the English

cette affaire tdnioignent parti culi^reraent des actes de n6gHgence et des defaata siii-
vanta :

NuUe initiative en vue de se procurer des preuves ;

Nul compte teua des rapports des officiers de la flotte ;

Nul compte tenn des pr^c^dents dc I'Oreto ; *

Incomplete audition de tdmoius: Maffl4}, commandant de I'Oreto, ne fnt point en-
tendu ; comme tdmoins dans l'int4$rdt de la couroune, on n'enteudit que des personnes
appartenant an navire inculp<S ; comme t6moin ik d<5cbargc, un associ6 de la maison in-
t^ress^e de Adderley et C'« ; et autant qu^il appert dans les actes, toutes ces depositions
furent n(m assermeut^es.

15. Le fait que, de Londrcs, Pon omit de communiquer h temps des instructions
aux autorit<5s colpniales, eut un effet (^galement ddsavantagenx sur ce qui se passa k
Nassau :

Les autoritds de Nassau n'^taient pas, d^s Pabord, instruites des prdc6dents de
rOreto ni de la mani^re de voir du ministfere ;

L^acqnittement judtciaire de I'Oreto h Nassau se fit sans que Ton eftt att«udu la con-
firmation de la sai.sie et les instructions que Ton envoyait de Londres et qai se trou-
vaient encore en cbemin.

16. L*ol)jftction que Parrot judiciaire de Nsissau d^gage la Grande-Bretagne de toute
responsabilitd u'est pas soutenable : vis-4-vis des lois int6rieures, (niuuicipalos,) le
jugement est valable ; mais s\ Tdgard du droit des gens, 11 ue cbange pas la position de
la Grande-Bretagne.

III.— Ce qui sepaasa uU^rieurement aux Ue8 Bahamas^ immddiatement apr^ Vacquittement —

Armemeniy ^uipement

17. Enr61ement de quarantebommes d'^quipage h Nassau, (d'apr^le m^moire britan<
nique lui-mdme, POreto s'acquitta en douane le 7 aoAt avec cinqnante-deux bonunes,
pour St. Jobns, New Brunswick).

n 06 pourvoit de oauons, de munitions, &c., avec Faide da vaissean anglais le Prince

OPINIONS OF MR. ST^MPFLI. 113

vessel Prince Alfred, which shipped at the wharf of Adderley & Co.
the cargo brought by the Bahama, while the Oreto, meantime, took in
coal ami provisions at the island of Providei^ce. From this latter place
she towed the Prince Alfred to Green Cay, where the transshipment of
the armament took place.

This having been done, she left for the coast of Cuba, under the name
of the Florida, and thence running the blockade to Mobile, which she
reached on the 4th of September, 1862.

18. The enlistment of the crew and the armament of the Florida at
the Bahamas are to be attributed to the neglect of the British authori-
ties, and the following objections cannot be considered as valid :

That the Oreto had just been acquitted; for the enlistment and arma-
ment constituted new acts, and it was the more incumbent upon the
the authorities to exercise the strictest vigilancp, inasmuch as, leaving
all other circumstances out of consideration, the judicial sentence itself
declared the vessel to be under grave suspicion.

That Green Cay was distant and little frequented. This objection
has the less importance, inasmuch as all that was done at Green Cay
had its point of departure at Nassau, and could easily have been i)er-
ceived from the latter place.

There were no proceedings taken against the Prince Alfred as an ac-
cessory, in spite of the denunciation and representation of the American
consul, to whom it was thought sufficient to reply that he must ''produce
evidence.''

IV. — Cruue of the Florida, and her repeated shipments of coal in British

ports.

19. Having left Mobile, the Florida returned, on the 2Gth of January,
1863, to Nassau Bay. She there shipped coal for three months, takiiig
180 tons, according to the American statement; according to the British
statement, she had only room for 130 tons ; but the dei^ositions of wit-

Alfred, qui embarqua au quai de Adderley et C*® la cagaison anien6e par le Bahama,
peodaut que, diius riutervaHe, I'Oreto H'approvisionnait de cbarbou et de vivres ik Tile
de la Providence ; de en deruier endroit ilremorqua le Priuce Alfred jusqu'i Green Cay,
oil eut lieu letrauHbordeuient de Tarmement.

Cela fait, il part pour les cOtes de Cuba, sous le nom de "le Florida," et de l^, en tra-
versaut le blocus, pour Mobile, oil il arriva le 4 septembre 1862.

18. L'eur61ement de I'equipage et rariueiueut du Florida aux Bahamas sont impu-
tables k la negligence des autoritds britanuiques, et Ton ne pent considdrer comme
fond^^es les objection snivantes :

Que rOreto venait d'etre acquittd ; (car Venr6lement et I'armonent constituaient de
Douveaux faits, et les autorite^i avaieut d'autant plus le devoir d'exercer une rigoureuse
attention, que, abstraction faite de toutes les autres circonstauces, I'arrSt judiciairo
d<Sclarait lui-iueme le navire serieusement suspect ;)

Que Green Cay dtait dloigue et pen frdquent<S ; (cette objection est d'autant moins
iniportante que tx>ut ce qui se lit a Green Cay partit de Nassau, et pouvait fort bien
s'apercevoir depuis ce dernier endroit.)

II n'y eut point d'enqudte soulevde contre le Prince Alfred comme complice, malgrd
la denonciation et la reclamation du consul amdricain, auquel on se conteuta do rdpon-
dre qa'il devait '* d<5poser des j^euves."

IV. — Croisih'e du Florida et sea approriaionnementa r6H^4a de charhon dana dea porta

hritanniquea,

19. Parti de Mobile, le Florida revient, le 26 Janvier 1863, dans la baie de Nassau ;
il y fait da charbon pour trois mois, en prend 180 tonneaux, d'apr^s I'exposd anidricain :
il D^aorait eu place que pour 130 tonneaux, d'aprds Texpos^ anglais ;.mais des d^posi-

8 B

114 ARBITRATION AT GENEVA.

nesaes state that there was coal placed ou the deck and everywhere on
board.

According^ to the report of English experts, she required 46 tons to
return to Wilininjjton, the nearest port of the insurgents.

At the end of thirty-six hours' stay, (the British case says twenty-six
hours) she sails off again on a cruise, and destroys a certain number of
American vessels.

20. On the 24th February, 1863, she enters the British port of Barba-
does, and there ships 100 tons of coal.

21. On the 16th July she reaches St. George, the port of Bermuda,
stays there nine days, takes in a complete supply of coal, and sets off
again for Brest; during this voyage more vessels are destroyed.

22. On the 13th April, 1864, she again touches at Bermuda, but only,
it was said, for the purpose of landing a sick officer ; she only remained
there a few hours, but re'appeared on the 18th July, 1864, and requested
to be admitted to effect some repairs and to ship some coal ; she obtained
j)ermission for live days, but staid nine; fraudulent shipment of coal
to the amount of 150 tons; she cruised for several days in sight of the
island ; the officers on the naval station saw all this, but took no steps.

She destroyed more American ships.

23. On the 7th of October, 1864, she closed her career in the port of
Bahia.

24. The repeated supplies of coal which we have just mentioned are,
in the first place, an infraction of municipal law and of the British reg-
ulations ; especially —

Of the circular of the 31st of January, 1862, which, at the time these
events took place, had been for a long time published in all the colonies,
and of the explanatory instructions bearing date the 16th July, 1863,
addressed to the governors of the West Indian colonies, and known at
least during a portion of the same time.

They are, in particular, contrary to the second rule of the treaty

tions de tdmoins constatent qiiMl y avait da charbon ddpos6 sur le pont et partoat k
bord.

All dire des experts anglais, il Ini en anrait fallu 46 tonneaux pour rotounier h Wil-
mington, port insurgd le plus proche.

Au bout de trente-six heures de sdjour, (Vexposd anglais dit vin^-six heures,) il
repart pour cniiser, et ddtruit un certain nombre de vaisseanx auK^ricains.

20. Le 24 ffnTier 1863, il eutre au port britauniquo de Barbade et y embarquo 100
tonneaux de cbarbon.

21. Le 16 juillet, il arrive h St.-Georges, port des Bermudes, y sdjourne ncuf jours, y
fait un complet approvisionnement de charbon, et repart pour Brest ; pendant ce voyage,
nouvelles destructions de vaisseanx.

22. Le 13 avril 1864, il touche de nouveanx h Bermnde, mais uniquement, disait-il,
dans le but de mettre i\ terre un otticier uialude ; il n'y restaque qnelques heures, niais
y reparnt le 18 juiu 1864, demanda d'etre adniis pour faire des rc^paratious et embar-
quer du charbon ; il obtiut permission pour cinq jours, niais en resta neuf ; embarque-
ment frauduleux de charbon, jusqu'ii 150 tonneaux; il croisa plusieurs jours en vue
de I'lle; les ofliciers aux stations uiaritimes voyaient tout, niais ue x*rirent aucune
Diesure.

II di^tmisit encore des navires anK^ricains.

23. Le 7 octobre 18()4, il termina sa carri^re dans leport de Bahia.

24. Les approvisionnements reitdrds de charbon, qite nous venons de nientionner,
Bont, en premier lieu, une infraction auxlois mnnicipales et auxrt^glemcuts de la Grande-
Bretague, uotamment :

A la circnlaire dn 31 Janvier 1862, qui, h V6/poqne oh ces faits se pass^^ent, 6tait
depuis longtenips proclam(^e dans toutes les colonies, et aux instructions explicativtw
adreesi^es, sous la date du 16 juillet 1863, aux gouverneurs des colonies des Indes Occi-
dentales et connues au moins pendant une partie de la meme pdriode;

lis sont surtout en desaccord avec la 2'" rt-gle du trait<?, d'apres laquelle on 6tat

OPINIONS OF MR. STiEMrFLI. 115

according to which a neutral state may not allow its ports to serve as a
base of operations for carrying: on war or cruising.

25. The objections made by Great Britain, that the cruises of the
Florida and the depredations committed by that vessel took place only
after she had run the blockade, and that there had been neglioence on
the part of the American officers charged with the maintenance of the
blockade, are not such as to release Great Britain from the responsibility
of her own negligence ; this last was the primary and sole cause not only
of her running the blockade, but also of all the hostilities committed by
the Florida against the United States; and the assumed negligence of
the officers who maintained the blockade is, moreover, not proved any
more than the further assertion that the armament and equipment of
the Florida took place in the port of Mobile.

24y. The further objection, made on the same side, that eq.ual facilities
of supply were acxjorded to vessels of the United States, among others
to the San Jacinto, is equally immaterial and, besides, according to the
American case, it is not founded on fact, at least as far as the San Jacinto
is concerned.

V. — Armament and equijyment of tenders.

27. In the caurse of her cruise, the Florida supplied officers and crews
to the following tenders:

On the 6th May, 1803, the Clarence was captured off the Brazilian
coast, and was supplied with guns and with a crew. She destroyed
several vessels.

On the 10th June, the Clarence captured the Tacony; the Clarence
was destroyed, and the Tacony transformed into a tender; the latter
also destroyed several vessels.

On the 25th June, the Tacony captured the Archer, which was trans-
formed into a tender, and the Tacony was burnt. The Archer destroyed
the Caleb Cushing, a United States coast-guard vessel.

nentre ne doit pas souffrir que ses ports servent de base d'opdrations pour faire la guerre
ou croiser en mer.

25. Les objections faitcs par la Grande-Bretagne, que Ics courses du Florida et les
destructions cominises par ce navire eurent lieu seulenient apres qu'il cut franchi le
blocus, et qu'il y cut negligence de la part des ofliciers am^ricaius clmrgds de garder
le blocus, ne sout pas de nature k pouvoir d^cbarger la Grande-Bretagne de la
respon8abilit<5 pour ces propres ndgligences, cclles-ci ^tant la premi^re et seulo cause,
nou-seuleujent de la traverK(^e du blocus, mais encore de toutes les hostilitos conunises
par le Florida contre les fitats-Unis; et la pr(^tendue negligence des officiers cbarg<^s
de garder le blocus n'est d'aillcurs pas constat^e, pas plus que I'assertion ult^rieure que
Pannenient et I'^quipeinent du Florida se soit fait dans le port de Mobile.

26. L'objection ult«jrieure, faite de la meme part, que Ton accorda les m^mes facilit^s
d'approvisionnement aux vaisseaux des l^tats-Unis, entr'autres an San Jacinto, est
<?galeinent sans importance ; et en outre, d'apres Fexposd anidricain, elleu^est pas fondde
sur des faits, du moins pour ce qui concerne le San Jacinto.

V. — Armement et dquipement de navirea auxiliaires, (tenders.)

27. Durant le cours de sa croisi^re, le Florida fournit des officiers et des dquipages
aux vaisseaux auxiliaires suivants:

" Le 6 mai 18(33, le Clarence fut capture sur les cAtes du Br^sil et fut muni de canons
et d'uu Equipage ; il d<Struisit plusieurs vaisseaux ;

**LelO juin, le Clarence captiira le Tacony; le Clarence fut d<5truit et le Tacony
transform^ en tender; ce dernier ddtruisit <5galement plusieurs vaisseaux;

"Le 25 juin, le Tacony captura I'Arcber, qui fut transform<S en tender^ et le
Tacony fut brdl^. L'Arcber d<Struisit le CiUeb Cusbing, vaisseau garde-cOtes des
fitats-Unis."

116 ARBITRATION AT GENEVA.

With regard to the question of responsibility, it is needless to say
tbat tenders are subject to the same rules as the principal vessel.

(B.) — Summary.

{a.) In regard to the construction, fitting out, and equipment of the
Oreto at Liverpool, and to her departure from that port, in regard also
to the departure of the Bahama, laden with arms for the Oreto, which
took place shortly afterward, the British authorities failed to use "'due
diligence"in the fulfillment of the duties of neutrality, particularly alsoin
that they neither communicated with nor sent instructions to the colo-
nial authorities with respect to these vessels.

(b.) It is the same with regard to the events which took place at Nas-
sau; there was negligence especially in the absence of all initiative to
ascertain the truth, in the defective natu.e of the judicial proceedings,
and, the Oreto having been acquitted, in the absence of all control, and
of all watch over her proceedings, which alone rendered it possible for thi*
vessel to be armed and equipped in British waters; and, furthermore,
there was again negligence in that, after communications and instruc-
tion had been received, no proceedings were taken, when the opportu-
nity ottered, against the guilty vessel, on the charge of acts in viola-
tion of the neutrality of Great Britain.

(c.) It is the same also with regard to the fact that, on several occa-
sions, the vessel known thenceforth by the name of the Florida was^
permitted to supply herself with coal in such quantities that, each time,
she was enabled to undertake a fresh cruise.

ni. — THE ALABAMA.

(A.) — Facts.
1. — What took place up to th^ time when this vessel escaped from Liverpool.
1. She was ordered at Liverpool, the plans were accepted, and the

Relativemeiit h la question de re8poD8abi1it<5 il va saus dire que les vaisseaux auxili-
aiies 6out Bujets aux mdme« regies que le vaisseau principal.

(B.)--Rfi'SUMfi.

a) Lors de la construction, de la preparation et de l¥quipement de VOrcto h Liver"
pool, et lors de sa sortie du port, de meuie que lors de la sortie qui eut li«u peu de
temps aprcs du Bahama, charge des armes de TOreto, les autorite-i britauuique^ out
iiogligd d'employer les **due8 diligences" dans le niaintieu des devoirs de la neutralite,
iiotamment aussi en ce qu'elles u'out fait aucune commuuicatiou ni euvoy<^ d'iustruc-
tions aux autorit^s coloniales relativement h ces vaisseaux.

h) 11 en est de m6me pour ce qui conceme les faits arrives ^ Nassau ; il y eut snrtoot
n«>gligence : dans I'absence de tonte initiative pour <5tablir la \6ni6, dans la nianit^re
dcfectueuse de proc^der en justice, et, Pacquittement de TOreto ayant eu lieu, dans
I'absence de tout coutrftle et de toute surveillance de la conduite de I'Oreto, (ce qui
Hcul fournit h, ce vaisseau la possibility de s'armer et de sVquiper dans les eaux -britan-
niques,) etalors m6me il y eut encore n<^gligence eu ce que, apr^s avoir re^u des com-
munications et des instructions, on ue proc<5da pas, le cas echeant,cOutre le vaisseau
coupable, sous I'imputation d'actes de violation de la neutrality de la Grande-Bretagne.

c) II en est de ni^me encore pour ce qui concerne le fait d*avoir tol^rd i\ pinsieurs
reprises que le vaisseau, connu d^s lors sons le nom de "le Florida," s*approvisionu4t
de charbon en qaantit^ telle que, cheque fois, il pouvait entreprendre de nouvelks
courses.

L' ALABAMA.

(A.)— FArrs.
I. — Ce qui se pasaa ju»qu*au moment oii ce vaisseau 8^4chappa de Liverpool,
1. n fat command<^ ^ Liverpool, les plans en furent accepts et le inarch^ fut sign^

OPINIONS OF MR. ST.EMPFLI. 117

contract signed by Bullock, the 9th October, 1861 ; her engines were of
300 horse-power; she was pierced for six 32 pounder broad
side guns; she was further provided with two pivot-guns,
the one a rifled 100-pounder, the other an 8-inch smooth-bore gun.
On the 15th May she was launched under the name of the '' 290."

2. On the 23d June, 18G2, Mr, Adams's first representation t^ Lord Bus-
sellj stating that she was a vessel of war, and that her departure must
be stopped; it was dedared that this vessel was not intended for
operations against the United States.

3. June 25, this remonstrance is transmitted by Lord Russell to the
secretary to the treasury ;

To the law-officers of the Crown ;

The secretary to the treasury Ibr^rards it to the commissioners of
customs ;

These latter to the collector.

4. The law-officers of the Crown report to Lord Russell, June 30, as
follows: *' If the facts alleged by Mr. Adams are in accordance with
truth, it is a manifest violation of the foreign-enlistment act, • • • hut
evidence i^ necessary. They further advise Lord Russell to inform Mr.
Adams that the government will investigate the ca^eP

5. The collector reports to the commissioners of customs, and the
latter, relying on his statement, report in their turn to the treasury,
on the 1st July, that —

She is inteuded for warlike purposes ;

Sin'eral powder-caiiistera are on board, but uo guns :

She is built for a forei«ru government, a fact which is not denied by Messrs. Laird ;
but the}' do not appear disposed to reply to any questions respecting the future destina-
tion of the vessel after she leaves Liverpool.

The agents have no other reliable source of information.

The consul should communicate all the documents in his possession.

The officiaU at Liverpool will keep a strict tcatch on the vessel.

6. July 4, 1862, Lord Russell transmits these reports to Mr. Adams,
and informs him, among other things —

par Bnllock le 9 octobre 1861 ; machines de la force de 300 chevaux, perc^ de six
canons, de .3*2, snr les c^tes; arni^ en outre de deux canons b, pivot, dont I'un ray<5 de 100
livres et I'autre lisse de 8 ponces.

Le 15 mai, il fut mis i\ I'eau sous le nom do "290."

2. Le 23 juiu 1862, premiere reclamation d^ Adams d Lord Russelly disant que cVtait un
vaisseau de guerre, qu'il fallait en arreter I'expddition; on constata que ce. batinieiit
U'ctait pas destin6 ii op<5rer contre les I^tats-Unis.

3. Le 25 juin, cette reclamation est transmise par Lord Russell au secretaire de la
tr^sorerie ;

Aui^ juri scon suites de la conronne;

Le secretaire de la trdsorerie la transmet aux commissaires de douanes ;

Ceux-ci au collecteur.

4. Les jnrisconsultes de la conronne font rapport h Lord Russell le 30 juin. disant:
** Si les faits prdsentes par M. Adams s'accordent avec la v^rite, c'est utie violation
manifeste du foreign-enlistment actj . . . mais il faut des preuves. lis conseillent
d^ailleurs h. Lord Russell de communiquer h M. Adams que le gonvernement va s^enquerir
de Vaffairey

5. L© collecteur fait rapport aux coramissaires des donanes, et cenx-ci, s'appuyaut
8ur sa d^i'laration, rapportent ^ leur tour, le l*"^ juillet, it la tr^sorerie:

" Est destine a des usages de guerre ;

"Plusieurs boltes k poudre enibarquees, mais pas de canons.

"Pour un gonvernement etranger, ce qui n'est pas uie par MM. Laird; mais ils ne

Saraissent pas disposes ^ repondre il aucnne question relative^ la destination future
u vaisseau, lorsqu'il aura quitte le port de Liverpool.
"Les agents n'out point d'autre source de renpeignements certains.
" Le consul devrait communiquer tons les documents qu'il possede.
" Les officifirs de Liverpool exerceront une stride surveillance snr le vaisseau.**

6. Le 4 juillet 1862, Lord Russell transpet ces rapports ^ M. Adams, et ontr'antres
les points suivants :

118 ARBITRATION AT GENEVA.

"That the government will inquire into the matter;" that Consul
Dudley " ought to communicate the documents to the collector; that
the officials at Liverpool ivill watch the vessel attentively,''^

7. Between Mr. Adams's representation and Lord RusselFs reply,
fifteen days elapsed before the result was arrived at that " the evidence
is insvfficient.^^ .

8. Second effort of the American agents.

9. July 9, 1862, Consul Dudley to the collector; communication of
documents.

9 — 10. The collector is not satisfied with them ; " he asks for legaZ^
evidence. ^^

July 10, 1862, the inspector informs the collector that he finds thfe
vessel in the same condition as on the occasion of his first visit.

On the 11th the solicitor writes to the commissioners of customs thafc
the evidence rests on liearsay ; that it is inadmissible; that there i^
nothing which amounts to proof sufficient to justify a seizure.

On the loth the commissioners inform the collector that there is nofc
suliieient evidence to warrant a seizure.

10. On the 21st the consul to the collector, with witnesses and sworiiM.
depositions, demands the seizure of the vessel.

"The collector to the commissioners; requests instructions by teler —
graph, as the vessel appears to he ready for sea, and may leave at any^
moment.

" The commissioners to the solicitor, for opinion."

On the 22d, the assistant solicitor and the solicitor to the commis^
sioners :

" We are of opinion that there is not sufficient evidence.

"The commissioners to the collector :

" Not sufficient evidence, but the consul may take proceedings at his own
risk and per il,^

The same to the treasury; communicate documents. Shall the law-
officers of the Crown be consulted !

Hamilton (commissioner to the treasury) to Layard, under-secretary

■ ^ ■ — — — ■ - - — — - ^—

" Que le gouvernemout va s'enqucrir de rnffairc ;" que le consul Dntlley "devrait
commuiiiquer au collectcur les docuincDts; que les fonctionnairea de Liverpool surveilk-
ront attenfivement le vahaeau.**

7. Eutre la itfclaniatiou de M. Adams et la r<^ponse de Lord Russell il se passa quiDze
jours pour arriver au r<58ultat quo *^ Ics preuves nc sont pas attffimntes,"

8. Deuxieme esaai des agents am^ricaius.

9. Le 9 juillet 1862, le consul Dudley au collecteiir: Communication des documents.
9. — 10. Le collecteur neles trouve pas sulTisauts; "i7 demande des prenves l^gale^.'^

Le 10 juillet l'^^, Pinspecteur au collecteur: a trouv(3 le vaisseau dans le mdme <5tat
que lors de sa premi^re visite.

Le 11, le solliciteur aux commissaires des douanes: repose sur de^ o?/i-rfirg ; qu^elle
est inaduiiHsihle; rien qui monte a des preiiritt suffinantes pour justifier unc saisie,

Le 1.^, commissaires au collecteur: pas sullisautes pour justitier la saisie.

10. Le 21, consul au collecteur, avec tiSmoins et depositions assermentdes: demande
la saisie.

" Collecteur aux commivssaires: demande des instructions par tdldgraphe, aitendu que
le narire, parait pirt () prendre la mer et pent partir h tout moment.

" Les commissaires au solicitor pour prc'^avis."

Le 22, I'assistant du solliciteur et le solliciteur aux commissaires:

"Sommes d'avis qu'il n'y a pas de preuves sujjisantes,

" Les commissaires au collectenr:

*'Pas de preuves suffisantes, mais le consul peut se charger des poursuites d se^ ri^qu^ ct
perils.^'

Lcrs memes h la trdsorerio : Communication des pieces. S'il y aurait lieu h, consnlter
les jurisconsultes de la couronne ?

Hamilton (commissaire ^ la tr<Ssorcrie) ^ Layard, 8ous-secr<5taire du foreign office :

OPINIONS OF ME. STJEMPFLI. 119

of state for foreign affairs : "A« the case may he considered preHssing, I
write to you unofficially to save time 5 it is said that the vessel is very
nearly ready for seaP

11. Adams to Lord Russell : Commuuicatiou from the customs, and
Dudley's evidence.

July 23, documents received at the foreign office.

Foreign office to the law-officers of the Crown: "To report their
opinion to Lord Russell as soon as possible^

Dudley to the board of customs :

Communicates two fresh depositions, with an opinion of Mr. R, P. Collier ^
that tliere is a flagrant violation of the foreign-enlistment act.

The board of customs to the assistant solicitor for opinion.

The assistant solicitor to the board : the documents do not materially
strengthen the case, hut, in consideration of the high position of Mr. Collier ,
the lords commissioners of the treasury might have recourse to the law-
officers of the Crown for their opinion.

Layard communicates all these additional documents also, on the same
day, to the law-officers, requesting them to report their ox)iuion to Lord
Russell at the earliest possible moment.

12. On the morning of the 29th the law-officers write to Lord Russell :
Order the arrest of the vessel until tJie accused shall have p^'oved Jierdesti-
Mtion to he innocent. The order for her seizure was immediately sent to
Liverpool.

Dudley informs the board of customs on the 28th that the vessel is
to sail on the 29th.

13. The vessel sails during the night of the 2Stlir-29th'Of July, 1862.

14. From the 9th to the 29th, twenty-one days elapsed, and the result
of this delay was, that the vessel escaped.

II. — Measures talcen to pursue the Alahama.

15. Two days after the escape of the vessel had become known, the
commissioners of customs, on the Slst July, 1862, gave the first order to

^*('omme le cas peat etre juge pressant, je vous ^cria ofiBcieiisement pour ^couomiser du
temps ; on dit que le navire est, peu »'en faut, pret d prendre la merJ^

11. Adams h Lord Russell : Commuiuca^^ion des doiiaues et preuves do Dudley.
Le 23, reception des pieces an foreign office.

Foreign office anx juriscousiiltes de la couronne: " Communiquez votre opiuion si
Lord Kussell ausaitot qne vous le ponrrezy

Dudley au couseil des douanes:

Coiniuiinicatiou de deux Douvelles depositions avec consultation de M, B, P, Collier^
qn'il y a violation flagrauto dm foreign-e^ilistment act.

Le oonseil des douaues ^ I'assistaut solicitor pour pr^^fivis.

L'assistaut solicitor au conseil : n^appor tent pas un renfort essentiely mats ru la haute po-
ffition de M. Colliery les lords de la tr($soreriepourraieutrecourir aux lumieres des juris-
consultes de la couronne.

Layard communique aussi toutes ces pieces additionnelles ce jour'mfime aux juris-
cousultes, avec recommaudatiou de comuiunidiier leuravis dans leplus bre/dclai a Lord
Busi»ell.

12. Le 29, matin, les jurisconsuites an Corate RusseU : rccommandez la saisie du vais-
seau jusqu'd ce que les accuses aicnt prouv6 sa destination innoceute ; ordre de saisie partit im-
mediatement de Liverpool.

Dudley au conseil des douaues, du 28 : avertit que le vaisseau doit partir le 29.

13. Le vaisseau sort dans la unit du 2d au 29 juillet 1862.

14. Du 9 au 29, il s^ecoula viugl-et-un jours, ot le resultat de ce d61ai fut la fuite du
vaisseau.

II. — Mesures prises pour poursuivre V Alahama.

1.5. Deux jours apr^s quela fuite du vaisseau fut connne, les coramissaires des douanes
doan^rent le premier ordre de le poursuivre, le 31 juillet 186i, d'abord aux coUecteurs

120 ARBITRATION AT GENEVA.

pursue* ber, to the collectors at Liverpool and Cork in the first plac^,
desiring them to seize her if she should touch at either of those ports.

On the 1st August the same order was sent to the collectors at Beau-
maris and Holyhead.

On the 2d August this order was also sent to the governor of the Ba-
hamas, for the port of Nassau ; no communications or instructions were
sent to any other British ports or colonies ; no ships were dispatched in
pursuit into neighboring British waters.

On the night of the 30tb-31st, two days after her escape from Liver-
pool, the vessel was still in British waters, off Moelfra and Anglesey.
The pursuit of the 290 in these waters took place too late.

III. — The Hercules brings her a crew.

16. The tng Hercules, which brought back to Liverpool the Messrs.
Laird and their ladies, who had accompanied the 290, took on board at
the latter port a certain number of sailors intended for the 290. The
collector being informed of this fact by a letter from Dudley, dated July
30, 1802, caused the Hercules to be searched.

The officer charged with the execution of this order reported, *' that
there were on board a certain number of men who admitted that they
formed part of the crew, and were about to join the gun-boat."

In spite of this, the collector did not arrest the Hercules.

Although he had been ordered to seize the 290, he did not even cause
the Hercules to be followed.

He wrote about her to London by post instead of telegraphing.

He did not receive from London any instructions with regard to the
enlistment ; he was only desired to find out if there were powder and
guns on board.

The captain of the Hercules himself acknowledged, on the Ist of
August, that he had " taken off from twenty-five to thirty men who, as
he believed, were about to form part of the crew of the 290.''

de Liverpool et de Cork, leur iutimant de saisir le navire, s'il venait h aborder h Pun de
CC8 ports.

Le l*"^ aoftt, le mAme ordre fiit donn<^ anx collect^urs de Beanmaris et de Holyhead.

Le 2 aoftt, cet ordre fiit aussi envoy^ an goyverueur des lies Bahanui^, pour le port do
Nassau ; il u'y eut point de cominiiDications faites, ni d'instnictious envoydes k d'autrcs
ports et colonies britauuiques ; il n'y eut poiut de vaisseaux envoyds h la poureuite
dans les eanx britanniqnes voisines.

Dans la nnit du 30 an 31, d«nx jonrs ap^^8 sa fnite de Liverpool, le vaissean ^tait en-
core dans les eanx britanniques de Moeltraet d' Anglesey. La poursuite du ^^!iJ90 " dans
ces eaux eut lieu trop tard.

III. — VHercuU amhne un Equipage, ^

16. Le remorqyenr rHercnle, qui ramena ft Liverpool MM. Laird, construct^nrs de
navires, et leurs dames, qui avaient acconipagn^ le *'290," enibarqna dans ce dernier
port un certain nombre do niatelots destines au " 290." Le collecteur, instruit de ce
fait par une lettre de Dudley du 30 juillet 1862, fit examiner le navire rilercule.

L'officier chargd de I'ex^cution de cet ordre rapporta " qu'il y avait a bord un certain
nombre de personnes qui admirent qu'eUes faisaient partie de I'dquipage et qu'elles
allaient rejoindre la canonni^re."

Malgrd cela, le collecteur n'arrdta point I'Hercule.

Lui, qui avaitl'ordre de saisir le " 290," ne tit pas m^me suivre THercule.

II en ^crivit h. Londres par la poste, au lieu de t<51egrai)bier.

II ne reynt non plus de Londres aucun ordre relatif ^ I'enrAlement; on le chargea
senlement de sMn former sMl y avait ^ bord de la poudre et des canons.

Le patron de FHercule reconnut lui-m^nie, le l*^*^ aoftt, *' avoir emmen^ vingt-cinq k
trcute bommes, qui, ^ ce qu'il croyait, devaieot faire partie de Tdquipage da '^ 290.''-

OPINIONS OF MR. STJSMPFLI. 121

The 200 left Moelfra Bay with a crew of about eighty men, and arrived
on the 10th of August off the coast of Terceira.

IV. — The Agrlppina and Bahama bring arms and coal.

17. Tlie Agrippina, Captain Quinn, arrived at Terceira, from London ,
on the 18th of August, 1862, having on board coal, guns, and ammuni-
tion for the 290.

The Bahama, the same vessel which was to have taken lier armament
to the Florida, next arrived from Liverpool on the 20th of the same
month, with Semmes and other officers of the Sumter on board for the
290, and also guns and ammunition, which had been regularly cleared
at the custom-house at Liverpool.

The transshipment of coal, guns, and ammunition to the 290 took place
from the 20th to the 23d.

Go Sunday, August 24, 1862, the 290 hoisted the insurgent flag, and
took the name of the Alabama.

Ballock and others returned on board of the Bahama.

Y. — Cruise and eventiunl fate of the Alabama.

18. She left Terceira for the West Indies. At Martinique the Agrip-
pina supplied her afresh with coal. In the Gulf of Mexico she destroyed
some vessels of the United States merchant navy and the war steamer
Hattera«.

On the 18th January, 1863, she arrived at Jamaica, landed her pHs-
oners, made repairs, and shipped stores. Three British men-of-war
were in port, but no order apjiears ever to have arrived from London for
the arrest of the vessel.

She left Jamaica on the 25th January for the coast of Brazil ; at
Bahia she fell in with the Georgia. Thence she sailed for the Cape ot

Le "290^' qnitta la baie de Moelfra avec un Equipage d'environquatre-viugts hommes,
ctarriva le 10 aoOt sur les c6tes de Terceira.

IV. — V Agrippina et le Bahama amdnent dea armes ct du charhon,

yAgrippine, capitaine Quinn, arriva, le 18 aoftt 1862, de Londres k Terceira, ayant
a bord du charbon, des canons et des munitions pour le " 290."

Le Bahama, le m^me vjiisseau qui devait avoir men6 I'armement au Florida, vint
ensuite de Liverpool, le 20 du mc^nie mois, ayant 4 bord S<*mmes ot d'autres officiers
du Sumter pour le **2D0," ainsi que des canons et des munitions, qui avaient 6t6
n^gnlierement acquittds en douane ^ Liverpool.

Le transbordement du charbon, des canons et des munitions sur le " 290 " eut lieu du
20 au 23.

Dimancbe, le 24 aoAt 1862, le " 290 " arbora le pavilion des insurg^s et prit le nom de
I'Alabama.

BuUock et d'autres revinrent & bord du Bahama.

V. — Croisi^re et sort final de V Alabama,

18. n partit de Terceira pour les Indes Occidentales. A la Martinique, I'Agrippine
lui foumit de nouvpau du charbon. Dans le Golfe du Mexiquo, il d^truisit des vais-
seanx de la marine marohande des fitats-Unis et le vapeur de guerre le Hatteras.

Le 18 Janvier 1863, il arriva h la Jamaique, y d^posa ses prisonniers, fit ses ri^para-
tions et embarqua des provisions. Trois vaisscaux de guerre britanniques dtaient
presents ; mais il ne paralt pas quHl soit jamais venu de Londres I'ordre d'arrSter le
Davire.

II quitta la Jamaique le 25 Janvier pour se rendre sur les cAtes du Brdsil ; h Bahia
il recontra le Georgia. De Ik il lit voile pour le Cap de Bonne Esperance, et le 23 juiUet

122 ARBITRATION AT GENEVA.

(Jood Hope, and on the 23d of July entered the harbor of Table B
The circumstance which arose on the voyage in connection with t
Tuscaloosa will be mentioned further on, under No. VI.

She left Table Bay for the East Indies, and, on the 2.'3d Decemb
1803, she anchored at Singapore, where she coaled. On the 20th Marc
1864, she returned to Capetown, where she also coaled. She left tl
])ort on the 25th March, and anchored at Cherbourg on the 11th Juu
18G4.

It was on leaving this port, on the 19th June, that she was sunk b
the United States man-of-war Kearsarge.

Part of the oflBcers and crew were saved by the English yacht Deei
hound, which happened to be in the neighborhood.

Yl.—The tender Tuscaloosa,

19. While on her way from the coast of Brazil to the Cape of Goo
Hoi>e, the Alabama captured the Conrad, a Uuited States merchant
vessel, of Philadelphia, bound from Buenos Ayres to New York with
cargo of wool.

This vessel was brought to Capetown under the name of the Tuscjm.
loosa, it being announced that she was commissioned tvs a cruiser.

This mere declaration was accepted, and, on the departure of th^
principal vessel for the Indian Ocean, Semmes dispatched the Tusca.-
loosa to cruise off the coast of Brazil.

On her return to Capetown, the vessel was seized by the governor, and
detained till the end of the war.

(B.) — CONSIDEEATIONS.

With regard to the Alabama, Great Britain did not fulfill the obliga-
tions incumbent on her by virtue of the three rules of the treaty of
Washington.

il entra an port do Table Bay. Le cas qui so prdsenta en voyage aveo le Tuscaloosa
sera (l<!'eiit plus loin, sons le N° VI.

De vft eudroit il partit ponr les Indes Orientales, et le 23d6ccmbre 1863, il jeta Tan-
cre ji Singapore, on il tit dn charbon. Le 20 mars 181)4, il reviut a la Ville du Cap,
(Cap«^ Town,) oii il se reponrvnt 6;;alemeut do charbou. Quitta co port le 25 mars, et
jeta Tancie jl Cberbonrg le 11 jnin 18G4.

Cejut d sa Hortlc de ce jMi't, le idjuin, qu^il fat couU d fond par le vaisacau dc guen'e da
iatH-UiiiH le Keaniarge.

Une partic des otliciers et de IVquipage furent sauvds par lo yacht auglais le Deer-
houud, qui so trouvait dans ces x^^^^^o^^*

VI. — Le tender Tuscaloosa,

•

19. En route dcpnis les cAtesdn Br(^sil an Cap de Bonne E8p<5rance, I'Alabama captnra
le Conrjul, navire de commerce dos fitats-Unis, de Philadelphie, se reudaut de Bueuos
Ayres h Kew York avec une cargaison de laine.

On amena ce navire k la Ville du Cap (Cape Town,) sousle nom de Tuscaloosa, et en
annon^ant qn'il <^tait commissionnd comme croiseur.

Cette simide dt^claration tut acceptee, et au depart du vaisseau principal pour Tcodan
Indieii, 8(Miimes envoya le Tuscaloosa croiser snr les c6tes du Br<5sil.

A son retour i\ la Ville du Cap, le vaisseau fut saisi par le gouverueur et retenu jas-
qu'a la iiu de la guerre.

(B.) — CONSID^KANTS.

Pour CO qui concerno T/Vlabama, la Grande-Bretagno n\a pas rempli les obligations
qui lui iucombaieut eu vertu des troia regies du traittS de WasUiugtou.

OPINIONS OF MR. ST^MPFLI. 123

I. — With regard to the building and escape of the vessel.

{a.) It is beyoud doubt that the Alabama was fitted out in British
orts as a vessel of war of tbe insurgent States.

(b.) The example of the Oreto made it the duty of the British authori-
ies to be on their guard against acts of this kind.

(c) They nevertheless did not in any way take the initiative, on the
^presentations of Dudley and Adams, with a view of inquiring into the

ue state of affairs, although they had given an assurance that the
athorities should take the matter up.

(d.) After sufficient evidence had been furnished, the examination of

was so procrastinated, and the measures taken to arrest the vessel
ere so defective, that she was enabled to escape just before the order
•r her seizure was given.

II. — With regard to the measures taken for her pursuit.

(a.) The orders to pursue and arrest the vessel were not given until
ortyeight hours .afterward, and were only sent to a few ports close at
land.

(6.) No instructions were sent to the other ports of Great Britain or
to those beyond the seas, except to that of Nassau.

(c.) No vessels, even, were sent in pursuit into the neighboring Eng-
lish waters, i

llL-^With regard to judicial proceedings on account of the enlistment of a

crewj and of the armament of the vessel.

(a.) There were no more proceedings instituted against those persons
who had enlisted the crew of the Alabama, or those who had conveyed
her armament on board, than against those who had ordered or those
who had built her.

I. — A regard de la conairuction et de lafuite du vaisaeau,

a) H est horsde douto que I'Alabama a 616 pr6par<S comme vaisseau de guerre des
^tats in»ur;i^<^s dans des ports britaunitiucs.

h) Les prec6dent8 de I'Oreto faisaieut un devoir aux autoritds britauuiques d'etre
snr leurs gardes visjVvis de faits de ce genre.

c) A la suite des dt^nouciations de Dudley et d' Adams, elles ne prirent pourtaut pas
la moindre initiative en vue de s'enqu^rir du veritable <$tat des cbosos, inalgrd qu'elles
eussent donn(5 Tassurance que les autorities preudraient la chose en mains.

d) Ap^^s que I'on eut fourui des preuves suftisautes, I'examen de celles-ci fut telle-
nient retarde et les mnsures prises pour taire arreter le vaisseau furent si d(^fectueuses,
que le navire put s'dchapper immediatemeut avant quo Poq eflt doun<S Pordro de le
saisir.

II. — A Vvgard des meaures prises pour le f aire pour suiiTe.

a) Les ordres de poursuivre et d'arreter le vaisseau apres sa fuite no furent donn<^s
que quarante-huit heures plus tard, et ne furent adresses qu'ii quelques ports rapprocbds.

h) II ne fut don»6 aueune instruction aux autres ports de la Grande Bretague ni h
ceux d'outre-mer, exoept<5 a ceux de Nassau.

c) II ii'y eut pas m6me de vaisseaux euvoy^s a la poursuito dans les eaux anglaises
da voisinaifc.

'r>'

III. — A Vvgard de poursuites Judiciaires d cause de VenrOlement d'un Equipage et de Var-

meinetit,

a) II n'y eut pas plus d*enqu6to institute coutre ceux qui avaient enrf)16 V^quipage
de TAlabama et ceux qui lui avaient ameiu^ son armemeut, que coutro ceux qui I'avaieut
command^ et ceux qui Tavaient construit.

124 ARBITRATION AT GENEVA.

(b.) The disciplinary penalties inflicted on sorae seamen of the Ala-
bama on their return to England cannot be looked upon as a serious
prosecution.

IV.-^With regard to the free admission to British ports subsequently

alloiced to this vessel.

(a.) The fact that the vessel was armed within English jurisdiction,
and in itontravention of neutrality, was established by the order for hei
seizure issued b^^ the British authorities.

(b.) The same is true with regard to the illegal and fraudulent depart —
ure of the vessel from the port of Liverpool.

(c.) The cognizance and complicity of the insurgent government-^
which had commissioned the vessel, as also of the agents of that gov —
ernment at Liverpool, and of the officers who commanded her, had like —
wise been established.

{d.) Not only, therefore, had the British authorities the right, but i
was also their duty, to seize this vessel, in whatever British port sb
might be found.

{€.) The British government even admitted this right and this duty
so far as the port of Nassau is concerned.

V. — JUie following objectiojis are not valid:

(a.) That the arming and equipping of the vessel did not take place
within British jurisdiction, but only in waters lying beyond that juris-
diction.

By the first rule, and according to the natural interpretation of the
obligations of the law of nations, even a partial equipment for warlike
purposes is not allowable. This is, moreover, admitted by the English
law-officers of the Crown in their report of July 29, 1802. It is further
established that even the armament and the original equipment of the
Alabama were prepared within British jurisdiction, and shipped from

h) On ne consid^re point comme enqufite s6riense los peines disciplinaires prooon-
cdc's coutre quelqiies matelote de TAlabama, reveuus en Angleterre.

IV. — A Vi^^ard de la lihre admission dans des ports hriianniqties subscqucmment acoordde a ce

navire.

a) L'armoment du vaissean dans la juridiction de I'Angleterre, et contrairoment ii la
ueutralit<5 ,«'^tait constatiS par Tarrct de saisic rendu par les autorit«5s britauuiqnes.

b) II en dtait de m(^me de la sortie illdgale et frauduluuse dii navire du port de
Liverpool.

c) L'ou avnit aussi constats la connaissance ct la complicity du gouvernement des
insnrg^s, qui avait conmnssionn^^ le vaissean, et respectivenient des agents de ce gou-
vernement i\ Liverpool et des officiers qui commandaient le navire.

d) Les autorit^s britanniques avaieut done, non-seulement le droit, mais encore le
devoir, de saisir ce vaisseau, dans quelque port britanniqne qn'on le rencontri\t.

e) Le gouvernement britanniqne a memo reconuu ce droit et ce devoir pour ce qui
coocerue le port de Nassau.

V. — Les objections stUvanies ne sontpas fondSes,

a) Qne I'armement ct IVqniperaent du vaisseau n'ont pas en lieu dans la juridic-
tion britanniqne, mais senlemeut dans des eanx sitndes en dehors de cette juridiction.

D'apies la regie 1, et selon une interpretation naturelle des obligations du droit des
gens, une prd|)aration, meme partielle, a des buts de guerre n'est pas admissible ; c^est
ce^qne, du reste, les jnrisconsnltes de la couronno en Angleterre ont reconuu eux-
mfmes dans leur pr<5avis du 29 juillet 1862; en outre, il est conslatd que mdme
Paimement et le premier <?quipement de TAlabama furent prepares dans la juridic-
tion britannique et partireut de ports britanniques ; uuo division des circoustaucea

OPINIONS OF MR. ST.EMPFLI. 125

British ports. A division of the circumstaDces attendin^: an offense
does not, in itself, do away with the ofiense, more especially when the
same cognizance and criminal purpose attach to all the persons con-
cerned.

(k) That the vessel having been commissioned for the insu»gent
States, her seizure within British jurisdiction was not allowable. This
objection is refuted by the fourth general rule of law laid down at the
beginning of this draught.

(€.) That Great Britain cannot be held responsible for the negligence
of which subordinate officials may have been guilty in the pursuit of
the vessel, for indiscretions which may have been committed by some
unknown subordinate with regard to her impending seizure, &c. Taken
by itself, an act of imprudence or negligence on the part of subordinate
authorities or officials does not, it is true, necessarily entail responsi-
hility for the extreme consequences of such act ; but when a series of
acts of neglect are in question, each of the acts in that ease becomes
of importance.
(d.) That the United States were themselves guilty of negligence —
In having furnished incomplete and tardy evidence through their
agents.

This objection is refuted by the fifth general rule of law laid down
above.

By the inaction of the vessel-of-war Tuscarora,in the waters of Liver-
pool.

Even if this fact were established, it would be no excuse for acts ot
negligence on the part of the British authorities.

IV. — THE SHENANDOAH.

(A.)— Facts.

I — What took place from the time of her departure to that of her armament

and equipment in the waters of Madeira,

1. This vessel was originally the Sea King, a merchant-vessel belong-

du d^lit n'invalident pas ce ddlit en Ini-mfime, snrtoiit lorsqu'on recontre, chez toutes
Jes personnes intcressdes, la mfiine connaissaiice et la mfiino iutoiition crimiiielle.

h) Que le vaissean ayant <5t<S coiiimissionn^ pour les <^tat« insur/i<3S, uue saiaie de
ce vaissean dans la juridiction anglaiso n'^tait plus aduiissible; cetto objoctiou est
Ti'ivLi^e par la vh^Xe fj<^ndrale de droit No. 4, pos<So au commencement de ce projet.

c) Que la Grande Bretagne ne pent 6tre rosponsablo pour des n(^;;ligences qui ont
pn se pr<^i*enter de la part d*employ<^a subalternes dans la pourauite du vaissean, pour
rindiscr^tion qui a pu se commettre par un subalterne iuconnu, concernant la saisie
ininiinente, «fcc.: pris i8ol<5ment, uu acte d'iraprudence ou de n<^gligence de la part
d'antorit<?8 et d'employ^s subalternes n'entralno pas nc^cessairenjent, il est vrjii, la
respoDsabilit^ pour les consequences extremes de cet acte ; mais lorsqu'il s^agit d'uue
B;5rie de n<?gli«reuces, cbacuu des fait« prend alors de I'importance.

d) Qne les fitats-Unis se sont eux-m^mes rendus coupables de n(^gligenco —

En fonmissant d6fectueusenient et trop tard des preuves par le moyen de leurs
agents. Cette objection est refut^Se par la r^gle g^n^rale de droit, No. 5^ poscSe plus
baut —

Par la condnite pen active dn vaisscaa de gnerre le Tascarora dans les eanx de Li-
verpool. Quand mdme il serait ^tabli, ce fait ne serait pas ane excnse pour les actes de
n^gligenc^ <1^ autorit^ britauuiques.

LE SHENANDOAH.

(A.) — Faffs.

I. — Ct qui 9e passa depuis son d^ri jusqit'd son armemeni et 6qu%pement dans les eaux de

Madhre,

1. Ce navire ^tait originairoment le Sea King, vaisseau marchand appartenant & nne

126 • ARBITRATION AT GENEVA.

iDg to a firm in Bombay ; she was employed in the East India trade,
and was built at Glasgfow, in 18(>3. She was a long, rakish
Shenandoah. yesscl of 1,700 tons, with engines of 220 horse-power, (Rob-

ertson & Co., who sold her, say only 150 horse-power, and not 220,) mak-
ing ten knots an hour ; she had made three hundred and twenty miles in
twenty-four hours; and was built by celebrated ship-builders on the
Clyde.

2. She left in November, 1863, for New Zealand and for the China seas,
and returned to London with a cargo of tea. Before her voyage to
New Zealand, Dudley saw her at Glasgow, and pointed her out to his
superiors as a steamer likely to be intended for a privateer.

3. On the 20th September, 1804, she was sold in London to Richard
Wright, of Liverpool, a British subject, and father-in-law to Prioleau,
head partner of Fraser, Trenholm & Co. The sale was registered the
same day.

4. On the 7th October, 1864, Wright gave a power of attorney to a
man named Corbett, a British subject, (who was implicated in matters
connected with vessels running the blockade,) enabling him to sell the
vi\ssel whenever he could within six months, at a minimum price ot*
£45,000 sterling.

5. On the 8th October, 1864, she cleared for Bombay ; left Londoa
with a crew of forty-seven men, having first taken in coal and provis-
ions for twelve months. She had on board two 18-pounder guns ou
carriages, (12-pounders, according to the British Counter Case, p. 103.)
The same night the southern agent at Liverpool was informed of her
departure, by telegraph.

6. On the 8th October, 18G4, the very same night, the Laurel, screw-
steamer, nearly new, and of first class make, left Liverpool with about
twenty citizens of the Southern States on board, and some cases marked
" machinery,'' which contained guns and gun-carriages, such as are used
on board ships ot* war. The Laurel and the Sea King had arranged
to meet in the bay of Funchal, in the island of Madeira.

maison de Bombay; il ^tait employes dans le commerce des ludes Oricntale^ et avait
6t6 constrnit a Glas<;ow, en li^ij'S. C'otait un vaisseaii long, a mature incHn«5e, d'luie
capacity do 1,790 touneanx, avec machines anxiliaires de *^20 die vaux, (Robertson et
C'*^, vendenrs, disent senlement 150 chevanx, et uon ^'JO.) faiuant dix nceuds a Theure;
il avait fait IViO milles en vin^t-qnatre benres; il avait ^>t(5 coustrnit par de celebres
constructenrs des bords do la Clyde.

2. Il partit, en novenibro 186.5, ponr la Nou vele-Z<51ande ot pour lea mers de la Chine
et revint i\ Londres aveo uno cargaison do the. Avant son voyage i\ la Nonvelle-Zo-
lande, Dudley le vU a Glasgow et le signala ii ses supdrieurs comuio un steamer pro-
bablenient destine^ a faire la course.

3. I^e *20 septenibre l'^()4, il fut vcndu k Londres, h Richard Wright de Liverpool,
sujet anglais et beau-pere de Prioleau, co dernier le principal associd de Fraser, Tren-
holm et C'*'. La vente fut enregistree le memo jour.

4. Le 7 octobro li^64, Wright donna procuration h un nomm<5 Corbett, sujet anglais,
(impliqud dans des fails relatifs h, des vaisseaux qui for^aient le blocus,) de vendrele
uavire quand il le pourrait, dans le ddlai de six mois au prix miniiHum de 45,000 livres
sterling.

5. Le 8 octobre 1864, il s'acquitta en douane pour Bombay, partit de Londres avec
quarante-sept horames d'dquipage, aprt^s avoir auparavant enibarqu6 du charbon et
des provisions pour douze mois. II avait ii bord deux canons months, de 18 livres, (de 12
livres, d'apres le contre-m<?moiro britannique, p. 103.) Le mt^me soir, le ddpart on fut
annonc<^ par telographo li Pargent du sud a Liverpool.

6. Le 8 octobre 18()4, le m6me soir encore, le Laurel, vapour h hdlice, presque neuf
et supdrieurement construit, partit de Liverpool, eniportant uno vingtaine de citoyens
dt!8 dtats du sud et des caisses, designees comine "machines," lesquelles contenaient
des canons et des aft'ilts, tels quo ceux employes i\ bord des vaisseaux do guerre. L©
Laurel et le Sea King s'iStaient donnd rendez-vous dans la baie de Funchal, lie de
Madt^re.

OPINIONS OF MR. ST^MPFLI. 127

I. On the 19th of October the Sea King arrived off Funclial ; the Laurel
had preceded her by two days. The two ships met and effected the
traDsshipment of the cannon, &c., (six large guns, two small, carriages,
manitious, powder, muskets, &c. ;) for this, thirty-six hours sutticed.
Corbett then came forward, announced the sale of the Sea King, and
tried to induce the crew to remain. Out of eighty sailors, however,
only twenty-three remained. The officers and men retained in the Sea
King numbered in all forty-two, and hardly formed half her proper
complement, which forced her to use her engines.

She took the name of the Shenandoah, and continued on her way
under the insurgent flag.

11. — ^teps taken by the English consul at Tenerlffe, and their result.

8. On the 12th of November, 1864, Lord Eussell received from the
English consul, at Teneriffe, a detailed report, dated October 30, of
what had taken place in the waters of Madeira.

The consul also sent Corbett, captain of the Sea King, as a prisoner
to England. Among other things the report of the English consul
says the Laurel arrived at Teneriffe on the 21st October for the purpose
of coaling; the*master, Eamsay, came before the consul and expressed
a desire to land forty-three passengers who wished to retnrn to England
by the first opportunity; they were from the British steamer Sea King,
of London, which had been wrecked near the Desertas Islands.

On the 23d October the Laurel proceeded on her voyage. The master
of the Sea King, however, did not come forward to make the usual
declarations and lo ask for assistance; the inquiries made by the consul
proved that the Sea King had not been wrecked at all, but that she had
been already sold in London, and was to be handed ov er on the high
seas.

The consul took the depositions on oath of four sailors who had been
landed. In these depositions it was stated that the Laurel had left
Liverpool bound for Nassau ; that she had taken on board twenty-six

7. Le 19 oct^bre, le Sea King arriva devant Funchal ; le Laurel Vy avait prdc^dd de

deax jours. Les deux vaisseaux se rdjoignent et effectuent le traiisbordement des

canoim et des accessoires, (six grandes pieces, deux petites, affftts, munitions, pondre,

fusils, &c. ;) il snffit pour cela de trente-six benref*. Corbett alors se prt^scnta, anuon^a

la vente da Sea King et cbercha j\ engager P(S(iuipage h reater. Do qnatre-vingts

matelots, il n'en resta cependant que vijigt-trois. Lea ofticiers et les bonmies que lo

Sea King retint coinptaient en tout quarante-denx, et ne formaicnt guere que la uioiti^

de ce quMl lui fallait, ce qui I'obligea h se aervir de ses niacbiues.

n prit le nom de Bbenandoab, et contiuua sa route sous le pavilion des iusurgds.

II. — Ddmarches du consul anglais d T6nMffe, et Ichth suites,

8. Le 12 novembre 1864, Lord Russell re^ut du consul anglais ^ T<?n6riffe un
rapport d6taill<?, date du 30 octoUro, sur ce qui s'dtait pass^ dans lea eaux de Madere.

Le consul euvoyait (^galemcnt Corbett, capitaine du Sea King, prisounier en
Angleterre. Lo rapport du consul anglais dit entr^autres: Le Laurel arriva le 21
oct-obre an port de T<:5u(5riffe pour faire du cbarbon; le patron Ramsey se prdsenta
au consulat et exprima le diSsir de d(5barquer quarante-trois passagers qui desiraient
retoumer en Angleterre par la premiere occasion; ils venaient du steamer britaunique
le Sea King, de Londres, qui avait fait uaufrage aupres des Uos Desertjis.

Le 23 octobre, le Laurel se remit eu voyage. Cependant le X)atrou du Sea King ue se
presentait pas pour faire prendre les declaratious d'usage et demander assistance; les
informations que fit prendre le consul I'itablirent que le Sea King u'avait pas fait
naufrage du tout, mais qu'il avait dej5, ^te veudu k Londres et devait 6tre livr^ en
pleine mer.

Le consul entendit les ddpositions faites sous serment de qnatre matelots que Ton
avait d6barqu68. Cos dcpositiaus constatuieut que le Laurel 6tait parti de Liverpool
avec la destiuation de Nassau; qu'il emportait vingt-six officiers et soixautc-deux

128 ARBITRATION AT GENEVA.

ofiicers and sixty-two sailors in addition to her proper crew, sixty-fir'^
shells, five tons of cannon-powder, and varions other munitions; th»^^
at Madeira she had t^ken in 300 tons of coal ; that the transshipment t-
the Sea King had been effected at a point off the Desertas during cah
weather; that the sailors were armed with cutlasses and revolvers ^
that the oflficer in command had taken possession of the Sea King in
the name of the insurgent States.

9. On the 1st November, 1804, the law-oflBcers of the Crown gave
their opinion on the report of the consul at Teueritfe and on the sendingr
ofCorbettas a prisoner to England. Among other things they say,
" We are not of opinion that a vessel outside of British waters is sub-
ject to British jurisdiction with regard to what takes phice on board
her." (British Ca.se, p. 153.)

10. Further inquiries in London ; examination of sailors who had re-
turned.

11. December 1, 1854. Second report of the law-ofiScers ; in this
second re[>ort the same law-officers declare that '' on more deliberate
consideration, if the Sea King ought to be deemed to have been still a
British ship when Captain Corbett endeavored to induce the men ou
board her to accept the confederate service, the question whether her
deck was not then ' a place belonging or subject to Iler Miijesty,' is a
serious question which ought also to be raised by the indictment. In
our former report we stated that we did not think a British merchant-
ship at sea was included within Her Britannic Majesty's dominions, in
the sense of the act ; but, in the second clause, there are also the other
and larger words above noticed, to which we did not then advert, and
which might perhaps receive a more extensive construction." (British
Case, p. 155.)

12. On the 8th December, 1804, Lord Russell communicates to Lord
Lyons the report of the consul at Teneriffe. He adds that, on the return
of the sailors, an inquiry will be instituted, and that, by the advice of
the law-officers of the Crown, a prosecution had already been directed
against Corbett.

marina ontro son propre (^(juipage, soixaute-cinq obiis, cinq tonnes de poiidre h canon ,
et tlivcrses antn^s miinitioiKs; qn'il enibarqua h Mad^re 3()U tonnes de charbon ; qne le
transbordenient i\ bord du Sea King s'tHait fait sur nn point des Desertas par uue mer
calme; que les niarins fiirent arm<^s de sabres et de revolvers.

L'officier coniniandant prit possession du Sea King au nom des ^tat-s insurg^^s.

9. Le 1" uovenibre 18G4, les jurisconsultes de la couronne britannique donn^rent
leur pr^avis sur le rapport du consul de Teneriffe et sur I'euvoi de Corbett couime
prisonnier en Angleterre; ils y disent entr'antres: *'Nou8 ne soninies pas d^avis qu*nn
vaisseau hors des eaux britanuiques est souniis ii la jurisdiction britannique pour ce
qui se passe sur son tillac." (Mdinoire anglais, p. 153.)

10. Enquete coiupldiuentaire k Londres; audition de raarins retourni^s.

11. Le 1'^ ddcembre 1864, deuxit^me rapport des jurisconsultes. Dans ce deuxifeme
rapport les niemes jurisconsultes d^clarent que " apr^^s une plus mftre d^lib<^ration, si
le Sea King doit ^tre consid^rd comme ayant toujours couservd la nationalit-^
britannique au moment oil le capitaine Corbett a essayd de d<$cider les bommes h son
bord k accepter le service conf6d^r<$, on pent se demander si le pout de ce navire
n'^tait pas alors un lieu dans la sujdtion ou au pouvoir de sa Majesty; et c'est une
question 8<$rieu8e que Taccusation devj*a ^galement soulever. Dans notre pr^c^dent
rapport, nous avons formula Popinion qu'un vaisseau de commerce britaDniqne ne
reutrait pas dans les domaines de sa Majesty britannique, selon le sens de racte;
mais la deuxi^nie clause renferme d'autre part des termes plus larges que nous venous
de signaler, que nous n'avious point alors en vue, et qui seraient peut-^tre suscoptibles
de recevoir une interpr<5tation plus ^tendue." (M<^moire britannique, p. 155.)

12. Le 8 d6cembre 1864, Lord Russell communique ^ Loni Lyons le rapport du •
consul de T^n^riffe, et il ajoute qu'au retour des matelots Ton entaniera uue enqn^te;
que sur le preavis des jurisconsultes de la couronne Tenqu^te ^tait dSjh entam^
conlre Corbett.

OPINIONS OF MR. ST^MPFLI. 129

13. Result of this last proceeding ; acquittal of Corbett by the jur

III. — Conduct of the Shenandoah at Melbourne.

14. On the 25th January, 1805, the Shenandoah arrived at Port
Philip, in the colony of Victoria, and anchored in Hobson's Bay.

Toward the middle of November, 1864, the mail left Europe and
reached Melbourne about the middle of January, bringing the news re-
specting the Sea King and her transformation into the Shenandoah.

15. On the 25th January, 1865, the American consul protested against
the admission of this vessel and demanded Iter seizure of the governor.
The law-officers were consulted ; the governor answered, on the 30th,
by a refusal.

It was decided on the same day by thiB council that the captain of the
Shenandoah should not be asked for the commission of his government.

16. February 10. The American consul to the governor; protest
against enlistments.

February 13. The law-officers find the evidence sufficient.

February 13. The governor determines to await the report of the
police authorities before taking action.

February 14. The chief commissioner of police reports : " Waddell re-
fuses to allow his ship to be searched, saying that he will oppose force by
forc^P

February 14. Decision of council to request Waddell to reconsider his
resolution of forcible opposition. Suspension of permission to make re-
pairs. Reply of Captain Waddell. The order of suspension is revoked.

The law-officers of the Crown, subsequently consulted as to the re-
fusal of Captain Waddell, stated to Lord Russell in their report of the
21st of April, 1865, that " the right of forcibly executing a warrant on
a belligerent vessel did not exist, but that an order to leave the. port at
once would be the consequence."

17. Subsequent steps of the American consul with respect to the en-
listments.

13. R^sultat de cette derni^re enqa^te : acquittement de Corbett par le jury.

III. — Ce que fit le Shenandoah d Melbourne,

14. Le 25 Janvier 1865, le Sbeuandoah arriva ii Port Philippe, colonie Victoria, et
jeta Fancre dans la baie de Hobaon.

Vers la mi-novembre 1864, le courrier partit d'Europe et arriva vers la mi-Janvier h
Melbourne, apportant les nouvelles coucernant le Sea King et sa transformation en
Shenandoah.

15. Lie 25 Janvier 1865> le consul am^ricain protesta contre Tadmission de ce navire
et en demanda la same au gouverneur. Les couseillers l^ganx farent entendus ; le
gouvernenr r<^pondit, le 30, par un refus.

Le couseil decide le ni^me jour qu'il ne sera pas demand^ au capitaine du
Shenandoah la commission de son gouvernement.

16. F^vrier 10, le consul amiricain au gouverneur: rikslamation contre des
euT6\einent«.

F^vrier 13, les couseillers I^gaux trouvent les preuves suffisantes.

F^vrier 13, le gouverneur decide d'entendre le bureau de police avant de douner
suite.

F^vrier 14, le commissaire en chef de la police rapporte : Waddell refuse de lalsser
faire des recherches sur son vaisseau, disant qu^il opposerait la force d la force.

F^vrier 14, decision du conseil de faire prier Waddell de revenir sur sa resolution de
B^opposer par la force. Suspension de la permission de faire les reparations. B^ponse
du capitaine Waddell. L'ordre de suspension est r^voqu^.

Les jnrisconsultes de la couronne, consult^s plus tard quant au refus du capitaine
Waddell, d^clar^reut h Lord Russell, dans leur pr^avis du 21 avril 1865, que " le droit
d'ex^cnter un mandat sur un vaisseau des bolligdrants par la force n'existait pas, mais
que la sommation de quitter le port tout de suite en r^sulterait.^'

17. D-marches ult^rieures du consul amdricain concemant les enrdlemeuts.

{

130 ARBITRATION AT GENEVA.

On the 17th February, the consul first goes to the oflBce of the chte"^
coramissioner of police, whom he does not find in; then goes to th^
houses of parliament to find the attorney -general, who requires
written deposition made on oath. Thence he repairs to the office of th
detective police, and there receives answer that no action can be taker ■
without a warrant The magistrate declares himself unable to take
upon himself to issue a warrant on the deposition of a single witness^
and refers him to Mr. Call at Williamstown, who might have evidence iim
his possession from the water police.

It was about 7 o'clock in the evening. Seeing how little inclined the
authorities were to act, the consul determined himself to take the deposi-
tion. A copy of it was brought, on the same night, to the attorney-
general, but he was no longer at the houses of parliament.

18. The Shenandoah left on the morning of the 18th of February.

19. It was stated, and the governor of Melbourne himself states in a
circular, dated February 27, 18G5, that a considerable number of saUorn,
infolded to re-enforce her crew^ had been t^ken on board the Shenandoah be
fore she left the port on the 18th of February. (British Case, p. 168.)

20. Nor is it denied that she took on board 300 tons of coal, which,
added to the 100 she had already on board, made 400 tons. (See sup
plementary quotation in consideration No. Ill, letter (?, post.)

The committee of officers appointed to report as to the repairs of the
vessel only stated that the Shenandoah was not fit to proceed to sea as
a steamship,

IV. — Cruise and final fate of tlie Shenandoah,

21. On leaving Melbourne, the Shenandoah went to the Pacific, and
thence through Behring'a Straits to the Arctic Ocean, where she de-
stroyed the American whalers which she met. It is assert^ that
she burned fifteen vessels after Captain Wfuidell knew of the termina-
tion of the insurrection. She remained registered as an English vessel
until the 17th of October, 1865.

Le 17 f(6vrier, le consul se repd d'abord au bureau du chef de la police, quMl ne
trouve pas cbez lui ; puis va trouver Pattoniey-general au Parlenient ; celui-ci
demande une disposition (^crite faite sous serment. Do 1^, il se rend au bureau de la
police secrete : on lui r^pond que Ton ne pent agir sans Miandat. Le juge d'instructiou
d^clara ue pouvoir prendre sur lui de donner un mandat d'arr^t sur les dispositions
d'un seul t^moin, et le ronvoie chez M. Call, ^ Williamstown, lequel pourrait avoir des
t^moignages de la police du port.

II c^tait environ 7 heures du soir; voyant le pen d'empressement des fonct ion n aires,
le consul se d<^cida i\ recevoir lui-ni^nie la disposition. Copie en fut apport^o le meme
soir, a 9 heures, k Pattorney-geueral, raais il ne se trouvait plus k la cbambre.

18. Le Sbenandoah partit le 18 fdSvrier, dans la matinee.

19. II fut constats, et le gouverneur de Melbourne Ic constate lui-m6me dans uue
circulaire du 27 fdvrier 1865, qtCun uombre considerable de marine destin^n d renforver
V^-quipage avaient <f/<f regus d bord dit Shenandoah avant qu'il ne quittAt le port, le 18
f(6vrier. (M^moire britannique, p. 168.)

20. II n'est pas contests non plus qu'il prit 300 tonnes de cbarbon, co qui, aJoutiS aux
100 qui setrouvaient d<$j^ h son bord, faisait 400 tonnes. ( Voyez citation conipl^montaire
daus le considiSrant N" III, litt. rf, ci-apr6s.)

Les experts officiels d<Sl(Sgu<;^8 pour les r<Sparations du navire constat^reut seulement
que le Sbenandoah n^<5tait pas capable de prendre la mer comme navire a rapeur.

IV. — Cro'mbre et sort final du Shenandoah.

21. Au sortir de Melbourne, le Shenandoah se rendit dans ToccSan Pacifique et de
1^, par le d<Stroit de Behnng, dans I'occSan Arctique, oti il ddtruisit les baleiniers
anidricains qu'il y rencontra. On pretend qu'il y brtila encore quinze vaisseaux apr^-s
que le capitaine Waddell eut eu conuaissance de la fin de I'insurrection. II resta
enregistr^ corame vaisseau anglais jnsqu'au 17 octobre 1865.

OPINIONS OF MR. STiEMPFLI. 131

•

Ou the 6th November, 1865, Waddell brought the vessel back to
Liverpool, where she was handed over to the United States. Waddell
declared that he learned of the surrender of Lee on the 28th June, but
that he still knew nothing of the insurgent government having come to
an end, of which he did not become aware until the 2d of August.

(B.) — Considerations.

l—Conduct of the British authorities up to tlie moment of the departure of
the Sea King and Laurel on tJie Sth October j 1864:

(fl.) The previous acts of the Florida, Alabama, and Georgia should
have rendered the British authorities more active, with a view to pre-
veuting the repetition of similar acts.

(h.) And yet nothing was done either to secure an increase of vigil-
auce, or with the view of originating more effective measures of dis-
covery and pursuit, or of supplementing the municipal law where nec-
essarv.

(€,) The transfer of the Sea King to the name of Wright of Liverpool,
who was closely connected with one of the principal partners of the
firm of Fraser, Trenholm & Co., (September 20, 1864,) coupled w ith the
embarkation of cases containing cannon and arms on board tlie Laurel,
would have furnished sufficient grounds for intervention, had there been
any disposition to take the initiative.

(d.) The objection, often repeated, that English law and English legal
proceedings do not admit of such an initiative being taken, cannot be
sustained, according to the three rules and the general rule of law
quoted above.

(e.) Nevertheless, one might hesitate to consider these first facts, by
themselves, as sufficient to establish a violation of neutrality on the part
ol Great Britain, without at the same time examining the subsequent
career of the Shenandoah.

Le 6 iioveuibre 1865, Waddell ramona le vaisseau ii Liverpool, oh il fnt remis aux
^tat8-UDis. Waddell d^clara avoir appris la capitulation de Lee le 28 .jutu, mais
iravoir eucore rieu sii de la cessation du gouvernement des in8urg(5s, qiiMl n'ap2)rit que
le 2 aodt.

(B. )— Con8id^:rant8.

L— Conduite des autorit^s briianniqnea jxiaqtCaa moment de la sortie dn Sea King et du

Laurel J le 8 octobre 1864.

o) Les actes prdc^dents du^ Florida, de I'Alabama et du Georgia devaient susciter
pins de vigueur de la part des autorit<6s britanniques, afin d'erapc^cher la r(5pdtition
d'actes de la uiAiue uature ;

h) Et pourtant il ne se fit rien, ni pour renforcer la vigilance, ni en vue de prendre
une meilleure initiative dans le but de ddcouvrir et de ponrsuivre, ni pour conipl(^ter les
lois miuiicipales ofi il pouvait ('Xve n^^cessaire qu'elles le fussent.

v) La transcription du Sea King au noin <le Wrigbt de Liverpool, qui etait en rela-
tion intinie avec nn as8oci<^» principal de la niaison Fraser, Trenholm et 0'*=, (le 20 sep-
teinbre 1864,) jointo au chargemeut de caisses couteuaut des canons et des arfnes a
bord du Laurel, aurait fourni assez de motifs d^intervenir, s'il yavait en de I'initiative.

d) L'objection sou vent r<^p^t<^-e que les lois anglaises et la procedure auglaise ne
perriiettent pas nnc pareille initiative n'est pas soutenable, d'apr^s les trois regies et la
regie g«^u<^rale de droit cit^e plus baut.

e) Cependant. Ton pourrait h^siter ^ voir dans ces premiers actes seuls des motifs
snflisjints de violation de ueutralitddelapartdelaGrande-Bretagne, sil'on n^exaniinait
en m^uie temps la suite des avcutures du Shenandoah.

132 ARBITRATION AT GENEVA.

II. — Condu<it of the British authorities from the departure of the Sea KxrtfJ
and the Laurel to the events which took place at MeWoume,

(a.) The cominunicatioDs sent ou tbe 12tb of November, 1864, by tb^3
British consul at Teneriff'e to Lord Russell, and tbe depositions made ow.m
oatb ou tbe 14tb of November, 1804, by two sailors returned from Ma-
deira, contained convincing proof tbat tbe Sea King and the Laurel
had been furnished, in English ports, with everything necessary, in the
way of armament, stores, and equipment, to enable the Sea King to be
transformed, on tbe high seas or in any waters within the jurisdiction
of a state, into a sbip of war or into a privateer against the United
States.

(b.) Tbe British authorities recognized in this, it is true, a violation
of their neutrality ; but their only attempt to remedy it was defective
in two points:

{aa.) In England, judicial proceedings were directed to be taken
against Corbett only, tbe former master of the Sea King, and that, again,
on tbe score of recruitment oidy ; no proceedings were directed against
the master of the Laurel, or those who freigbted that vessel, or against
Wright, tbe owner, at least in name, of tbe Sea King. It is unneces-
sary to say that Corbett's acquittal does not modify the question of
international law.

(bb.) The British authorities took measures against the perpetrators
only, aud not against the results of the violation of the law. In partic-
uhir, they omitted to inform all the colonial authorities of the empire
of the illegality which attached to the ship, thenceforward known as the
Shenandoah, and to provide them with instructions to seize the vessel
if an opportunity should occur.

III. — Conduct of the British authorities at Melbourne.

(a.) It is certain that the authorities of this colony received from
London neither communications nor instructions concerning the Sheii-

II. — Conduite des autorii^ britanniques depuis la sortie du Sea King et du Laurel jusqu^aus

faita arrives a Melbourne,

a) Lea communications envoy^es le 12 novembro 1864, par 1q consul britanniqae
de T^ndritt'e ^ Lord Russell, ot les depositions faites sous serment le 14 uovembre 1^4,

gar deux matelots revenus de Mad^re, constataient d'uno mani^re convaiucaute que le
ea King et 1© Laurel avaient 6t6 pr6par<^s dans des ports anglais avec tout ce qui dtait
ndcessaire, en fait d'armement, d'appareil et d'dquipement, pour fournir au Sea King
les moyens de se transformer, en pleine mer ou dans des eanx quelconques sous juridic-
tion d''6tat, en vaisseau de guerre ou en corsaire contre les fitats-Unis.

b) Les autorit^^s britanniques reconnureut en cela, il est vrai, uno violation de
leur neutrality, mais elles ne cherchferent k y rem^dier que d*une maui^re dc^fectueuse
k un double point de vue.

a a) En Angleterre il n'y eut de poursuite judiciaire ordonn<5e. que contre Corbett,
ancien patron du Sea King, et encore ne le fut-elle que sous le chef d'enrAlenient ; Ton
omit de diriger des poursuites contre le patron du Laurel et les aftr6teui*s de ce navire,
ainsi que contre Wright, propri<5taire, au moins de nom, du Sea King. II va sans dire
que Tacquittement de Corbett ne modi fie point la question du droit des gens.

b b) Les autoritds britanniques ne dirig^rent leurs mesures que contre les persou-
nes, et nullement contre les r<5sultat8 de la violation de la loi. Elles oniiront notani-
ment d'informer toutes les autoritds coloniales de I'empire de Till^^galit^^ attach^e au
navire, connu dfes lors sous le nom de Shenandoah, et do leur fournir des instructions
en vne de saisir le vaisseau, le cas ^ch^ant.

III. — Conduite des anioritis britanniques d Melbourne.

a) II est constate que les autorit^s de cette colonic ne reyurent de la m^tropole ni
communications ni ioBtrnctions concern ant le Shenandoah ; bien que, depuis T^poque

OPINIONS OF MR. ST^MPFLI. 133

•

andoah ; although, from the time when the authorities in London knew
of the criniiual character of the vessel, (in the middle of November,
I8(>4,) to the moment of her entrance into Melbourne, (January* 25, 1805,)
there had elapsed sufficient time for the transmission of such instruc-
tions. The observation made in the British pleadings, that allowance
musr be made for the inexperience of the authorities at Melbourne, is
without force from this fact.

(h.) The authorities at Melbourne showed themselves, in several
respects, negligent in the maintenance of their sovereignty as a neutral
eoiiiitry in the case of the Shenandoah:

{(III.) They waived the production of the commission which the cap-
tain held from the insurgent States. (British Case^ p. 161.)

(bb.) They suffered a refusal of their right to search the vessel for
the purpose of discovering British subjects, illegally enlisted, on board
of her; and they submitted to the threat used by the captain, thaf he
would oi)pose force by force, without immediately taking serious meas
ures against him.

The report of the law-officers of the Crown, which holds that, against
a refusal of this kind, there was no course open but to compel the ves-
sel to leave the port, is not correct, according to international law, for
use might be made of a similar refusal to carry out and conceal with
impunity violations of neutrality in neutral ports.

(cc.) The only measure taken in consequence of this refusal consisted
in the suspension of the permission to repair which had been ^granted,
a measure which, how^ever, was withdrawn on the mere representations
of Waddell.

(dd.) The manner in which the amount of repairs necessary for the
VI ssel was ascertained, and in which their execution was watched, was
but imperfect. (Report of Captain Payne; British Case, p. 169.)

(c.) It is ascertained that the crew of the vessel was augmented before
ber departure from Melbourne by a considerable number of sailors, in
spite of the constant remonstrances and complaints of the American

oh les aiitorit<^8 de Londres connurent le caractcre criminel du vaisseau (mi-novenibre
1864) jus<|ii'aa momeift de Tentrde du vaisseau h Melbourne, (25 Janvier 1865,) il y eftt
eu huffisaniment de temps pour transmettre ces instructions. L'observation pr^^sentde
par les uiemoires anglais, qu'il faut pardonner quelque chose h, rinexpdrience des
autoritds do Melbourne, est par lo fait ra6nie sans portc^e.

b) Les autoritds de Melbourne se montr^^eut•, h plusieurs dgards, n^^gligentes dans
le uiaiutieu de leur 80uverainut6 comnie pays neutre, vis-fi-vis du Shenandoah.

a a) Elles renonc^rnt h se faire exhiber la commission que la capitaine tonait des
<^tats in8urg<?9, (mdraoire britannique, p. 161.)

b b) EHes se laisserent refuser le droit de faire des perquisitions h bord du navire
eu vue d'y d^couvrir des sujets anglais ill(?galement enr616s, et elles accept^rent la
menace faite par le capitaine, de reponsser la force par la force, sans prendre immd-
diatenient des mesures sdrieuses contre lui.

Le pr<^avi8 des jurisconsultes de la couronne, portant que, contre une rdnitenco de
ce genre, il n^j' avait pas d'autre moyen h employer que celui de forcer le navire a
quitter le port, n'est pas juste, d^aprfes le droit des gens; parce que I'on pourrait se
servir d'une pareille renitence comme d'un moyen de completer et de cacher impun(?-
ment des violations de la neutrality dans des ports neutres.

c c) La seule raesure que Ton prlt contre cetto renitence consista ^ suspendre la
permission qui avait 6t6 accordde de faire des riSparations, mosure qui du reste fut
retiree sur les simples repri^sentations de Waddell.

d d) La constatation des r<$parations rdellement ndcessaires au vaisseau et la
surveillance de leur execution ne se firent que d'une mani^re ddfectueuse. (Rapport
du capitaine Payne; m^moire britannique, p. 169.)

c) II est con8tat<$ que I'^quipage du vaisseau fut renforc6, avant son d(5part do
Melbourne, d'un nombre considerable de marins, malgr6 les d<$nonciatiou8 et les

134 ARBITRATION AT GENEVA.

consul. (Circular of the governor of Melbourne of the 27th February —
1865 ; British Case, p. 163.)

(d.) It appears also to be proved that the vessel was allowed to tak^
on board 300 tons of coal, which, added to the 100 tons she alread^^iM
had, made 400. (So says the American Consul Blanchard to the gov
ernor ; American Appendix, vol. vi, p. 698, and American Case, p. 347. _
In '^ The CruivSe of the Shenandoah," by Hunt, it is moreover said tha*
there were 300 tons taken in, which, with the 100 tons she already hai^
on board, gave a sufficient supply for the cruise which was con tern -
[)lated. (American Appendix, vol. vi, p. 698.)

According to the report of the official experts, (British Case, p. 102,>
the Shenandoah was not fit to go to sea as a steamship; from which it
may be inferred that, as a sailing vessel, she was fit to go to sea. (Com-
])are the report on the repairs of the Florida at Bermuda; British
(Counter Case, p. 127.)

The supply of coal was not, therefore, a necessary condition of the
neutral asylum, and, in supplying her with so large a quantity of coal,
the capacity of the ship for making war was increased, just a.s much as
by the recruitment of her crew which took place.

(C.) — Judgment.

In the acts which have just been enumerated there exists a violation
on the part of Great Britain of the obligations of neutrality laid down
by the three rules; consequently Great Britain is resi)onsible for the
Americ*an ships which were destroyed by the vessel in question.

V. — THE SUMTER.

(A.)— Facts.
1. The Sumter was a cruiser of the insurgent States, equipped in their

SuHiifr.

ports ; she left the mouth of the Mississippi and commenced
cruising on the 30th of June, 1861.

rc^claiiiatioiis non-intcrronipues dii consul aiiK^ricain. (Circiilaire du gouverneur de
Melbourne du 27 fcviier 1865; m^moire britanuique, p. 163.)

d) II paralt aussi 6tabli qu'il fut pcrmis au vaisseau d'enibarquer 300 tonnes de
charbon, ce qui, ajout<5 aux 100 tonnes quUl avait encore, en faisait 400. (C'est ee que
dit le consul amdricain Blanchard au couverneur; appeudice auic^ricain, tome vi,
p. 1)98; et nidiuoire am<5ricain, p. 347.) *' La Croisiere du Shenandoah," par Hunt, dit
par contre qu'il y eut 300 tonnes embarqudes, co qui, ajout<^ aux 100 qui s*y trouvaient
. encore, fiiisait une provision suffisante pour la croisit^re que Ton avait I'iuteutioix
<l'entreprendre. (Appendico amdricain, tonio vi, p. 698.) Selou le rapport de«
experts ofliciels, (nidnioire britaunique, p. 162,) le Shenandoah, en tant que vaisseau
a vapeur, u'etait pas capable de mettre en nier, d'oti \\m pent conclure que, corame
voilier, il pouvait tenir la luer. (Comparer le prdavis sur les reparations pour le Florida
ii Bermude. (Contre-m<5moire britanuique, p. 127.)

L^approvisionneraent de charbon n'etait done pas une obligation de Tasile neutre; et
en lui fournissant une si forte quantit<^ de charbon, on renror^ait la capacitd du vais-
seau k faire la guerre tout aussi bleu quVn augmontant sou Equipage, comme on Tavait
fait.

(C.)— JUGEMENT.

Dans les faits qui viennent d'etre 6num6r<5s, il existe une violation, de la part de la
Grande-Bretagne, des obligatiops de neutrality d^^termin^es par les trois ri^gles. En con-
sequence, hi Grande-Bretagne est responsable pour les navires americains qui out dte
iietruits par la vaisseau en question.

LE SUMTER.

(A.) — Fafts.

1. Le Sumter etait un croiseur des <Stats insurgds, dquipiS dans leurs ports; il sortit
des passes du Mississippi et commenya ses courses le 30 juin 1861.

OPINIONS OF MR. ST^MPFLI. 135

2. After having made six prizes, she first entered the Spanish port of
Cienfuegos, (Cuba,) where she took in coal. On the 15th of July, 1861,
Bhe arrived at the Dutch port of Saint Anne, in the island of Cnra9oa,
there took in coal, and staid eight days. On the 30th of July she
reached the British port of Trinidad, after having made in all eleven
prizes since her departure from the waters of the Mississippi; she re-
mained six days in this port, and there shipped a complete supply of
coal. After having left Trinidad, the Sumter touched, among other
places, at the port of Paramaribo, (Dutch Guiana,) where she took in a
supply of coal, from the 9th to the 31st of August; at Port Royal, in
Martinique, where she took in coal and remained fourteen days, from
the 10th to the 23d of November ; at Cadiz, where she staid fifteen
days; she put in, on the 18th of January, 1802, at Gibraltar, after
having made six fresh prizes since her departure from Trinidad.

3. The Sumter remained at the port of Gibraltar until December,
1863, when she was disarmed and sold by public auction.

The officers, among whom was Captain Semmes, who subsequently
commanded the Alabama, abandoned the vessel and w^ent to England.

4. From February, 1862, there had been United States ships of war
stationed in the waters of Algeciras, to wateh the Sumter. .

5. The representatives of the United States at Gibraltar and London
protected against the sale of the Sumter as fictitious and inadmissible,
according to international law.

6. On the 9th of February, 1863, the Sumter escaped from Gibraltar
and arrived at Liverpool ; she remained there till the 3d of July, was
from thence employed as a transport-ship, and left that port under the
name of the Gibraltar, carrying a cargo of heavy artillery. What be-
came of her afterward is not exactly known. It only appears, from the
evidence, that United States ships still watched her for several months
after she left Liverpool. (The Connecticut, from the 3d of August to
September, 1863; United States Appendix, vol. iv, p. 120, table.)

2. Apr^ avoir fait six prises, il entra d^abord au port espagnol de Cienfuegos, (Cuba,)

ou il einbarqiia du charbon ; le 15 juiUet 1861, il arrivaau port hollandais de Ste.-Anne^

(lans Tile de Ciirayao, y euibarqua du charbou et y s^journa huit jours ; le 30 juillet,

ii atteigiiit le port britauDique de la Triuit<^, apr^s avoir fait en tout onze prises depuis

m soitie des euux du Mississippi ; il resta six jours dans co port et y fit an complet ap-

pruvisionnement de charbon; apr^s avoir quitte la Trinit<5, le Sumter toucha encore,

entr*autres, aux port-s de Paramaribo, (Guyane hoUandaise,) oil il s^approvisionna de

charbon, du 9 au 31 aoQt ; de Port Royal k la Martinique, oh il embarqua du charbon

et resta quatorze jours, du 10 au 2^^ novembre; de Cadiz, oh. il s^journa quinze jours ;

il entra, le 18 Janvier 1862, k Gibraltar, apr^s avoir fait six nouvellea prises depuis son

depart de la Trinity.

3. Le Sumter resta an port de Gibraltar jusqu'en decerabre 1863, ^poque k laquelle
il fut d<^8armd et vendu aux ench^res publiques.

Lea ofliciers, parmi lesquels se trouvait le capitaine Semmes, plus tard commandant
de 1' Alabama, abandonnerent le vaisseau et se reudirent en Angleterre.

4. D^ le mois de fdvrier 1862, il y avait eu des navires de guerre des ^tats-Unis
stationn^ dans les eaux d'Algdsras pour guetter le Sumter.

5. Les repr6)entants des ^tats-Unis a Gibraltar et k Londres protest^rent contre la
vente dn Sumter, comme iictive et inadmissible d'apr^s le droit des gens.

6. Le 9 f^vrier 1883, le Sumter s'dchappa de Gibraltar et arriva k Liverpool ; U y
resta juscju^au 3 juillet, fut de \k employ^ comme vaisseau de transport et quitta ce
port sons le nom de **le Gibraltar," emportant une cargaison d^artillerie do gros calibre.
On lie sait pas au juste ce qu'il deviut dans la suite. II ressort seulement des pieces
que des vaisseaux de guerre des l^tats-Unis le guett^rent encore plusieurs mois apr^s
sa sortie de Liverpool. (Le Connecticut, du 3 aodt jusqu^en septembre 1863 : appendice
am^ricain, tome iv, page 120, tableau.)

136 ARBITRATION AT GENEVA.

(B.) — Considerations.

I. — Respecting tvhat took place up to the moment of the vesseVs entry int^:^

Gibraltar.

(a.) With the exception of her stiiy, aud the supply of coal which th^
Sumter took in at Trinidad, none of the acts in question took place
within British jurisdiction ; consequently, Great Britain is responsible
for nothing which occurred before the arrival of the Surater at Trinidad.

(h.) The permission given to the Sumter to remain and to take in coal
at Trinidad, does not in itself constitute a sufficient basis for accusing
the British authorities of having failed in the observance of their duties
as neutrals; because this fact cannot be considered by itself, since
the Sumter, both before and after that time, was admitted into the porte
of many other states, where it staid and took in coal, and it is proved
that the last supply she obtained to cross the Atlantic did not take
place in a British port; so that it cannot be held that the port of Trini-
dad served as a base of operations for the Sumter.

II, — Respecting the permission to stay^ and the sale of the Sumter at Gib-
raltar.

(a.) The stay of the Sumter, as an armed ship of war of the Confed-
erate States, at the port of Gibraltar, from the month of January to the
month of December, 1862, was less the result of her being in distress
than a refuge from the danger arising from the ships of the enemy.

(h.) The granting of such shelter is contrary to the second rule of the
treaty, according to which a neutral port must not serve as a base of
operations to belligerents, and, consequently, must not serve them either
as a refuge from the enemy, while giving them, at the same time, the
opportunity of leaving it at will.

(c.) The objection which is made that the Sumter entered Gibraltar

( B. )— Con8Id6rant8.
I. — Concernant ce qui sepassa jusqiCau moment de Ventr4e du vaisseau d Gibraltar.

a) X Pexception da s^jour et de rapprovisionnement que fit le Suint<^r k la Trinity,
aticun des faits en question n'eut lieu dans la juiidiction britaunique; par consequent,
la Grande-Bretagne n'est respousable pour rien de ce qui se passa avant rarrivde du
Sumter d la Trinity.

5) La permission donn€e an Sumter de sdjonrner et de faire du charbon h la
Trinity ne constitue pas h die seulo une base suffisante pour que Ton puisse accuser
les autorit^ britanuiques d'avoir manqu6 ^ leurs devoirs do neutrality; car ce fait
ne pent 6tre consid^rd isol^ment, puisque, avant et aprt^s, le Sumter avait 6t6 admis
dans les ports de plusieurs autres dtats, oh il s<^ourna et fit du charbon, et qu'il est
constate que le dernier approvisionnement quMl fit pour traverser l*oc6an Atlantique
n^eut pas lieu dans un port britaunique: de sorto que Ton ne saurait prdtendre que le
port de la Trinity ait serW de base d'opdrations au Sumter.

II. — Concernant la permission de s^jour et de rente du Sumter d Gibraltar,

a) Le 8<^jour du Sumter comme vaissean de guerre arrad des etat^-confdddres au
port do Gibraltar, depuis le mois de Janvier au niois de d^cembre 166*2, fut moins la
suite d^un etat de ddtresse qu^uu asile contre le danger provenant de vaisseaux
euuemis.

b) Une- pareille concession d^asile est en d(^saccord avec la 2« r^gle du traits,
d^ipr^s liiquelle un port neutre ne doit pas servir de base d'op^rations aux bellig6rants ;
par consequent, ne doit pas non plus leur servir de lieu de refuge contre Pennemi, tout
en leur laissant la possibility d'en ressortir j\ volonte.

c) L^objection qui est faite que le Sumter dtait entr6 ii Gibraltar avant la publica-

OPINIONS OF MR. ST.EMPFLI. 137

before the publication of the oflBcial circular of the 31st of January,
1862, which limits the stay of belligerent vessels in neutral ports, is
immaterial; for,

(d.) Even without the publication of that circular, the granting of
shelter wliich took place would have been contrary to the duties laid
down ill the second rule, and to the principles of a real and effective
neutrality.

{€,) Moreover, to interpret the circular of the 31st January, 1862, in the
sense that it related only to the ships of belligerents which should in the
future enter British ports, and not to those which were already in them,
is in opposition, if not with the letter, at least with the sense and spirit
in which the circular was published.

(/.) The disarmament and sale of the Sumter after she had been eleven
months in the port of Gibraltar were the continuation and conclusion
of the course pursued up to that time, and which consisted in saving the
ship, her armament and her crew, from the enemy ; and these acts were as
little in conformity with the maintenance of a real and effective neutrality
as the whole of the proceedings from the beginning, and the less so
because they were accompanied by the following circumstances in
aggravation :

(g,) The sale of the ship was only fictitious, as appears from the
documents ;

Tbe proceeds of the sale of the arms, &c., were paid over to the treasury
of the insurgents;

The officers of the vessel and the rest of her crew remained at liberty,
and a certain number of them re-entered shortly afterwards the service
of the insurgent States.

(h.) According to the principles of neutrality observed on land, men
who seek refuge from the enemy are disarmed, and the munitions they
bring with them are seized and not restored till the end of the war; the
authorities of Gibraltar ought to have acted in like manner, or else they
ought to have compelled the vessel with her armament and crew to leave
the port within a stated time, providing her with a safe conduct as far
as the limits of British jurisdiction.

tion de la circulaire niinist^rielle clu 31 Janvier 1862, laquelle liraite la durdo du sdjour
des vaisseaux belligdrauts dans levS ports neutres, est sans portde; cai%

d) MAwe sans la publication de cette circulaire, la concession d'asile qui eut lieu
edi dt^ en disaccord avec les devoirs d(?couIant de la r^gle 2 et des priucipes d'une
neutrality rdelle a effectuer.

e) En outre, interpr<$ter la circulaire du 31 Janvier 1862 dans le sens qu'elle ne
devait concerner que les navires dea belligdrants qui entreraient k I'avenir dans les
ports britanniques, et non ceux qui s'y trouvaient ddj^ alors, c'est se mettro en disac-
cord, Minon avec la lettre^ du moins avec le sens et I'esprit dans lesquels cette circulaire
fnt publide.

/) Le ddaarmement et la vente du Sumter au bout de onze mois de sdjour dans le
port de Gibraltar furent la continuation et la conclusion du procddd suivi jusqu* alors,
et fiui consistait i\ sauver de I'cnneuii le vaisseau, son armement et son Equipage ; et
ces actes aussi furent aussi pen conformes au niaintien d'une neutrality rdelle et effec-
tive que tout le proc^ld, d^s le commencement, et cela d'autant niq^ns quMls 6taient
aceompagnds des circoustances aggravantes suivantes.

p) La vent« du vaisseau ne fut que lictive, ainsi qu'il appert d'aprfes les actes :

Le produit de la vente des amies, &c.. fut versd daus la caisse des insurgds ;

Les officiers du vaisseau et le reste de l'6quipage rest^ront en 6tat do libertd, et nn
certain nonibre d'entr'eux rentr^rent, pen de temps apr^s, au service des 6tats insurgds.

A) D'apr^is les priucipes de neutralite ob8erv<58 sur terre, les liommes qui chercbent
un refuge contrc Feunemi sont d^sarmds et internes, le materiel qu'ils emportent est
saisi et u'est restitu(^ qu'i\ la tin de la guerre : les antorit<59 de Gibraltar auraient d(l
agir d'une maniere analogue, on bien elles auraient dd forcer le navire, avec son arme-
ment et son Equipage, k quitter le port, dans un ddlai fix<5, sauf iSt le pourvoir d'un sauf-
conduit jusqu'aux limites de la juridiction britannique.

138 ARBITRATION AT GKNEVA.

JUDGMENT.

1. Great Britain has not failed in her duties, as laid down in the three
rules, in respect to the Sumter, up to the entrance of that vessel into
Gibraltar, and is not, therefore, responsible for the ships destroyed by
the Sumter.

2. On the other hand, Great Britain has violated the second rule in
attbrding a protracted shelter to the Sumter, and in permitting the dis-
armament and pretended sale of that vessel in the port of Gibraltar, and
is, therefore, responsible for the sum for which the Sumter, her anna
ment and equipment were sold, for the expense of watching her by the
ships of the United States before the waters of Gibraltar, during the
whole period of the stay of the Sumter in that port, and for the expense
of her pursuit after her departure from that port.

VI. — THE RETRIBUTION.

(A.) — Facts.

1. This vessel was originally a United States screw steamship, the

Uncle Ben, and was built at Buffalo in 1856.
Shortly before the attack on Fort Sumter she had beeu
sent to the south coast of the United States. Stress of weather obliged
her to put into the Cape Fear Iliver. There the insurgents took posses-
sion of her, and turned her into a schooner. She went to sea again under
the name of the Retribution, and cruised in the neighborhood of the
Bahanuis.

2. In the month of December, 1862, she captured the American
schooner Hanover, and took her prize to Fortune Island or Long Cay,
(one of the Bahanms.)

Tlie captain of the Retribution, one Locke, alia^ Parker, went before
the authorities ot the port with the papers of the Hanover, represented
himself as the master of that vessel, under the name of Washington Case,
and stated that he had been shipwrecked on one of the neighboring
islands, and that he was in distress ; that he had been bound from Boston

(C.)— JU«KMKNT.

1. La Grande-Bretagne ii'a pas inanqn<5 a sCvS devoirs, d6coulant des trois regies, eu
CO qui concerue le Snuiter jusquVv I'eutree de ce vaisseau 2i Gibraltar, et oUe u'ost, par
cons^^quent, pa8 responsable pour les destructions de navires effectu<Ses par le Sumter.

2. Par coutre, la Grande-Bretagne a violc'' la regie 2 en accordant uu asile prolonge
au Sumter et eu tolerant le desarmemeut et la pr<?teudue veute de ce vaisseau dans le
port de Gibraltar, et elle est, par con8(>quent, responsable pour le prix de veute du
Sumter, de sou armemeut et de son c^quipeuient, pour les frais de surveillance par les
navires des ^T.tats-Uuis devant les eaux de Gibraltar, pendant toute la dur6o dii s(?Jour
que lit le Sumter dans ce port, et pour les frais de sa poursuite apres son depart de ce
port.

LE RETRIBUTION.

(A.) — Faits.

1. Ce vaisseau dtait dans Torigine la vapeur i\ bdlice I'Uncle Ben, des fitats-Unis, et
avait 6t6 construit a Buffalo, en 1856.

Pen de temps avant Tattaque du fort Sumter, il avait ^M envoyd sur les cAtes m^ri-
dionales des Etats-Unis. Le mauvais temps I'obligea ii ontrer dans le fleuve du Cape
Fear. La, les insurgc^ s'en empari^rent et le transtorm^rent en scbooner. II reprit la
mer sous le nom de Retribution et croisa dans le voisinage des Bahamas.

2. Au mois de d^.cembre 1862, il captura le schooner am<^ricain le Hanover, et amena
sa prise k Pile Fortune on Long Cay, (I'une des Bahamas.)

Le capitaine de la Retribution, nomm6 Locke, alias Parker, se prt'^senta avec les
papiers du navire le Hanover aux autoriti^s du port, se lit passer pour le patron de ce
•navire sous le nom de Washington Case, et rapporta qu^il avait fait uartfrage k I'une des
lies voisines et qu'il <?tait en ddtresse ; qu'il avait 6t6 destind de Boston h la Havaue

OPINIONS OF MR. ST^MPFLI. 139

to Havana, with liberty to seek another market; that liis instructions
authorized him to dispose of his cargo, aud to make use of the proceeds
to take in a cargo of salt, and to run the blockade with it.

The ship's papers were examined and found to be in conformity w ith
bis declarations ; they were indeed made out in tbe name of the mas-
ter, Washington Ciuse, and it was under this name that Locke was ad-
mitted into the port with the Hanover, and that the ship's cargo was
exchanged for one of salt.

3. Later, on account of remonstrances made by an American agent,
Locke was prosecuted at Nassau, on account of this act. Tlie first time
he was released on bail, and succeeded in escaping trial by taking flight
and forfeiting his bail, (October, 18()3.) The second time, having made
the same voyage again, he was acquitted by the court for want of evi-
dence to prove his identity, (February, 18(55.)

4. Previous to these judicial proceedings the Retribution had also cap-
tared, in the neighborhood of Castle Island, the American brig Emily
Fisher, carrying a cargo of sugar. The master of this latter vessel,
named Staples, relates what happened in the following manner:

The prize having been made, the captor made an arrangement with
some wreckers and then stranded the vessel, after which the wreckers
took possession of her; and she was then brought back to Long Cay,
accompanied by the Retribution.

The master of the Emily Fisher was not allowed to take possession
of his ship again until he had paid 50 per cent, of the price of the
cargo, and 33J per cent, of the value of the vessel, to the wi^ckers.
When he had made this payment he was replaced in possession by the
collector ; the authorities declared that the law would not allow the
cruiser to touch the brig, but that, even if they wished, they had no
means of preventing it; and, finding himself under the guns of the
cmiser, he had preferred paying what was asked of him.

In the British counter case it is admitted that this statement may be
true, that there had been a conspiracy between the captain of the Ret-

avec faculty de chercber uu autre march^ ; que sea instructions I'autorisaient a disposer
lie la car^aisou, et ii en employer le produit k faire un chargemeut de sel ct li traverser
]e blocus avec ce cliar^emeut.

Le« papierti du navire furent examines et trouv<Ss conformes aux declarations; Us
♦'taient eij effet au uooi du patron Washington Case, et ce fut sous ce uom que Locke
i'ut a<lniis au port avec le Hanover et quo la cargaison du navire fut chang^o contre une
(le sel.

3. Plus tard, ^ la suite de denonciations faites par un agent am^ricain, Locke fut
ponfsuivi en justice a Nasi»au, a cause de ce fait ; la premiere fois, il fut relficbd sous
caution, et rdussit ^ se soustraire k la proc6dure en preuant la fuite et abandonnant son
caution nenient, (octobre 18G3.) La seconde fois, ayant refait le ni6nie voyage, il fut
acquitt^ par le tribunal, faute de preuves constatant son identity, (f(6vrier 1865.)

4. Antdrieurenient h ces proc6d6s judiciaires, le Retribution avaitaussi capturd dans
le voisinage de Castle Islaud le brick ani^ricain Emily Fisber, portant une cargaison
de Sucre. Le patron de ce dernier vaisseau, nommd Staples, raconte ce qui s'est pass^
de la niani^re suivante :

La prise faite, le capteur 6tait entr^. en relation avec quelques wreck^s et avait en-
saite fait ^chouer le navire ; apr^s quoi les wreckers s'en dtaient emparcSs ; eusuite il
avait dte ramen<^ a Long Cay sous la conduite du Retribution.

Lui, patron de TEuiily Fisber, n'avait 6t6 en ^tat de reprendre possession de son vais-
seau qu'il n'eitt payd aux xcreckers 50 pour cent du prix de la cargaison, et 33i pour cent
de la valeur du vaisseau. Lorsqu'il eut d<5pos<$ce paiement, il avait €\A remis en pos-
Kession par le collecteur ; les autorit4Ss avaieut d^clard que les lois ne permettraient pas
au croisenr do toucber au brick, mais que, quand m^me elles le voudraient, elles^n'au-
raient aucuu moyen de I'empecber ; et, se trouvant sous les canons du croiseur, il avait
mieux aim6 payer ce qu'on lui demandait.

Dans le contre-mdmoire britannique, on reconnatt que cet expos^ pent 6tre vrai, qu'il
y avait ea complot entre le capitaine du Retribution et les tcreckcre en vue d'extorqner

140 ARBITRATION AT GENEVA.

ribution and the wreckers, with a view to extorting money from the
brig, from which, as a prize, lie would otherwise have been able to ob
tain nothing; but that no complaint had been made against the
authorities of the colony, and that, since then, nine years had elapsed.
5. The Retribution thereupon went to Nassau Bay, was sold there ou
the 10th of April, 1863, there changed her name to that of the Etta,
and both these transactions were registered by the authorities at Nas-
sau. On her first voyage to New York as a transport she was recog-
nized as the former Retribution, and was seized by the authorities and
sold.

(B.) — Considerations.

(A.) — What took place respecting the Hanover,

The British authorities are not responsible in this matter, since they
were deceived in regard to the entry and sale of the prize at Long Cay,
and since, from the manner in which this fraud was committed, they
cannot be accused of culpable negligence.

Nor can any responsibility be attached to the subsequent acquittal,
for this act, of CapUiin Locke by the courts at Nassau, inasmuch as it
is not shown that theixj were any evident defects in the proceedings or
the judgment.

(B.) — WJiat took place respecting the Emily Fisher.

It appears to be proved that, in British jurisdiction, by means of a
conspiracy between the captain of the cruiser and some of the crew of
the wrecking- vessels, exactions were practiced on this vessel after she
had been captured and brought into the waters and port of Long Cay;
and that the authorities of the port were aware of it, the affair ha\ing,
so to speak, taken place before their eyes; that, notwithstanding, these
authorities did not take any steps, either with a view of affording
efficient protection, or with a view of instituting judicial proceedings,

de I'argent aa brick, dont 11 n'aurait sans cela rien pu retirer comme prise; mais qn'il
n'y avait pas eu de plainte port<5e coutre les aatorit^ coloniales, et qae, depais lors,
neuf ans s^dtaient dcoulds.

5. L^dessns, le Retribution se rcndit dans la baie de Nassau, y fnt vendu le 10 avril
1803, y cbangea son nom en celui de "Etta," et Fun et Tautre de ces actes furent enregis-
tr6s par les autorit^ do Nassau. Lors de sou premier voyage k New York, en quality?
de transport, il y fut reconnu comme Tancien Retribution, et fut sdquestr^ par les
autoritds et vendu.

( B.)— ConsidArants.
(A.) Ce qui se passu ooHcernant le Hanover,

Les autorit^s britanniques n'en sont pas responsables, puisqu'elles furent tromp^es
quuut ^ l'entr<»e et t\ la vente de la prise k Long Cay, et que, de la mani^re dont cettc
tromperie fut commise, il ne pent leur 6tre reproch^ de negligence coupable.

II n'y a pas uon plus de motif do responsabilitd dans I'acquittement subsequent, pour
ce fait, du captaine Locke par les tribuuaux de Nassau, puisqu'il n'est pas 6tabli qu'il
y ait eu des ddfauts dvidents (Jans la procedure et le jugement.

(B.) Ce qui sepassa concernant V Emily Fisher.

II paratt constate que dans la juridiction britannique, au moyen d'un complotforme
entre le capitaine du croiseur et quelques bommes d'dquipage de bateaux de sauvetage,
il fut comrais des exactions centre ce vaisscau, apri's qu'il eut 6X6 capture et amene
dans les eaux et le port de Long Cay ; et que les autorites du port en avaient connais-
sance, les cboses s'etant, pour ainsi dire, passees sous leurs yeux ; que, nonobstant cela,
ces autorites n'avaient pas fait une seule deuiarche, ni eu vue d'accorder pix>tection
effective, ui en vue d'en tamer des poursuites judiciaires, ui eu faisant rapport aux

OPINIONS OF MR. ADAMS. 141

or by reporting to their superiors wbat was taking place ; that, more-
over, and as a sequel to these acts, on the 10th of April, 1863, seven
weeks after the events which had taken place, the sale and chaiige of
name of the Retribution took place, and that these transactions were
registered by the authorities at Nassau.

(C.) The objections made by Great Britain, that it was not until
Dine years after these acts took place that a claim is made with respect
to the Emily Fisher, and that Long Cay is a distant and little frequented
port, are immaterial, because the nature of the offense committed at
Long Cay made it the duty of the authorities to interfere oflQcially, or
lo report to their superiors ; and because, even if at the time of the
commission of the offense, there was not on the spot a force to prevent
it, it was, nevertheless, the duty of the authorities, immediately after-
ward, to take every step to repair it, even that of insisting that meas-
ures should be taken against the belligerent by whom the cruiser was
commissioned.

JUDGMENT.

Great Britain did not fail to observe her duties as a neutral with
respect to the facts which concern the Hanover ; on the other hand,
in regard to the Emily Fislier, she did not fulfill her duties as a neu-
tral, and is responsible on this head.

OPINIONS OF MR. ADAMS.

I. — DUE DILIGENCE.

These words, which are found in the first and third of the rules
prescribed by the treaty of Washington, for the govern-
ment of the arbitrators in making up their judgment, have i>«ed,i,«rme.
^ven rise to much discussion in the preparatory arguments of the
opi>osing parties.

autorit^s 8up<5rieares de ce qai se passait; que, bien plus, et en suite de ces faits, le 10
avril 1863, sept semaines apres les dvduenientsqui avaieut eu lieu, la veute et le chauge-
ment dn nom de Retribution s'effectudrent et que ces actes furent enregi8tr<^8 par les
aatorit^s h Nassau.

(C.) LeS' objections queprdaente la Grande- Bretagne —

Que ce n'est que neuf ans apr^s lea faits accomplis que I'ou reclame au sujet de

pl)cher, les antoritds avaieut, cependaut, le devoir de faire imin^diateinent apres toutt'H
le» d-marches pour y remddier et ni(!Mue celui d'iusister pour qu'il fftt prisdes uiesures
centre le bellig^rant, conimettant du croiseur.

(C.)— Jl'Gement.

La Grande-Bretagne n^a pas mauqud ^ ses obligations de neutrality relativement aux
faits qui concerneut lo Hanover ; par contro, pour ce qui coucerue TEinily Fisher, elle
n^a pas satisfait h ses devoirs de iieutralitd, et elle est responsable de cu chef.

LE8 "DUKS DILIGKNCE8."

Ces mots, qui se trouvent daus la premiere et dans la troisi^me des regies prescrites
par le trait6 de Washington, pour servir de guide aux arbitres, pour former leur juge-
nient, out donn^ lieu h, beaucoup de discussions daus les exposes prdparatoires des par-
ties opposantes.

142 ARBITRATION AT GENEVA.

On the side of Great Britain, an explanation of tbem is given in tbie
9th, 10th, and 11th propositions, laid down on the 24:th and 25th pag^i<
of the case.

The subject is again considered in pages 21 and 22 of the volume
called the Counter Case.

It is again referred to in the 8th and 9th pages of the volume called
the Argument or Summary-.

Lastly, it is treated in a more general way in the alignment presented
by Sir lioundell Palmer, counsel on behalf of Her Britannic Majesty, on
the 25th July last.

On the side of the United States, an explanation is presented in pages
150 to 158 of the volume called The Case.

It is again referred to in the sixth page of the Counter Case.

The subject is again treated in pages 310 to 322 of the Argument or
Summary.

Lastly, it is discussed in a more general way in the argument sub-
mitted bv the counsel on behalf of the United States on the 5th and 6th
of August.

The objection which I am constrained to admit as existing in my mind
to the British discussion is, that it appears to address itself for the
most part to the establishment of limitations to the meaning of the
words rather than to the explanation of the obligations which they
imply.

The objection which I am constrained to find to the American defini-
tion is that I do not find the word '* due'' used in the sense attributed
to it in any dictionary of established authority.

Yet it does not appear to me so difficult to find a suitable meaning for
these words. Perhaps it may have been overlooked froui the very fact
of its simplicity.

I understand the word diligence to signify not merely work, but, to use
a familiar phrase, work with a will.

The force of the qualifying epithet "due'' can be best obtained by
tracing it to its origin. All lexicograi)hers derive it from the Latin
verb " debere," which itself is a compound of two words " de'' and

Du c6t^ de la Graiide-Bretagne, Vine explicatiou eu est doun6e daus lea 9™*, 10™*^ et
lime pvopositious pos<5L's, paj^es 24 et 25 du ''Case."

Lesiijet est de iiouveau considc^ro, pages 21 et 22, du volume appel^ le "Counter-case.'*

II y est encore fait allusion, pages 6 et 9, du volume nomm<^ '* Argument" ou *' Sum-
mary."

Eufiu il est trait<5 d'uno nlani^^e plus gt^ndralc dans le plaidoyer prL%ent<^ parSii-
Koundell Palmer, coiiseiller de sa Maj«.\st(^ britannique, le 25 juillet "dernier.

Du c6tc des l^tats-Unis, une explication est pr^sent<^e, pages 150 h 158 du volume
noninit^ le " Case."

U y est encore fait allusion, page 6 du *• Counter-case."

Le styet est de nouveau traitd, pages 316 h 322 de **l'Argument" ou "Summary."

Enlin il est discut^' d'une mani^re plus g<5n<5rale dans le plaidoyer present*?' par les
conseillers des fitats-Unis, les 5 et 6 aoM.

L'objection que je suis oblig6 d'admettre com me existant dans mon esprit a l¥ganl
des arguments anglais est, qulls semblent s'appliquer pour la plupart ii dtablir des li-
mitations du sens de ces mots, plut6t que de I'obligation quMls inipliquent.

L'objection que je suis obligd de faire i\ la d<51inition am^ricaine est que je ne trouve
pas le mot "due" employd dans le sens qui y est attribu^, dans aucun dictionnairt*
d'une autorit<5 recounue.

Cependant il ne me semble pas si difficile de trouver un sens couvenable pour ces
mots. Peut-^^tre a-t-il 6chapp^ par le fait niAme de sa simplicitd.

Je comprends que le mot "diligence" signifie, non pas simx>lement agir, mais agir de
bon coeur.

La force de I'dpithet^ qualificative "due" pent Hve niieux trouv^e en remontant h
son origiue. Tons les lexicographes la font deriver du verbe latin debet'Cy qui est lui

OPINIONS OF MR. ADAMS. 143

"balH^re," which means "quasi de alio habere" — that is, in English, to
hare of or from another.

Assuming this to be the primary meaning, I now come to the second
step. The lirst having implied something received by one person from
another, the second implies equally an obligation incurred thereby.
''Dehere," in Latin, means to owe. In French it becomes " devoir,"
which is equivalent to debt, to duty, or to obligation. In English it is
thus defined bv two eminent authorities :

Richardson: '' That which is owed; which any one ought to have,
has a right to demand, claim, or possess."

Webster: "Owed; that ought to be paid or done to another; that is
doe from me to another, which contract, justice, or propriety requires
me to pay, and which he may justly claim as his right.'^

1 have searched a great variety of other authorities, but do not cite
them, as they only repeat the same idea.

Hence it may be inferred that the sense of the words "due dili-
gence" is that of "earnest labor owed to some otlier party," which that
party may claim as its right.

But, if this definition be conceded, it must naturally follow that the
iiatm*e and extent of this obligation cannot be measured exclusively by
the judgment or pleasure of the i)arty subject to it. If it could, jn the
ordinary transactions between individuals, there would be little security
for the faithful performance of obligations. If it were not that the
party to whom the obligation has been given retains a right to claim it
in the sense that he understands it, his prospect of obtaining justice in
a contested case would be but slight.

If this view of the meaning of the words be the correct one, it fol-
lows that, when a neutral government is bound, as in the first and third
rules lai<l down in the treaty for our guidance, to use "due diligence" in
re<rard to certain things, it incurs an obligation to some external party,

ffl^me compost de deux mots de et habere, ce qui signifio quasi de alio hahre — c'est-sVdire,

fu franvais : aroir ou tenir d'un autre.
En adiiiettaut que ceci est la premiere signification,. j'arrive mnintenant i\ la seconde.

La premiere impliquant «iu'nne i>er8onne a re^^u quelqne chose d'un autre. Ja st'conde

implique ^galement qu'une obligation s'en est suivie. Debere, en latin, signifie, en anglais,
''toowe/' En frauyais, il devient "devoir," c« qui 6quivaut k dette, devoir ou obligation.
En anglais, il est d^fini ainsi par deux autorit<^s dminentes : *

Ricbanlson: '*Ce ([ui estdfi; c»Miue quelqu'un doit avoir; ec cfu'il a le droit de
deniander, de r(5clanier ou de po8S(5der.''

Webster: ** Dft; ce qui doit ^tre paye ou fait h, nn antro; ce qu'on doit a nn autn* ; ce
»|u'un contrat, la justice ou la propriet^^ exige que je paye, et ce qu'il peut Justenient
reclamer coumie son droit."

J'ai cbfrche un grand nonibre d'autresautorites, niais Je ne les cite pas, parce qu'elles
ne font que rep<^ter la m^me id«^e.

De la ou peut infcrer que le sens des mots** due diligence" est celui d'un travail
.s<^rieux du a quelque autre personne, cjue cette pei-sonno peut rt'clanier comme son
droit.

Mais si cette d^^finition est aduiise, il doit naturelleuient s'ensnivre que la natim^ et
I'dteudue de cette obligation ne peuvent pas Hv^i estimc^es exclusivtMuent seloii \v
jageiuent ou le plaisir de la personne qui 3^ est soumise. Si ct'la t'^tait possibK? dans
ies transactions ordinaires entre individus, il y aurait pen de sdcurito pour I'accom-
plissement lidtile des obligations. Si ce n'dtait que la personne envt^rs latpu'llo Toliliya-
tion a ^t<^ conti*act<^e conserve lo droit de la r<5clanier dans le sens oii ellc l'ent«*jid, sa
cbaooe d'obtenir justice dans un cas contest*^ ne serait que l<^gere.

Si cette maniere d'euvisager le sens den mot« est exacte, il s'ensuit que lorjijin'iin
gouvernement ueutre est tenu, comme dans la premiere et tians la troi.sirme rogle
posees dans le trait<5 pour nous servir de guide, d'exercer "due diligeufe" h IVgard tUs
certainei* cboses, il encourt envers quebjue autre i>artie une olligarioii dwu; il n'cst

144 ARBITRATION AT GENEVA.

the nature and extent of whicb it is not competent to it to measure
clusively by its own will and pleasure.

Yet the assumption tbat it is competent appears to me to underlie t~^^ ^^
whole extent of the British position in this controversy.

It may, indeed, be affirmed that no sovereign power in the last res^:^;^
is accountable to any other for the results of the exercise of its o^iwn
judgment, arrived at in good faith.

This proposition may be admitted to be true in point of fact; but: it
is obvious that proceedings under it gain no sanction under any lair
but that of superiority in physical force.

To escape this alteruativ^e, resort has been had to an attempt at defi-
nition of a system of rights and obligations, to whicli the assent of
civilized nations imparts authority in the regulation of their reciprocal
duties.

Under that system all the nations recognizing it are placed on a per
fectly equal footing, no matter what the nature of their relative force.
To borrow a sentence from the British counter case —

Her Majesty's governmeut knows of no distinction between more dignified and less
dignified powers ; it regards all sovereign states as enjoying equal rights, and equally
subject to all ordinary international obligations ; and it is firmly persuaded that there is
no state in Europe or America which would bo willing to claim or accept any immuDity
in this respect on the ground of its inferiority to others in extent, military force, or
population.

Admitting this position in its fullest extent, it may, at the same time,
be affirmed that, if Her Majesty's government were to enter into a con
tract with these various states, as a neutral power, to use due diligence
in certain emergencies, not one even of the smallest of them would fail
to deny that Her Majesty's government was the exclusive judge of the
measure of its obligations, contracted under those words.

What is then the rule by which the actual performance of this duty

pas competent i)our estimer exclnsivement, d^apr^s sa volont^ propreet son bon plaisir,
la nature et r<5tendue.

Cependant la supposition quMl est competent me serable servir de base k tont-e la
position anglaise dans cette contro verse.

On pent en efi'et afflrmer ([u'aucune puissance souveraine en dernier ressort n'a a
reudre compte a une autre pour les r<Ssultata de I'exercice de sou propre jugement fait
de bonne foi.

Cette proposition pent 6tre admise comnie vraio on fait, niais il est certain qu'une
conduite qui s'y conforme ne gagne aucune saction d'aucuue loi si ce n'est de celle d'une
8up<5riorit^ en force ])hysique.

Pour <^chapper ji cette alternative on a eu recours i\ une tentative pour d<^finir un
syst^me de droits et d'obligations« auqn<^l TivHseutiment des nations civilisdes donue
autorit<S dans le r^glement de leurs devoirs r^ciproques.

D'apres ce systeme, toutes les nations qui le reconnaissent sont plac^e^ sur nu
pied parfaitement <^gal, n'importe la nature de leur force relative. Pour emprunter
une purase du "counter-cjvse" anglais:

**Le gouveruenieut de sa Majeste . . . ne connait aucune distinction entre des
puissances plus on uioins^^levees en digoitc^; ilregarde tons les ^tats souverains comme
jonissant de droits <^gaux, couinie <>galement JUHsujettis li toutes les obligations ordi-
naire^ int<>rnationales; il a la ferme conviction qu'il n'est paseai Europe on en Amerique,
un seul etat, qui veuille prdtendre ni accepter a cat cgard aucune exemption motivt^e
8ur son intV^riorite relative comme territoire, comme puissance militaire ou comme
population."

En admettant cette position dans toute son dtendue, on pent affirmer en mdme temps
que, si le gouveruemeut de sa Majesty devait faire un contrat avec ces divers 6U\t»
comme puissance neutre pour exercer ''due diligence" dans certaines circonstauces, il
n'est pas un des plus petits d'entr'eux qui manquac de nier que le gouvernement de sa
Msgest^ fdt le juge exclusif de la mesure de ces obligations contract^es d'apr^ ce.s
mots.

Quelle est done la r^gle d'apres laquelle ou pent estimer raccomplisaemeDt effectif

OPINIONS OF MR. ADAMS. 145

I be estimated! It seems to me tolerably plain. Whatever may be

} relative position of nations, the obligation between them rests npon

) basis of exact and complete reciprocity. Hence the compact em-

iced in the words '^ due diligence '^ must be fulfilled accordiug to the

istriiction placed upon the terms by each separate nation, subject to

soiiable modifications by the just representations of any other nation

h which it is in amity, suffering injury from the consequences of a

take of negligence or intention. These may very naturally grow out

:lie great differences in their relative position, which should properly-

:aken into consideration. In the struggle which took place in Amer-

"due diligence " in regard to the commercial interests of one of the

igerents m^ant a very difl^erent thing from the same words applied ^/^

he other. TThe only safe standard is that which may be reached by

sidering what a nation would consider its right to demand of another,

e their relative positions precisely reversed. If the due diligence

lally exercised by one nation toward another does not prove to be

v.vt*ctly that diligence which would be satisfactory if applied to itself

under parallel circumstances, then the obligation implied by the words

has not been properly fulfilled, and reparation to the party injured is no

more than an act of common justice.j

Such seems to be the precise character of the present controversy.
Her Majesty's govern inent denies that the measure of diligence due by^
hera^a neutral to the United States as a belligerent, during the late
stragfjle, was so great under the law of nations as it has been, with
her cousent, made by the terms of the treaty. But, in either case,
she claims to be the exclusive judge of her fulfillment of it, apart from
the establishment of this tribunal, to which she has consented to appeal.
But this very act implies the consciousness of the possibility of some
debt contracted in'the process by the use of these terms that may justly
be claimed by another party. Of the nature and extent of that debt,
and how far actually paid, it is the province of this tribunal to deter-

ge ce devoir f Elle me semble assez claire. Quelle que soit la position relative ct^s

nations, Tobligatiou entre elles repose sur la base d'exacte et complete r^ciprocit6.

D^slors le contrat compris sous ces mots "due diligence" doit fitre rempli d'apr^s I'in-

terprdtatiou donn^e des termes par chaque nation prise s^pardment, sujette ii dcs

modifications raisonnables de la part des representations justes de quelque autre nation

avec laqueUe elle est en rapport d'amiti^, souifrant des domniages ensuite des con8(5-

qnence« de malentendu on de n^^.gligence, on d'intention. Celles-ci peuvent naturelle-

ujent d6couler des grandes dift^rences dans leur position relative, qui doivent ^tre

l*ri8es en consideration. Dans le conflit qui eut lieu en Au^rique " due diligence" par

rapport anx int^r^ts commerciaux de Tun des belligerants avait un tont autre sens que

les memes mots appliques d. I'autre. La seule pierre de touche est celle que Ton pent

trouver en cousiddrant ce qu'une nation croirait avoir le droit de rdclamer d'une autre,

si lenrs positions relatives etaient pr<5ei8emeut inverses. ISi la " due diligence"effective-

ment exerc^e par une nation envers une autre ne se montre pas 6tre exactement cette

** diligence" qui serait satisfaisante si elle lui etait appliqu^e dans des circonstauces

analognes, alors I'obligation impliqu^e par les mots n'a pas 6t6 bien remplie, et une

reparation envers la partie Msde n'est pins qn'nn acte de simple justice.

Tel paralt 6tre le caractiire precis de la pr^^ente coutroverse. Le gouverncment
de sa Majeste nle que la mesure de diligence due par lui comnie neutre aux
£tats-Unis comme belligdrant. pendant le dernier conflit, fdt aussi grande, d'apre^ le
droit des gens, qn'elle a 6t6 faite avec son consentement par les tt>rmes du traite.
Mais dans les deux cas il prdtend 6tre le juge exclusif de la mani(>re dout elle Ta
accompli, ^ Texceptiou de retablissement de ce tribunal, auquel elle a consenti s\ en
appeler. Mais cet acte Iui-m6me implique, par Pemploi de ces termes, la conscience de
la possibility de quelque dette coutract^e dans Taffaire, et qui pout justeuieut otre
reciam6e par une autre partie. Quant ^ la nature et ii Petendue de cette dette, et
jusqa'oii elle a 6t6 pay^e eftectivement, il appartient i\ ce tribunal d'en decider, apre^

10 b

146 ARBITRATION AT GENEVA.

iiiiue, after full cousitleration of the evidence submitted. SucU is the cou-
struction 1 have placed upon the words "due diligence."

II. — THE EFFECT OF C0:>OIISSI0NS.

This question has been discussed, more or less extensively, in the
Ftivct of commit papcFS and arguments before us.
•^'' On behalf of Great Britain it is claimed that the rule is

perfectly established that a vessel belonging to any iiower recognized
as sovereign, or as a belligerent, has, in virtue of its commission, a
right to claim a reception, and the privilege of extraterritoriality, with-
out regard to its antecedents, in the ports of every neutral power.

The authorities quoted to sustain this position sustain it as an estab-
lished general rule. I see no reason to question it.

But the question that has been raised in the present controversy is
an exceptional one, which is not touched by these decisions.

The reception of vessels having an origin exclusively or even par-
tially American, and bearing on their front no evidence of fraud or
violence, does not seem to have been brought into question in this con-
troversy. Such vessels were the Sumter, the Nashville, the Tallahassee,
the Chickamauga, &c.

The case is difl'erent in regard to that class of vessels which derive
their origin exclusively from a systematic and fraudulent abuse of the
amity of a neutral power, setting at defiance its laws within it« own
jurisdiction, and taking advantage of its forbearance in the hope of in-
volving it the more with its opponent in a responsibility for tolerating
its own misdeeds.

It admits of no question, in my mind, that the outfit and equipment
of the Florida, the Alabama, the Georgia, and tht3 Shenandoah were
each and all made in defiance of the laws of Great Britain and the in-
junction of the Queen's proclamation of neutrality. By this conduct

un examen complet des preuves qui liii ont 6t6 sonmiscs. Telle est rinterprdtation que
j'ai donn6e des mots "due diligence."

L*Ef FET DES COMMISSIONS.

Cette question a 616 discut^e d'uue niauitire i)lus ou moius ddvelopp^e dans les doca-
ineiits et plaidoyers devaut nous.

Du c6td do la Graude-Bretagne on pr6tend que la regie est parfaitement 6tablie
qu'un vaisseau, nppartenant ;\ un ponvoir quclcnuqiie recouuu conime souvei'ain ou
comnie bellig<^rant, a, en vertu de sa cominission, le droit de r<Sclamer uue reception et
le privildge d'extra-territorialit<5, sans <5gard ik ses aut<^c<5dents dans les ports de toute
puissance ueutre.

Les aut«rit<^8 cit45e8 pour appuyer cette position la soutiennent comme uue regie
g(5n<5rale <5tablie. Je ue vois i)as de raison de la uiettre en question.

Mais la question 8oulev<5e dans la presents controverse est uue question exception-
uelle, li laquelle ces decisions ne so rapportent pas.

La r<5ceptioii de vaisscaux ayant uue origiue am(5ricaine en tout ou en partie, et ne
portant sur leur front aucuno preuve do fraude ou de violence, ne semblo pas avoir 6i6
niise en question dans cette controverse. Tels ctaieut le Sumter, le NashviUe, le Tal-
labassee, le Cbickamauga, etc.

Le cas est diflVSrent en ce qui concerne cette classe de vaisseux qui tireut leur origiue
exclusivemeut d'un abus systiSmatique et frauduleux du comity d'uue puissance neutre,
met taut an d<^ii ses lois dans sa propre juridictiou, et preuaut avantage de sa bonne
disposition, dans I'espoir de rentraiuer encore avec son adversaire dans une responsa-
bilitd pour avoir to\6r6 ses propres m<^faits.

Je ii'en doute point, la pr<^paration et r<5quipenient du Florida, do PAlabama, du
Georgia et du Shenandoah furent, pour chacun d^eux, fait en d6fi des lois de la Grande-
Bietagne et des injonctions de la proclamation de neutralit<5 do la Heine. Par cette

OPINIONS OF MR. ADAMS. 147

the perpeU^ators bad not only clearly forfeited all right to consideration,
bat had subjected tbemselves to the penalties of malefactors if they
erer returned witbin tbe jurisdiction which they bad insulted. The
ri^ht to exclude vessels from British ports on these fjrounds, without
regfard to their commissions, is distinctly affirmed by Sir Roundell Pal-
mer, one of the lawyers of the Crown during the whole period in ques-
tion, and seems to be indubitable. To deny it would place every
sovereign power at the mercy of any adventurous pirate on the ocean
who might manage to cover himself with the threadbare mantle oj" the
minutest belligerent.

It is a perfectly well understood principle of law that no citizen of a
foreign nation, excepting, perhaps, in ceiUiin cases, a representative
clothed with diplomatic ])rivileges, is free from the obligation of con-
forming himself to the laws of the country in which he is residing. If
be willfully \iolates them he is subject to the same penalties which are
imposed upon native citizens. Even though not a citizen he is subject
in Great Britain to be tried for quasi treason. If instead of consjiiring
ag:ainst the Queen he enters into combinations which involv^e the king-
dom ill complications with foreign powers with which it is at peace, he
surely cannot come forward and plead the possession of a commission
from the authorities of his own country in his justification. Neither is
the coQimander of a ship of a foreign power which comes within the
harbor of another free from the same general obligation. If he violates
any of the regulations prescribed for his government he is liable to pay
the penalty by a withdrawal of his privileges or by an immediate order
of exclusion from the port.

For myself, therefore, I cannot see any reason why the existence of a
commission should have stood in the way of a clear expression by
Great Britain of its sense of the indignities heaped upon Her ^lajesty-s
government by the violation of her laws within her various dominions,
coatiuQousiy persisted in during the existence of this belligerent. In
luyopiuion it would have justified the seizure and detention of the
offending vessels wherever found within the jurisdiction.. But if that

conduite, les faatenrs avaieut non-seu lenient perdu nettement tout d^oit aa respect,
pais ilH 6taieut assujettm aux peines des nialfaiteura b'iIs revenaient jamais dans la
jnridiction qu'ils avaient insultdo. Le droit d^exclure des vaisseaux des ports aughiiK
P^nrces motifs, sans 6gard i\ leurs commissions, est nettement afflrni6 par Sir Rouudell
Palnjer, uu des conseillers de la couronne pendant tonte la pdriode en question, et seni-
le ^Ire indnhitable; le nier serait mettre toute puissance souveraitie a lamerci de tout
pinite uvontureux sur roc6an qui pourrait r<Sussir tk se couvrir du mauteau as<S du plus
petit beUig^rant.

C'est un priucipe ne loi parfaitement bien compris, qu'ancHn citoyen d*nue nation

<^fraug^re, si ce ii'est, peut-6tre, un repr<5seutaut rev6tu de privileges diploniatiques,

ii'est exempt de Tobligation de se couformer aux lois du pays dans lequef il deraeure.

S'il les violo volontairement, il est assujetti aux mfimes peines qui sont imposdes aux

citoyeus natifs. Mdmo s'il n*est pas citoyen, il.est expos<^ en Angleterre ii dtre poursuivi

poar qna^i-trahison. 8i,au lieu de conspirer contre la Reine, il entre dans des conibi-

uaison«>qni prdcipitent le royanmedjans des complications enversdes puissances souve-

nines avec lesquelles celui-ci est en paix, il ne pent certainement pas se presenter et

s'appuyer pour sa justification sur la possession d'uue commission des autoritds de son

propre* pays. Le commandant d'iin vaisseau d'tine puissance ^trangbre qiii vient dans

le port d*nue autre n'est pas exempt non plus de la m6me obligation g6n<^rnle. S^il

\iole (|uelqu'an des r^lements presents pour sa conduite, il est expos<5 ^ subir la

peine d^in d^pouillement de ses privil<5ges on d'un ordre imm^diat d^exelusion du port.

Quant }\ nioi, par conseq^ent, je ne puis voir ancnn motif pour lequel I'existenee

d'une commission anrait emp^^cbiS une manifestation nette de la part de la Grande-

Bretagne de son sentiment des indignities amassc^es sur le gouvernement de sa Majeste

par la violation de ses lois, dans ses diffdrents 6tats, con tin nee avec persistance pendant

Texistence de ce belligdrant. Dans mon opinion, elle aurait justifid In saisie et TarrAt

des vaisseaux co«ipablesy.partout oil ou les> aurait trouv<5s dans la j/uridktion. Mais si

148 ARBITRATION AT GENEVA.

were ' considered inconsistent with a clear impartiality, it certainly
demanded an entire exclusion from Her Majesty's ports. The right to
decide such a i>oint rests exclusively with every sov^ereign power. But
an opportunity was lost for establishing a sound principle of inter-
national maritime intercourse which may not soon occur again.

ni. — ON THE SUPPLY OF PROVISIONS, AND ESPECIALLY OF COALS.

This question of coals was little considered by writers on the law of

nations, and by sovereign powers, until the present century.

supphe.o coal. j^ ^^ becomc one of the first importance, now that the

motive-power of all vessels is so greatly enhanced by it.

The effect of this apj)lication of steam-power has changed the char-
acter of war on the ocean, and invested with a greatly preponderant
force those nations which possess most largely the best material for it
within their own territories and the greatest number of maritime places
over the globe where deposits may be conveniently provided for their
use.

It is needless to point out the superiority in this respect of the posi-
tion of Great Britain. There seems no way of discussing the question
other than through this example.

Just in proportion to these advantages is the responsibility of that
country when holding the situation of a neutral in time of war.

The safest course in any critical emergency would be to deny altogether
to supply the vessels of any of the belligerents, except perhaps when in
positive distress.

But such a policy would not fnil to be regarded as selfish, illiberal, and
unkind by all belligerents. It would inevitably lead to the acquisition
and establishment of similar positions for themselves by other maritime
powers, to be guarded with equal exclusi veness, and entailing upon them
enormous and continual expenses to provide against rare emergencies.

ces mesures 6taient envisag^es comme ue s'accordaiit pas avec iiue stricte impartiality,
elle exigeait certainement une exclusion absolue des ports de sa Majesld. Le droit de
decider i)ur im tel point appartient exclusivement h toute pnissance souveraiue. Mais
Tocca^ion fut alors perdue d'dtablir un principe juste des relations inaritiuies interna-
tionales, laquelle pent ue pas se representor de longtemps.

LE8 SUBSIDES DE PROVISIONS, ET SP^CIALEMENT DE CHARBOX.

Cette question du charbon a pen 6t6 examinee par ceux qui out 6crit sur le droit des-
gens. et par les puissances souveraines, jusqu^au si^cle actuel. Elle est devenue de la
premiere importance, maintenant que la puissance motrice de tons les vaisseaux en est
si fort augnient^e.

L'eflfet de cette application de la v^peur a chanpjd le caract^re de la guerre sur roc^an,
et donne une force tr^-pr6pond6rante aux puissances qui poss^dent en plus grande
abondauce les meilleurs mat^riaux pour cela dans leurs propres territoiros, et le plus
grand uombre de places maritimes sur le globe oti ded d6p6t8 peuvent 6tre dtablis ^
propos pour leur usage.

II est inutile de faire remarquer la grande superiority sous ce rapport de la position
de la Grande-Bretagne. II n^ a P^s moyen de considdrer la question autrenient qoe
par son exemple.

La responsabilite de ce pays, qnand il garde la position d'nn neutre en temps de
guerre, est exactement proportionn^e h ses avantages.

La conduite la plus sAre, dans une circonstance critique, ^erait de refuser absolument
d'approvisionner les vaisseaux d'aucun des bellig6rants, si ce n'est peut-dtre en cas de
detresse.

Mais une telle conduite ne manqnerait pas d'etre regardde comme ^goiste, illib^rale,
m6cliante, par tout belligdrant. Elle conduirait indvitablement ii I'acqnisition et h
l'6tablissement de positions semblables pour elles-mSmes, par toutes les puissances
maritimes, pour se garder avec un ^gal exclusi visme; et elle les entralnerait dans des
depenses 6oormes«t.eontinnelleB pour subvenir ii des circonstances rares.

OPINIONS OF MR. ADAMS. 149

It is not therefore either just or in the interest of other powers, by
exacting severe responsibilities of Great Britain in time of war, to force
her either to deny all supplies, or, as a lighter risk, to engage herself in
war.

It is in this sense that I approach the arguments that have been pre-
sented in regard to the supply of coals given by Great Britain to the
insurgent American steamers as forming a base of operations.

It must be noted that, throughout the war of four years, supplies of
coal were furnished liberally at first, and more scantily afterward, but
still indiscriminately, to both belligerents.

The difficulty is obvious how to distinguish those cases of coals given
to either of the parties as helping them impartially to other ports, from
tbose furnished as a base of hostile operations.

Unquestionably, Commodore Wilkes, in the Vanderbilt, was very much
aided in continuing hiscruise at sea by the suppliesobtained from British
sources. Is this to be construed as getting a base of operations!

It is plain that a line must be drawn somewhere, or else no neutral
l)ower will consent to furnish supplies to any belligerent whatev^er in
time of war.

So far as I am able to find my way out of this dilemma, it is in this
wise:

The supply of coals to a belligerent involves no responsibility to the
neutral, when it is made in response to a demand presented in good faith,
with a single object of satisfying a legitimate purpose openly assigned.

On the other hand, the same supply does involve a responsibility if it
shall in any way be made to appear that the concession was made, either
tacitly or by agreement, with a view to promote or complete the execu-
tion of a hostile act.

Hence I perceive no other way to determine the degree of the respon-
sibility of a neutral in these cases, than by an examination of the evi-
dence to show the intent of the grant in any specific case. Fraud or
falsehood in such a case poisons everything it touches. Even inditter-

II D*est, par consequent, ni jaste, ni dans rint<^r^t des autrcs pnissances, en iinposant
des responsabilit^s 8<^ v^^e8 in ]a Graude-Bretagne en temps de guerre, de Ja fi)rcer a refuser
tout subside; ou, comme uu moindre danger, h s^engagereHe-meme dans la gnerre.

CV.st dans cet esprit que j'aborde les exposes qui out dtd prdsentc^s quant aux subsides
de charboD donnds par la Graude-Bretagne aux steaniers aui<5ricains iusurg(^s com me
formant une base d'opdrations.

II faut remarquer que peudaut la guerre deqnatre ans des subsides de cliarbon fnrent
fouFDis hberalement d'al3ord, moius abondamment eusuite, uiais toujours indistincte-
nient, anx deux bellig<5rants.

La difficult^ est dvidente de savoir comment distiugner les cas de cbarbon doun<5 :\
chacun des deux partis pour leur aider impartialement i\ se rendre h d'autres ports, de
ceux oil il fut fourni pour servir comme base d'op<?rations hostiles.

II n'est pas douteux que le commodore Wilkes, du Vanderbilt, n'ait 6t6 beauconp aid<^,
pour continuer sa croisitire en mer, par les subsides obtenus de sources anglaises. Faut-il
ioterprc^t^r ceci comme formant une base d'operations f

II est clair qu'une ligne doit (;tre tirde quelque part, ou autrement aucuno puissance
Deutre ne conseutira a fournir des subsides ii aucun belligdraut quelcouque eu temps de
gnerre sur l'oc<?an.

Si je puis sortir de ce dilemnie, ce n'est que de cette manicure.

Le subside de charbon i\ un bellig<^rant n'implique aucuiie responsabilitd du ueutre,
quand il est fait en rdponse {\ uue demands presentee de bonne foi dans le sim^ile but
de satisfaire un dessein legitime ouvertement indiqud.

D'autre part, le uiAme subside implique une responsabilitd, si on pent di^montrer
que la concession a 6t<5 faite, tacitement ou par entente, eu vue d^aider ou d'achever
Text^cution d'uu acte hostile.

Di'S lorsje ue vols pas d'autre mani^re de d<5termiuer le degrade la responsabilitd d*nn
nentre dans ces cas, que d'examiner la preuve i)our faire voir Pintention du subside,
dans chaqne cas particulier. La fraude ou le mensonge dans uu tel cas souille tout ce

150 ARBITRATION AT GENEVA.

ence may deofenerate into willful neglififenee, aud that will impose a bur-
den of proof to excuse it before responsibility can be relieved.

This is the rule I have endeavored to apply in judging the nature of
the cases complained of in the course of this arbitration.

IV. — THE FLORIDA.

On the 18th February, 1862, Mr. Adams addressed a note to Lord Rns-
sell, calling his attention to a letter he had received from
Mr. Dudley, the consul of the United States at Liver-
pool, touching a certain gun-boat fitting out at that port, which he hail
reason to believe was intended for the use of the American insurgents in
their war against their Government.

On the 19th Mr. Hammond, on behalf of Lord Kussell, replied to this
note, apprising Mr. Adams tlijvt he " would move the lords commission-
ers to cause immediate inquiries to be made respecting the vessel, and
to take such steps in the matter as might be right and proper."

On the 22d the commissioners of the customs made a report to the effect
that there was a vessel of the sort described called the Oreto; that it
had been built by Messrs. Miller & Sons for Messrs. Fawcett, Preston &
Co., engineers, and intended for the use of Messrs Thomas Brothers, of
Palermo. Messrs". Miller & Sons expressed their belief that her destina-
tion was Palermo.

The fact is now clear that in this statement there was either equivoca-
tion or positive falsehood somewhere between the parties named. The
testimony of Mr. Prioleau, of the firm of Fraser, Trenholm & Co., of Liv-
erpool, agents of the insurgent organization in America, (than whom no
man on earth was more sure to know,) testimony, too, extorted from him
with great reluctance on his oath in a British court, establishes beyond
dispute the fact that she was built for the order of J. I). Bullock, agent
of the insurgents.

So with regard to the statement made by Mr. S. Price Edwards, col-

quMl tpnche. M6me rindiff6rence pent d^gdn^rer en n(?gligence volontAire, et cela
imposera le devoir de se jnstitier, avaiit d'etre d<^harg^ de la responsabilit^?.

Telle est la ^^gle que je me suis eftbrce d^appliquer en jugeant la nature des cas sur
lesquels on a fait de^ reclamations dans le cours de cet arliitrage.

LE FLORIDA.

Le 18 f(5vTier 1862, M. Adams adressa i\ Lord Rnssell une note ponr appeler son at"
tent ion Hnr nne lettre qn'il avait re^ue de M. Dudley, le consul des fitats-Unis h Liver-
pool, an snjet d'une certaiue canonniere, que Ton appareillait dans ce port, et que Pou
avait des raisons de croire de.stinede ^ servir aux insnrgds amdricains dans la guerre
qu'ils sontenaient coutre leur Gouvernement.

Le 19 du niAine mois, M. Hammond r<^pondit, an nom de Lord Russell, en informant
M. Adams quMl engagerait les lords commissaires b, faire une enqn^to imm<5diat« i\
l'<5ganl de ce vaisseau et j\ prendre les mesures cortvenables.

Le 2*2, les commissaires des douanes rapportt^rent quMl y avait nn vaisseau, semblable
j\ celni d6crit, appel<5 TOreto; qu'il avait 6t6 construit par MM. Miller et fils ponr MM.
Fawcett, Preston et C*"^, ini^c^nienrs, et qu'il 6tii\t destind b. I'usage de MM. Thomas
frcTes, de Palerme. MM. Miller et fils exprimaient leur croyance h, cette destination de
Palerme.

II est main tenant av<5rd qu'il y avait dans ces declarations on nne Equivoque on nne
faussete positive imputable j\ quelqu'une des dites parties. Le tdmoignage de M. Prio-
leau, de la maison Fraser, Trenbolm et C'*', de Liverpool, agents de I'organisation des
insurgds amdricains, personnage qui devait savoir mieux que personne ce qu'il en <^tait,
et dont le t<5moigiiage fut arrache avec quelqne peine, sous serment dans une cour de
justice auglaise, dtablit irr<5fragablen)ent le fait que ce vaisseau fut construit d'apri'S
les ordres de J. D. Bullock, agent des insurgds.

Ainsi, quant aux allegations de M. S. Price Edwards, receveur h Liverpool, dans sa

OPINIONS OF MR ADAMS. 151

lector of Liverpool, in bis letter of the 21st, transmitted by the commis-
sioners to Lord Eussell, that he hud every reason to believe that she was
for the Italian government, it is now made clear that he either told a
falsehood or had been willfully deceived by Mr. Thomas, or others con-
nected with the transaction.

Earl Eussell directed Her Majesty's minister at Turin to inquire as to
the fact of this proceeding on the part of the Italian government, and on
the Ist of March he received an answer that Baron Kicasoli had no
knowledge whatever of any such ship.

It is admitted that at the time now in question Her Majesty's govern-
ment had no reason to suspect any of these statements to be false, ex-
cepting the last. Subsequently, on the 25th of March, the final inform-
ation came, completely establishing the fact in that case. But even the
earlier information would have been likely, as it would seem, at least to
shake confidence in the veraeity of the'party making the statement.
And here I trust I may be permitted a general remark, possibly rather
trite, as to the moral effect of falsehood upon the general credit of men.
luthe private relations established between persons if any individual
in a matter of importance be one detected in a deliberate falsehood the
consequence is a habitual distrust of him by his associates for the future
in any transaction whatever. So I doubt not if my respected colleague,
who has done so much honor to the bench over which he has long pre-
sided, should discover, in the examination of any important witness in
a case, the fact that he had deliberately perjured himself, he would at
once feel it his duty in charging the jury to. set his evidence aside as
generally undeserving of confidence.

Now, upon a calm review of the voluminous transactions recorded in
the namerous volumes which have been submitted to the judgment of
this tribunal, I do not hesitate to say that it contains a record of the
most continuous, persistent, willful, and flagrant falsehood and perjury
carried on in the British possessions by individuals associated in the Amer-
ican insurgent cause and their British affiliations, from the date of the
building of the Oreto, at the beginning, to that of the return of the Shen-

lettre do 21, transmise par les coiiimissaires, oil il d«5clarait qu'il avait tont lieu tlo
croire que le vaisseau dtait construit pour le gouvernement italien, il e«t maiutenant
mdent, ou qu'il a dit uue faus8ct<$, ou qu^il a €i6 trompd par M. Thomas ou autres
personnes engag<^e8 dans Paffaire.

Le Comte Russell fit faire au ministre de sa Majesty britannique ji Turin des ddmarclies
pour savoir du gouvernement italien co qu'il en <5tait, et le I®*" mars re^ut rdpouso
qae le baron Ricasoli n'avait aucune connaissance d'un vaisseau semblable.

n est admis qu'fi I'iSpoque dont il est question, le gouvernement de sa Majestd
britannique n'avait aucune raison de considdrer ces d«5claratious commo fausses, ex-
cepts la demi^re. Plus tard, le 2r> mars, les deruiera renseigiiements 6tablirent coni-
pl^t^ment le fait dans ce cas. Mais ni(^.me los premiers renseiguements auraieut dft, A. ce
qn'il semble, dbranlerla foi dans la v<?racit<5 des parties dont venaient les d(^clarations.
Et ici Ton mc pcrmettra une remarque g(^n<^rale un pen U8<^e quant aux eftets nioraux
de ral>scnce de vdracit<5 sur lo credit accordd aux gens. Dans les rapports de la vie
priv<5c, si Ton a une fois d^couvert dans une question de quelque importance que
quelqu'nn, de propos ddlib6r<5, a viol^ la v6rit<?, la cons(5(iuence en est que Ton ne
d^fie de lui pour toujours. C'est ainsi que je suis convaincu que si mon lionor<5
coll^gue, qui a taut illu8tr<5 le tribunal dont il a 6t6 longtemps le president, d<?couvrait
dans Texaraen de quelque important tdmoin, dans un proces, qu'il s'est, le sachant et
le voulant, parjurd, il n'h<?8iterait pas i\ considdrer coinnie de son devoir en demandant
au jury de mettre son t<Smoignage de c6t6 comme indigne de cr<^ance.

Et maintenant, apr^s iiu examen calme et rdlldchi des volumineuses procedures rap-
port^es dans les nombreux volumes qui ont 6t6 soumis au jugemont de ce tribunal, je
n'h^site pas de dire qu'il contient une relation des tausset<^s et des parjures de personnes
assocides h la cause des insurgt5s ami^ricains et de leurs aftiliations sur territoire britan-
nique, depuis la construction de I'Orcto, au commencement, jusqu'au retour du Sbenaii-

152 ARBITRATION AT GENEVA.

andoali to Liverpool, at tbe close, that lias yet been brought to light in

history.

The earliest evideuces of the truth of this affirmatiou are fouml
thickly strewn among the transactious relating to this vessel. Tbey
ai)i)ear most strikingly in the reports made by Mr. Dudley, the consul
of the United States at Liverpool, both to his own Government and to
Mr. Adams. His duty was, with such imperfect means as he had in his
possession, to exercise due diligence in exposing ever3' trace of an at-
tempt to carry on from that place hostile operations against his owu
country; and, I must add, most faithfully and energetically does he
seem to me to have performed it. But just in the proportion to the
efficacy of his exertions was the attention of those engaged in such en-
terprises directed to the means of baffling his aim. To this end it ap-
pears clear that among the parties to which he was driven to resort for
the purpose of gathering information were not a few of inditierent
character, and probably some employed by his opponents expressly to
put him on a false scent. Ilaving no power in his hands to extort un-
willing testimony, he was compelled to rely entirely on his own judg-
ment to pick out of the mixed mass before him that which might seem
to him most in harmony with the probabilities of the case. That he
should have been occasionally misled, and thus have made representa-
tions through Mr. Adams to Uer Majesty's government which were
])roved on investigation not to be jiccurate, ought to be neither surpris-
ing nor matter of blame to him. In point of fact, he seems in the present
case to have supplied pretty much all the correct information which
Her Majesty's government actually received, and which, if they had fol-
lowed it up with corresponding diligence, would certainly have ended
in the detention of the vessel. And her detention at that critical mo-
ment in these enterprises would probably have had the effect of putting
a stop to them all, as well as to the necessity of an3^ such tribunal as
the one now constituted here.

But this was not to be. The government, which had in its hands al

doali ii Liverpool, h la fiu, lea plus continus, in<5uu5ilitcs et flagrante que Thistoire ait
jnumis coiiniiH.

Les premieres ddmoiiBtrations <le cette affirmation se tronveut iiombreiises pamii les
j)roc^diuos relatives a ce vaisseaii. Elles apparaissent le plus clairemeni dans les rap-
ports de M. Dudley, cousul des l^tats-Unis a Liverpool; rapports transmis j\ 8on
^onveriiement aussi Ijieu qu'a M.Adams. Son devoir <^tait, avec les moyens imparfaits
qu'il avait en son pouvoir, defjiire conualtro avec la diligence mScessairo tout iudice de
tentatives faites pour diri^er de8 operations hostiles contre sa patrie; et je dois ajouter
qu'il me semble I'avoir accompli avec beaucoup de conscience et d'euergie. Mai$
jiistement en proportion <le IVtiicacitd de ses efforts, I'attention de ceux qui avaient
eiitrepris ces operations fut dirig«5e sur les moyens de les contrecarrer.

11 apparalt clairement que, dans co but, parmi les personnes aupr^s desquellcs 11 ^tait
oblige de cbercber des reseiguements, il s'eu trouvait de pen estimables, et qui etaicnt
)>robablement enq^loyoes par ses adversaires pour le ddrouter. N'ayant ancuu pouvoir
l>our arraclier des reiiseignements qu^on ue voulait pas lui donner, il fut oblige do sVu
remettre a son propre jugement pour clioisir dans ce qui lui <5tait rapporte ce qu'il y
avait de plus vraisemblable. Qu'il ait 6x6 quelquefois trompe, et qu'il ait, :\ cause de
cela, fait an gouvernement de sa Ma^jest/e britannique, par I'entremise de M. Adams, des
representations qui, sur enquete, out etc trouvdes uon-fondees, ne pent (;tre etonnant et
ue pcut devenir un sujet de bldma {H son egard. En fait il paralt bien, dans le cas
actiiel, avoir fourni presque tous les rensoignements exacts que le gouvernement de
sa Majesto britaunique a vraiment reyus; et qui, si on en avait tenu compte avec nn
soin cgal, auraient certainement amend la saisie du viiisseau. Cette saisie ]\ ce moment
aurait probablement eu pour rdsultat de mettre uu terme, uon-seuloment :\ cette entre-
prise, mais h toutes les autres, et nous aurait, par consequent, evite la constitution de
ce tribunal.

Mais il ne devait pas en 6tre ainsi. Le gouvernement, qui avait tous les moyens

OPINIONS OF MR. ADAMS. 153

the means of extorting unwilling testimonj^, through efficient and trust-
worthy agents, does not seem to have been, at this moment at least,
conscious of the existence of any obligation to originate investigations
at all. It may reasonably be doubted, from the evidence before us,
whether it believed in it if it was. On the 1st of March — that is, twenty
(lays before the escape of the Oreto — an inquiry made of the government
of Italy respecting one of tlie official statements received from Liver-
pool had been replied to in terms which, if not absolutely decisive as to
it8 falsehood, certainly tended to throw the greatest possible doubt upon
itstrnth. In such an important transaction as the building of a gun-
boat, it would seem to be clear that a grave misstatement of its desti-
nation by responsible parties was not likely to be made carelessly, or
without giving rise to some possible suspicion of an adequate motive to
account Ibr it. It does not appear from anything contained in the
papers before us that the attention of the parties concerned was called
to this circumstance at all. But it does appear very clear that, both in
the letters of Mr. Adams and Mr. Dudley, under the eyes of Her Majes-
ty's government, there was presented an adequate motive to explain it,
to wit, the wish to elude the vigilance of Her Majesty's government and
her officers in preventing the outfit from one of her ports of a vessel
sadly wanted by the insurgent Americans to carry on war on the ocean
against their Government. All the external circumstances indicating
a state of peace everywhere else in the civilized world pointed to that
quarter alone as the probable one, not simply to explain the destination
of the vessel itself, but likewise the false representation w hich had been
made for the purpose of concealing it. Her Mfijesty's government does
not seem to have entered into anj^'such process of reasoning.

On the 23d of February it has already been observed that Her Majes-
ty's commissioners of customs had addressed a letter to the treasury
board, making a report in regard to the condition and destination of
the vessel called the Oreto. At the close of that letter are the foUow.-
ing words:

We beg farther to add that special directions have been given to the officers at Liv-

d'obtenir tons les reuseigueinents d'employds honn^tes et dignes de foi, ue semble pas
avoir en conscience, j\ cette <5po(iue, de I'existence d'une obligation de sa part de faire
des enqnet«8 volontaires de son c6t6. On pent raisonnablemeut donter, en voyant les
docnments, qu'il crftt meme ii ce devoir. Le l*^*" mars — c'est-jVdire, vingt-deux jours-
avaut le depart de TOreto — nue enquete, faite aupresdu gouveruement italieu an snjet
de Tune dtw* d(5clarations officielles re^Mies de Liverpool, avait eu pour rcsultat une
r^ponne faite dans des ternics qui, s'ils n'^taient pas absolument ddcisifs quant li Inexacti-
tude de ces declarations, teudaient du moins h jeter sur elles le plus grand doute. Dans
une affaire aussi iuii)ortante que la construction d'une cauonnil're, on pourrait croire
qii'une fausse d<5claration faite quant ii sa destination par des personnes responsables
lie devait pas Hre faite par n<^.^Iigeuce et devait faire naitre un soup^on qu'il y avait
des raisons snffisantes de la faire. II ne paralt pas, d'apr^s les documents que nous
avons sous les yeux, que I'atteution de cea personnes ait et6 appeI<Se du tout sur ce fait,
lunis ce qui est clair alors, c'est que dans les lettres de M. Adams, aussi bieu que dans
celles de M. Dudley, lettres placdes sous les yeux des membres du gouveruement de sa
Majest<S britaunique, des raisons bien sufiisantes de ce fait furent donndes — c'est-a-dire,
le desir d'echapper ^ la vigilance du gouveruement de sa Majesty britaunique et de
8es employes iK>ur empecher rarmement dans un port anglais d'un vaisseau dont les
iosurges americains avaient le plus grand besoin, peur faire sur mer la guerre k lenr
Gouverneuient. La paix qui r^gnait partout, ailleurs, devait diriger I'atteution sur co
point seul et devait non-seulemeut ouvrir les yeux, quant a la destination du vaisseau,
raais aussi expliquer la fansse declaration faite dans Tintention de cacher cette desti-
nation.

II a deja 6t6 remarqu^ que, le 22 f^vrier, les commissaires des donancs de sa Majesty
britannique avaient adress^ ^ la tresorerie un rappoit sur I'tStat et la destination du
vaisseau appeie TOreto. A 1a fin de ce rapport se trouve la phrase suivante :

**Noas ajoutons que des instructions spdciales out 6t6 doun<Ses ^ Liverpool x^our

154 ARBITRATION AT GENEVA.

erpool to watch (he movements of the vesaelj and that we will not fail to report forthwith
any circumstances which may occnr worthy of your lordship^s cognizance.

THO. F. FREMANTLE.

GRENVILLE C. L. BERKELEY.

After a diligent search, I do not succeed in finding a trace of any
report of these gentlemen earlier than the 4th April. Probably they
did not regard the circumstances of her outfit and departure from the
l)ort as worthy of their lordships' cognizance, unless the news were
absolutely demanded.

Yet, when Mr. Adams, on the 25th of March, addressed another re-
monstrance to Earl Russell, it seems to have had the effect of prompt-
ing his lordship, on the 2Gth of March, to direct a note to be sent to the
secretary of the treasury requesting the commissioners of customs ** to
give directions that the Oreto may be diligently watched."

This seems to have brought forth a letter from Mr. S. Price Edwards
to the following effect. It is dated the 28th of March :

To the Commissioners of Customs :

The screw-vessel Oreto was registered at this port on the 3d instant, as per copy of
registry annexed. She cleare<l on the following day, the 4th) for Palermo and Jamaica
in hallast, as per inclosed victnaling-bill. She sailed on theiJ2d instant, the day upon
which the American consnVs letter is dated, having a crew of fifty-two men, ail Brit-
ish, save some three or fonr, one of whom only was an American. She had nothing
whatever on board save the stores enumerated. She had neither gunpowder uor even
a signal-gun, and no colors save Maryatt's Code of Signals and a British ensign. With
reference to the passengers brought by the Annie Child, it is clear that they were not
intended to form any portion of the crew of the Oreto, for they are still in Liverpool ;
and as respects the dipping of the ensign, this, as far as I can ascertain, was a compli-
ment paid to one of the Cunard steamers and some other vessel, which saluted the
Annie Child on her arrival, the masters being jsarties known to one another.

What became of this letter it is difficult to explain. It seems clear
that Lord Kussell could have known nothing of it on the 7th of April,

snrveiller les monvements de co vaissean ot que nons ne manquerons pas de vous rap-
porter imni<5diatement toute circonstauce digne d'etre port^e 2\ la oonnaissance de votre
seigneurie.

(Sign6) "THO. F. FREEMANTLE.

" GRENVILLE C. L. BERKELEY."

Malgr6 une recherche tr^s-active, je ne r^ussis pas h trouver nne seule trace de rap-
port fait par ces messieurs ant<Srieurement au 4 avril. Probablement ils n'out pas
consider^ I'armement et le dispart de ce vaisseau comrae des circonstances digues dY»tre
port<^es i\ la counaissance de leurs seigneuries, h, moins que les nouvelles ne leur fussent
demanddes exprijs.

Et cependant, lorsquo M. Adams, le 25 mars, adressa une seconde repr6sentation an
Comte Russell, le rdsultat en fut, h ce quMl semble, que sa seigneurie envoya an
secretaire de la tr<58orerie une note, ordonnant aux commissaires des douanes "de
douner des instructions pour que I'Oreto filt snrveill6 avcc soin."

Ceci semble avoir provoqu6 nne lettre de M. S. Price Edwards, dans les tcrmes
suivants. Elle est dative du 28 mars.

**Anx commissaires des douanes :

" Le vaissean h hc^lico VOreto a 6t6 enregistr^ dans ce port le 3 conrant, d'apr^s copie
dp registre ci-joint. 11 s'acquitta le lendemain, 4, pour Palerme et la Jamaiqne en
le«t, d'apr^s le mdmoire des vi vres, ci-inclus. II mit j\ la voile le 22 courant, le jour dont
la lettre du consul am<5ricain est datde, ayant nn dqnipage de trente-deux hommes, tons
anglais, h I'exccption de trois on quatre, dont un seul ?tait am6ricain. II n'avait rien
h bord, si ce n'est les provisions 6num^r6es. II u'avait ni pondre ni mfime un canon
de signanx, et point de couleurs, si ce n'est le syst^me de signanx de Marryatt et nn
pavilion anglais. Quant aux passagers amen(5s par TAnnie Childs, il est cUiir qu'ils
n'<?taient pas destines h former une portion quelcouqne de I'dqnipage de TOreto, car ils
sont encore i\ Liverpool; et quant au saint du pavilion, cY^tait, autant que je puis le
constater, un compliment fait i\ I'un des * steamers Cunard' et h quelque autre
vaissean qui salua *l'Annie Childs' k son arriv^e, les capitainea se connaissant
mntuellement."

II est difficile d'expliqner ce qu'il advint de cette lettre. II semble clair qne Lord
Russell ne pouvait rien en savoir le 7 avril, car il parait alors avoir donn6 I'ordre h

opnaoNS OF mr adams. 155

for he appears then to bave directed Mr. Hammond to write to the Sec-
retary of the Treasury " to cause his lordship to be informed whether
any report has been received from the commissioners of customs respect-
ing tlie vessel the Oreto.^ This was the sixteenth day after that vessel
had sailed, a fact which he appears at that time not to have officially
known, though doubtless he had gathered it from the newspapers.

The report before alluded to was then produced, dated the 4:th, but not
received until the 8th. It then first gave the information that the vessel
had sailed on the 22d, having been registered in the name of John
Henry Thomas, of Liverpool, as sole owner, and cleared for Palermo and
Jamaica in ballast.

The reports indicative of any observation whatever made in watching
the movements of the Oreto appear not to have been collected until the
latter part of August, and then only at the instance of Lord Russell, for
another purpose.

One more report was made by the commissioners of customs on the
1st of May. The official declaration of the minister of state of the Italian
governraenttoEarl Russelljdenyingall knowledge whatever of theOreto,
had been put into their hands. This declaration had been sent to Mr.
£d wards, the collector of the port, who had been the first person to de-
clare his faith in the falsehood, and was now called to make further ob-
servations. He did not think fit to make any explanation of the reiisons
of his belief nor of its source, but contented himself with a reference to
the registrj^ of the vessel in the name of a native of Palermo, which he
probably knew to have been a fraud, because he went on to admit the
fact of its real destination, and to place his absence from action on the
ground that ^^even in that case no at5t had been committed to justify his in-
terference.'' It does not seem to have occurred to him to ask himself, if
the dispatch of the steamer was a legitimate act, where was the need
of the falsehood about the Italian government, or the further falsehood
of the ownership of Mr. Thomas. Neither does it seem to have occurred
to Her Majesty's government to consider whether they had been cheated
by their own officers.

M. Hammond d*<5crire au 8ecr<5taire de la tr^sorerie, " qne sa seignenrie soit inform^e
81 Ton a re^n qnelque rapport des commissaires des douanes tonchant ]e vaisseaa
rOreto." C'^tait le seizeine jour apr^s que le vaisseau avait mis h, la voile, fait quHl
lue semble ti cett<e ^qoque n'avoir pas connn offlciellemeut, qnoiqne sans doute 11 1'eilt
appris par les jonrnaux. Le rapport auquel il est fait allusion ci-dessns fut alors
prodnit, dat<S dn 4, raais non re^u avant to 8. II donna alors, ponr la premiere fois,
rinformation que le vaissean avait mis s\ la voile le 22, quMl avait 6 1^ enregistrd an
nom de John Henry Thomas, de Liverpool, comme seul propridtaire, et qu'il s^dfcait
acqnittd en lest pour Palermo et la Jamaique.

Les rapports indiquant les observations faites en surveillant les mouvements de
]*Oreto ne paraissent avoir 6t6 rassembl<^s que vers la fin dn mois d'aodt, et alors
seulement ii la demande du Comte Russell, dans nn autre but.

Un rapport fut en outre derit par les commissaires" des douanes le 1^ mai. On avait
mis entre lenrs mains la note ofiiciell^^ du ministre d'dtat du gouvernement italien an
Comte Rusuell, par laquelle il d<$clarait n'avoir aucune connaissance de POreto. Cetto
declaration avait 6t6 envoyde h M. Edwards, le receveur du jwrt, qui avait 6t6 le
premier k se d<^clarer convaincu de la YMt6 des fausses indications donndes, et qui fut
alors appe]6 ^ faire de plus amples observations. II ne crut pas devoir doonor des
explications sur les raisons de sa foi en ces indications, ni snr I'origine de cette foi,
mais se contenta de s'en r<?f(6rer aux registres qui portaient ce vaissean au nom dMm
habitant de Palermo, ce que probablement il savait ^tre nne fraude, parce qu'il alia
jnsqu'^ admettre le fait de sa vraie destination et & excuser son abstention en disant
que, ^'mdme dans ce cas, on u'avait commis aucun acte pour justifier une intervention
de sa part." II ne paralt pas qu'il lui soit venu i\ I'esprit de se demander pourquoi,
si le depart de la canonni^re dtait Idgal, il dtait besoin d'nne fausse declaration an
snjet dn gouvernement italien, on du second mensonge an sujet de la proiiridtd da
vaissean par M. Thomas.

156 ARBITRATION AT GENEVA.

A 8te«amer, completely fitted in all respects as a man-of-war, Lad suc-
ceeded in escaping from Liv^erpool, and nothing was left to make her a
l>ower on the ocean but the receipt of arms and amuiunition. How that
proceeding was accomplished we shall see in the sequel. At present, I
desire to point out the extent to which the falsehood and fraud that had
been resorted to in the course of the transaction, to cover it from obser-
vation, betray the consciousness of the parties concerned in it of the
danger they were incurring, of the indignation of Her Majesty's govern-
meut in case they were detected in preparing such a hostile enter-
prise in a British port. At least they appear to have had no idea that
such an attempt, if really understood, was not an act which would jus-
tify the interference of the government. Hence the studied efforts to
misrepresent the transaction from the beginning to the end. Hence
the labor to substitute a false British owner, and a false destiny for the
real one. Hence the studied representation of Palermo, in Sicily, as the
term of the voyage, even to the simple seamen decoyed by this means
into an unwilling service. In a word, the affair reeks with malignant
fraud from its inception to its close. The parties concerned appear to
have had no conception how easy it was to paralyze the action of Her
jVIfijesty's government, or they would at once have relieved themselves
of all the opprobrium that attended their proceedings. Doubtless they
would not have indulged in mendacity for the mere love of it. They
did not then conceive that the principle of action was not to initiate any
active measures of thorough inv^estigation into the truth of their words
and the good faith of their acts, but to wait for the disclosure of the
necessary evidence by the agents of the United States, who could not
in the nature of things possess anything like their power of extortifag
the truth from unwilling lips.

I have now reached the moment when it seems necessary to apply
myself to the question so much discussed in the arguments laid before
us by the respective parties to the litigation. What is the diligence
due from one nation to another in preventing the fitting-out of any ves-
sel which it has reasonable ground to believe intended to cruise against

Un vaisseaii armd sous tons les rapports coinine vaissean do guerre avait rdnssi h sortir
dn port de Liverpool, ct il ue lui uianquait plus, pour ctre uoe puissauce sar Foc^an,
que des armes et des nuinitious. Nous verrous daus la suite commeut on arriya ^ lui
eu fouruir. Pour le inomeut je d(5siro faire remarquer combieu la fraude einpl^v^e
pour caclier Fairmeiuent de ce vaisseau ddnote, cliez ceux qui trempaient dans raffaire,
la conscience des dangers qu'ils couraient, si le gouveruement de sa Majesty
britannique avait d«^couvert les pr<^paratifs rfe cette enterprise hostile dans un jwrt
anglais. lis paraissent au moius n'avoir eu aucuno id(^e qu^nie telle enterprise ir^tjiit
pas uu acte justitiant I'iuterventiou du gouverneraeut. De la ces efforts r^it<5r<5s pour
presenter la question sous un autre jour quo le vrai. De lii ce travail de substituer uu
faux propri<?taire anglais et une fausse destination, au propri^taire ix5el et a\ la vraie
destination. De li\ cette declaration de Paleruie comme le but du voyage, diSclaration
faite m^nie aux simples roatelots entratn^s de cette maniere dans uu service qu'ils ne
voulaient point. En un mot, cette affaire est un ^issu de fraudes du couimencement j\
la tin. Les personnes int^Sress^es ne semblent avoir eu aucuue idde de la facility avec
laqaelle on pouvait paralyser Taction du gouveruement de sa Mi\jest6 britannique, on
elles auraient assit6t d<5sir«5 de se d^livrer de Topprobre de toutes leurs machinations,
lis ne comprenaient pas alors quo les principes d'action etaieut do ue point prendre
rinitiative de mesures actives et completes pour recounaltre la vdrit^ de leurs
allegations et la bonne foi de lours actes, maisd'atteudre les revelations des agents des
Etats-Uuis, qui ne pouvaient en aucune maui^re poss^der le pouvoir d'extorquer la
vdrite t\ des ^ens qui ne voulaient pas la ^aire connaltre.

Je suis maintenant arrive au moment oti il me semble ndcessaire d'examiner la ques-
tion, objet de taut de discussions de la part des deux parties dans ce d^bat. Avec
quelle diligence une nation doit-elle agir pour emp6cher Tarmement d'un vaisseau que
Ton a des raisons sufiisantes de croire destine h combattre uue autre ilationf Quoiqne

OPINIONS OF MR. ADAMS. 157

the other ? Although my own judgement is distinctly formed upon it, I
feel that this is not the place in which I can, with the most propriety,
explain my reasons in full. It is enough for my purpose here to say
that, in my mind, the diligence manifested by all the requisite authori-
ties of Great Britian in the case now before us does not appear to mo
to be that contemplated by the language of the treat}', because it was
not in any sense a spontaneous movement. So far as the papers before
us are concerned, I cannot perceive that Her Majesty's government
acted in any case excepting after representations made by the agent of
the United States; and even when thev did act, thev confined them-
selves exclusively to the allegations therein made, presumiug that, if
they couhl report upon them satisfactorily to themselves, their obliga-
tions were fully performed. It must be obvious that such a method of
action furnishes every possible opportunity to the parties implicated,
if they be at all adroit, to escape couvictiou, by resort to equivocation,
if not absolute falsehood. 1 can form no definition of the word '* dili-
gence'' which does not embrace direct original action, persevered in not
merely to verify aots of offence one by one, but to establish the general
fact of intent as obtained from continuous observation of the oiierations
going on ; not merely to detect the motives for falsehood, but to pen-
etrate to the bottom of the truth. If there was a conspiracy of persons
at home engaged in a treasonable effort to overthrow the government,
would not due diligence comprehend in its meaning a close and con-
stant observation of each a!id every one of the persons reasonably sus-
pected of being engaged in it, and an immediate action to prevent
any movement in advance of its maturity ? Especially, would not such
energy be called for in time of war, when the danger to the suite from
external co-operation might become extreme f Most of all, would it not
be natural to expect from every power in amitj* to furnish all the means
it could command to render abortive every combination suspected to be
forming within its borders to render assistance to the maneuvers of
the malcontents' at home f All these are parts of a complete whole,
the maintenance of order at home and of peace abroad.

mon avis h cet 6^atd soit parfaitement fonii6, je sens que ce n'est pas ici le lien oh je
pnisse avec le plus de conveuance exprimer mes raisous d'une maniere coraplMe. 11 me
Buftit de dire quo, selon moi, la diligence exeicde par toutes les autorit<?s intcressdes de
la Grande- Bretauge, dans le cas actuel, ue me paralt nnllement correspoudr ; au texte
du Vrait^^, parce qu^elle n'a nullemeut 6t<5 spontanee, comme elle devait r^«tre. Je ne
vois pas, en effet, dans ancun des documents sous noa yeux, que le gouvernenient de sa
Majestd britanuique ait agi, si ce n'est sur les representations des agents des !£tats-
Unis, et uiO.me, lorsqu'il agit, il s'eu tient exclusivement aux informations qui lui sont
donuees par ces agents, et semblt^ supposer que, s*il pent rapporter d'une nianicre satis-
faisante pour lui sur ces informations, ses obli«^ations internationales sont pleinement
remplies. II est dvident qu'une telle maniere a'agir fournit aux person ues int<!?ress<^es,
pour pen qu'elles aient nue certaine habilet<$, toutes les facilit<Ss pour <5viter d't^tre d^-
coavertes, an mojen d'^quivoques, siuon de mensonges. Je ne puis donner aucune defi-
nition du mot *MUigences '^ qui ne signitie pas seulement uue premiere action directo
proloDg^e dans le but de veritier des ddlits nu h. un, mais aussi dans le but d'dtablir le
fait general de Tinteution, tel que ce fait ressort d'une observation continue des opera-
tions qui s'executent. Supposons une conspiration destin6e k renverser le gouverne-
ment de son pays, n'entendrait-on pas, par les dues diligences, une surveillance atten-
tive et constante do cbacune et de toutes les personnes que Von a des raisons de
soap^onner, et une action immediate pour empc^cber le mouvemeut de se prononcer et
de se declarer? C'est snrtout en temps de guerre (pi'une energie semblable serait ex!-
gee, alors que le danger d'une cooperation etrangere est imminent. N'est-il pasnaturel
d'attendre, de toute puissance avec laquelle on est en paix, qu'elle fera tous ses efforts
pour faire avorter toute entente notoirement formde sur son territoire pour porter
secours aux insurges ? Tout ceci fait xiartie d'un tout ccmplet^ le maiutien de la puix
chez soi et k retranger.

158 ARBITRATION AT GENEVA.

That there did exist in Great Britain a combination of persons, coin-
posed partly of Americans and partly of British subjects, haviu;:; for
its object and intent the fitting out of vessels to carry on war with the
United States, to the end of overturning the Government, is made per-
fectly plain by the evidence placed before us by the two parties. That
Her Majesty's governoient considered it no part of her duty to origi-
nate any proceedings tending to prevention, at the time of the outfit of
the Oreto, or to pass at all beyond the range of investigation es|)ecially
pointed out by the agents of the American government toitsattentiou,
appears to me certain. At a later stage of the diflBcnlties this policy
appears to have been partially changed. The favorable effects of it are
claimed as a merit in a portion of the papers before us, and I .*im ready,
at any and at all proper times, to testify to my sense of its eflficiency aod
value wherever it is shown. But after close examination 1 fail to see
any traces of this policy in the present instance.

It is, then, my opinion at this stage of the transactions that Her
Majesty's government did fail to use due diligence to prevent the fitting-
out, within its jurisdiction, of the Oreto, which it had reasonable ground
to believe intended to cruise against the United States.

I now proceed to the next step in the career of this vessel.

Nassau, — On the 22d of March, 18G2, the Oreto escaped from Liv'er-
pool with an intent to carry on war against the United States. Her
Majesty's government had not been tempted to penetrate the deception
which had been deliberately practiced upon it.

On the 28th of April she arrived at Nassau, and was reported by the
governor as a registered British vessel and carrying the British flag.

On the 30th Commander M^cKillop, of Her Majesty's ship Bulldog,
addressed a letter to the secretary of the admiralty to this effect:

A very suspicious steamer, the Oretro, evidently intended for a gunboat, is now in
the npper anchorage under the British flag ; but as there are no less than three cargoes
of arms and ammunition united to nin the blockade, some of these guns, &c., would
turn her into a privateer in a few hours. Agents of the confederate government and

Qn'il a exist<S dans la Grande-Bretagne une entente entro des Am^ricains et dcs si^jets
britanniques ayant pour but d'armer des vaisseaux pour faire la guerre anx l^tats-Unis
pour reuverser le Gouvemement, c'est une chose parfaitement pix>uv<$e par los t^nioigna-
ges mis devant nos >'eux par les deux parties. Que le gouvernement de sa Majesty
britaunique u^a pas consid^rd de son devoir de prendre des mesures pn^ventives an mo-
ment de l^armemcnt de TOreto, on de faire pour son compte une enqu^te en dehors des
renseignements spc^cialeiiient fournis par les agents du Gouvernement amdricain, c'est
encore une chose indiscutable.

A une (Spw^ue po.st<$rienre cette politique semble avoir chang<^ en partie ; on en reclame
les bons rt^Hultnts dans une partie des documents qui sont devant nous, et je suis pr^t
i\ t<Smoigner en faveur de sa valeur et de son efficacitd. Mais aprtis mdr examen je ne
i-dussis pas Ik trouver traces do cette politique dans le cas actuel.

Mon opinion est, par cons^^quent, que, <lans cette p<Sriode de I'affaire, le gouvernement
de sa Mnje8t<5 britaunique n'a pas exerce la diligence ndcessaii*e pour enipecher Tappa-
reillement de I'Oreto dans les limites de sa juridiction, lorsqu'il avait des raisous sufii-
santes de croire que ce vaisseau (5tait destind contn) les l^tats-Unis.

Namau. — Je ptvsse mainteuant si la seconde p^Sriode de la carricre de co vaisseau.

Le 22 mai-8 1862, TOreto sortit de la rade de Liverpool avec Tintention de faire la
guerre anx fitats-Unis. Le gouvernement de sa Majesty n'avait pas <5te tent6 de p6ne-
trer la fraude qui avait 6l6 commise de propos d<^lib^r<5 li son 6gard.

Le 28 avril, il arriva i\ Nassau et fut aunoucc par le gouverneur comme vaisseau
anorlais, portant le drapeau anglais.

Ltii^O, le commandant, McKillop, du vaisseau de sa Maje8t<5 britannique le Bulldog
expddie au sdcit^taire de ramiraut<^ une lettre a cet ettet :

** Un vaisseau trt^s-suspect, rOreto,dvidemmcnt constrnitpour ^treune canonni^re, se
trouve mainteuant h I'ancre, sous les couleurs britanniques ; mais, comme il d\v a pas
moins de trois cargaisons d'armcs et de munitions ici r^unies pour forcer le blocus,
quclques-uns de ces canons, etc., pourraieut en fuire un corsaire en pea d'heures. Des

OPINIONS OF MR. ADAMS. 159

officers of their navy are here ou the spot, and / have no doubt that the Oreto U intended
for their service.

Such was the iiataral and justcouclasiou of a gallant British officer,
writing under no bias on one side or the other, but moved only by his
sense of justice and fair dealing. Let us now proceed to consider the
inauner in which' events contributed to verify his prediction to the
letter.

Ou the 9th of May, Mr. Whiting, the consul of the United States at
Nassau, addressed a note to the uovernor, calling his attention to the
fact of the almost concurrent arrival from the port of Liverpool of the
gunboat Oreto, and of the tug Fanny Lewis, laden with gunpowder for
the insurgent Americjins.

This letter was referred by the governor to the consideration of the
attorney-general, with an indorsement on it to the effect that he wished
the agents of the Oreto to be informed that, if they put arms on board
that vessel, he should then enforce the rules laid down in the Queen's
proclamation.

The receiver general enters his minute on Mr. Whiting's letter, to the
efl'ect that the Fanny Lewis has an assorted cargo not to be landed.
He is confident that no part of the cargo had then been transferred.

But on the 2Gth of the month his tone changes, and he is convinced
that the consignees of the Oreto intend shipping large quantities of
arms and munitions as cargo.

Two days days later Commander McKillop writes to the governor as
follows:

Several steauiers having an'chored at Cochrano's anchorage, I sent an officer yester-
day to visit them and muster their crews, and ascertain what they were and how em-
ployed.

The officer reports that one steamer, the Oreto, is apparently fitting and preparing
for a vessel of war; under these circumstances, I would suggest that she should come
ioto the harbor at Nassau, to prevent any misunderstanding as to her equipping in
tois port, contrary to the foreign-enlistment act, as a privateer or war- vessel.

- - - - - — — ■ - -_

?gput8 du gouvernement conf6d6rd et des oflBciers de sa marine se tronvent ici m£me, ot
J® «'ai ancun donte que TOrcto est destine ^ leur service/'

Telle (^tait la juste et naturelle conclusion d^in brave officier anglais, dcrivant sans
fitre pr<5venn pour un parti ou pour Tautre, mais n'<5coutant quo sa conscience et son
sentiment d*^quit<5.

Kxaniinons maintenant comment les <Sv6nement« se charg^rent de verifier d, la lettro
ces pr^'^dictions.

Le 9 mai, M. Whiting, consul des £tats-Unis 5. Nassau, adressa une note an gouver-
Heur pour apporter son attention sur le fait de I'arriv^^e presque simultan^e de la ca-
fionnit're I'Oreto et du remorquenr Fanny Lewis, tons deux veuaut de Liverpool
charges de poudre pour les insurgds amdricains.

Cette lettre fut soumise par le gouvernour ii Texaraen du procureur g(5n6ral, avec
Hue note dcrite an dos, oli il exprimait le ddsir que les agents de I'Oroto fusseut inA>nn^s
que s'ils embarquaieut des armes ^ bord de leur vaisseau, 11 mettrait ii execution les
prescriptions duict<5es dans la proclamation de la Reine.

Le receveur gdu<5ral prend not^ de la lettro de M. Whiting, en ce sens, que la Fanny
Lewis a une cargaison assortie qui ne doit pas 6tre dc^barqu^e. II exprime sa convic-
tion qu'aucune partie de la cargaison n'a encore <5te ddbarqu6e.

Mais le 26 il change de ton, et il est convaincu que les agents de I'Oreto ont Tinten-
tion d'embarquer comme cargaison de grandes quantit<5s d'annes et de munitions.

Deux jours plus tard, le commandant, Mr. McKillop, dcrit au gouverneur ce qui
Bait:

'* Plusieurs vapeur» <^tant h Tancre dans la rade de Cochrane, j^ai envoy<5 hier un
officier pour les visiter, rassembler leurs dquipages, et Feconnaltre ce qu'ils ^talent et
la roaniere dont on les emploie. L'officier me nipporte q|ue " I'un des \'apeurs, FOretOy
est, selon toute apparence, armd pour 6tre un vaisseau de guerre. Dans ces circon-
Btances, je sugg<^rerais qu'on le fit entrer dans la rade de Nassiiu, atin d'«5vitor tout
raalenteudu relativement i^ son armement dans ce port, comme vaisseau de guerre ou
de course, contrairement au foreign-enlistment aci,^^

160 ARBITRATION AT GENEVA.

The govoruor referred the question to the attorney-general, who gave
it as his deliberate opinion that an order for the removal of the Oreto
to a place where she was within reach of observation should not be
made, as such order could not be legally enforced unless it was distiuctly
shown that such a violation of law had taiien place in respect to her as
would justify her seizure.

Here also it is to be noted that the attorney-general, following the
example given in the mother country", considers it not incumbent upon
the government to initiate any measures whatever of a preventive
nature. In other words, not until a vessel should succeed in an under-
taking of an illegal nature, w^hich would necessarily imply her escape
from the jurisdiction, would the proper time come for proceeding with
proof that she ought to have been detained.

It was not until I became familiar w ith all these transactions that I
fully comprehended the singular facility of adaptation of the law, as un-
derstood and practiced in Great Britain, to the delay and defeat of the
ends of justice.

It is due to the governor to say that he was not altogether satisfied
w ith the passive policy recommended by his attorney-general ; and he
proceeded to recommend to Commamler McKillop to take activ^e meas-
ures of prevention in the event of his being convinced that the vessel
was about to be armed within that jurisdiction.

On the 8th of June, Commander McKillop, in a lettesr to the governor,
announces that he will seize the vessel should she attempt to take am-
munition on board.

On the very next day the consignees of the Oreto began to load the
Oreto with arms and ammunition. But Commander McKillop did not
execute his purpose. On that day he quitted his command.

But on the very next day his successor. Commander Hickley of Her
Majesty's ship Greyhound, visited the Oreto, and found the consignees
just as busy discharging the arms and ammunition taken in the day
before. In point of fact, they had received a private notice from the
governor and the commander that it would not do; but it was not a

Le gonverneur rcnvoya la question an procureur g(5n(5ral. Celui-ci ddclara que son
opinion, apn'^s mftre r<5flexion. 6tait que Ton no devait point owlonner le ddplacement
de rOreto pour le conduire en un lieu oil il serait mieux surveill^ ; qu^un tel ordre ne
Berait point l<5gal, tant qn'on n'aurait pas pronv6 clalrement que la loi avait 6t6 viol^
de tuanitire ft jvistitier sa saisie.

Reniarquons encore ici que le procureur g6n<?ral, suivaht Texample donn6 en
Angleterre, ne considt>re pas qii'il soit du devoir du gouvemeniont de prendre ancuue
niesure preventive. En d'autres termes, ce u'est que lorsqu'un vaisseau aura r^ussi
dans une entreprise illdgale — c'est-^-dire, lorsqu'il se sera sonstrait h la juridiction — que
Ton ponrra prendre des niesures pour arriver j\ la preuve qu'on devait le deteuir.

Ce ne fut qu^apl•^s m'etre faaiiliarisiS avec toutes ces affaires^ que j'ai compris la
singuli^re facilit<5 avec laquelle on pent adapter la loi, telle qu'elle est pratiquee dans
la Grande-Bretagne, an d6lai et enfin lY I'annulation de la justice.

C'est une justice k rendre an gonverneur que de recounaltre quMl ne fut pas com-
pldtement satisfait de la politique passive recommand^e par le procureur gdneral, et il
enjoiguit an Commodore McKillop de prendre d^actives mesures pr<$ventives, dans le
cas oil il serait convaincu qu'on dtait sur le point d'amier le vaisseau dans cette
juridiction.

Le 8 juiu, le commandant, McKillop, dans une lettre adress^e au gonverneur,
annonce qu'il saisira le vaisseau, si Ton tente d'embarquer des munitions.

Le jour suivant, les agents de I'Oreto commencent & le charger d'armes et de mu-
nitions. Mais le commandant, McKillop, ne met pas i\ ex<Scution sa menace; il avait
qiiitt6 ses fonctions le radme jour.

Le lendeinain, son successeur, le commandant, Hicklej, du vaisseau de sa majesty
britanniqne Greyhound visita I'Oreto, et trouva les agents en train de d^charger le vais-
seau des armes et des munitions embarqudes la veille. £n effet, ils avaient re^u un avis
particulier du gonverneur et du commandant, qu'il ne pouvait en 6tre ainsi, mais ce

OPINIONS OF MR. ADAMS. 161

menacing intimation as to absolute action. They were canning enough
to take the hint, and change the line of their operations.

Theyuowdeclared theirintention toclear the Oretoin ballast for Havnna.
Tills assurance quieted the apprehensions of the British commander.
But finding that the vessel still remained, on the 15th of June he again
visited her, in company with eight of his oflBcers. The crew had re-
fnsed to get the anchor up until they could be made certain as to where
the ship was going. The Oreto was a suspicious vessel. After close
observation, Captain Hickley^and his eight officers all signed a report,
addressed to the governor, to the ettect that she is in every respect
fitted as a man-of-war. She had left Liverpool fitted in all respects as
they saw her. No addition or alteration had been made at Nassau.

This paper was subrpitted to the attorney-general for his opinion, and
he gave it to the eflfect that nothing contained in it would justify the
detention of the vessel.

But Commander Hickley saw the thing in a different light from the
attorney, and on the 15th addressed a new letter to the governor, re-
porting the result of his conversations with the portion of the crew that
had come to see him. He was now so convinced of the intent of the
parties controlling the Oreto, that he was strongly inclined to take the
responsibility of her seizure and removal to another station at which
was placed the commodore or commander-in-chief. And he actually put
one of his officers temporarily in charge.

On the 16th of June the governor wrote, in reply, deprecating all
action of the kind contemplated, and throwing the responsibilit3^ wholly
apoii him, if he should take it.

On the same day the attorney-general gives an opinion that no case
has yet been made out for seizure. He does not appear to have thought
it his duty to initiate any measures to ascertain what was the evidence
apou which Commander Hickley was impelled to his convictions. It
was the passive policy, the example of which had been set at home.
The evidence must come to the governuient. It was not for the gov-

nVtalt pas un avis raena^ant fVune action de la part clu gonvernement, et ils fnreut
a«Sfz fins pour en tenir eoiupte et pour changef lenr lijifne de couduite.

Ilsd^clar^rent alors qn'ils avaient I'intention de s'aciinitter pour I'Oreto en lest pour
la Ha vane. Cette declaration nissnra pour qnelqne temps le coiuniandant hritan-
ni<|iie. Mais le 13.jnin, voj'ant I'Oreto toujours ii I'ancre, il alia le visiter, acconipajjjn^
fit* huit ofliciers. L'e<iuipaj;e avait refus^ de lever Tancre taut qn^^n ne lui aurait pas
foif counaUre ladestination dn vaissean. L'Oreto(^tait un vaiss'-au suspect. Apr^s nne ini-
niitiense inspection, le capitaine Hickley et ses Unit officiers sij^nent un rapport adres!^6
an jrouverneur, declarant que I'Oreto est, sous tons les rappprts, arni^ comuie un vais-
»au de Euerre. II avait qiiitt^ Liverpool tol qu'ils le voyaient alors ; on no lui avait
fait ui cbangement ni addition {^"Nassau.

Ce document fut soumis au procureur gdndral, et il d<^clara qu*il ne contenait rieu de
capable lli jnstifier la detention du vaissean.

Mais le commandant Hickley ne voit pas les choses sous le mdme jour, et, le 15, il
adreese une nouvelle lettre au gouverneur pour lui faire connaltre le ri^sultat d'nne
conversation avec une partie de Fi^quipage de I'Oreto, ^\^\l 6tait veuu le trouver. II est
si convainca de connaltre les v^ritables intentions des agents de I'Oreto, qu'il est tont
dispo9<^ ^ prendre sur In i la responsabilit^^ de le saisir, etde le conduire au mouillage
oil se tronvele commandant en chef. II va m6me jusqu'a commettre temporairenieut
nn de sen officiers h sa garde.

Le 16 jnin,le gouverneur r6pond en bldmant toute luesure de ce genre, et le rend re-
sponsable de ce qu'il pourrait faire h cot <^gard.

Le indme jour le procureur general dc^^Jare qu'il n'y a encore ancun motif de saisir le
vaisseau. 11 ne semble pas avoir cru <iu'il «5tait de son devoir de prendre des raesuces
pour roconnaltre sur quoi le commandant Hickley fondait sa conviction. C'^tait tou-
joors cette politicpie passive dont on lui avait donu^ l'<'xample en Angleterre ; la preuve
devait arriver an goaverneraent, et ce u'ctait pas au gouverneuient ti rechercbor cette

11 B

1G2 ARBITRATION AT GENEVA.

eminent to go to the evidence. Of course it natarally happened tbat
this worked entirely for the benefit of the malefactors, and to the in-
jury of the party that ought to have been protected. On the same day,
Commander Hickley wrote a reply maintaining his conviction, but de-
clining to assume the responsibility of acting in the face of the attorney-
general's opinion. He therefore withdrew the officer whom he had placed
in charge of the ship.

But the governor is not satisfied with the action of either party, and
is afraid to commit himself entirely against the clear conviction of the
commander, so he decides in favor of a seizure of the vessel, with a view
to a submission of the question to the local court of vice-admiralty at
Nassau.

This was on the 17th of June. The information of the act of Captain
Hickley was transmitted to the government at London, and received
the approbation of Earl Russell. Indeed, there is a degree of hearti-
ness in the terms he uses to express it, and in his anxiety to see the
officer properly secured from any hazard to himself by reason of his
course, that clearly shows the earnestness of his satisfaction. I hope I
may not be exceeding my just limits if I seize this occasion to do a sim-
ple act of justice to that eminent statesman. Much as I may see cause
to difli'er with him in his limited construction of his own duty, or in the
views which appear in these papers to have been taken by him of the
policy proper to be pursued by Her Majesty's government, I am far from
drawing any inferences from them to the effect that he was actuate in
any way by motives of ill-will to the United States, or, indeed, by un-
worthy motives of any kind. If I were permitted to judge from a calm
comparison of the relative weight of his various opinions with his action
in different contingencies, I should be led rather to infer a balance
of good- will than of hostility to the United St.ates.

The law-officers of the Crown were likewise consulted, and they gave an
opinion favorable to the action of Governor Bayley, but strongly urging
that evidence of what occurred at Liverpool of building and fitting out

preuve. Cetto mani^re d'a^ir devait iK^cessairement tonrner an profit des coupables et
au pr<^judice do cenx qui devaient Hre \fcot6f^6s.

Le iiiemc jonr lo comniaiidaiit Hickley rdpoud que sa conviction demeuro entiere,
mais qu'il n'entend pas assuiuev la responsabilit^ d*agir contrairement a Topinion du
procureur gduc^ral. En consequence il retire Totticier qu^il avait commis a la garde du
vaissean.

Le gouverneur, pen satisfait des denx opinions oppo8<5c8, ou craignant de se compro-
nicttre en so d<^clarant coutre la conviction •ibsoluo du commandant, se d^'^cide i\ fairo
saisir le vaissean,et a porter la question devant la cour de la vice-amiraut6 a Ntissau.

Ceci se passait le 17 juin. On tit connaUre au gouvernement a Londres co qu*avait
fait le capitalne Hickley, et le Conite Russell y donna son approbation. II y a en etiet
un ton de cordiality dans les tenus quMl eniploie pour Texprimer, et dans son anxit^to de
voir I'otticier bien gaianti contre tout liasard i\ cause de sa conduite, (^ui montre claire-
nient le s<5rieux de sa satisfaction. J'espere ne pas d<5passer nies justes limites, si je
saisis cette occasion d'accomplir un simjde acte de justice euvers cet houune d'etat
Imminent. Autantje puis voir de motifs de dift'<5rer d^ivec lui quant ti sa maniere eir-
conscrite d'envisager son propre devoir ou dans les vues qui, par ces documents, sem-
bleiit avoir 6t6 adopt<?es par lui quant j\ la conduite {\ snivre par le gouvernement de
sa Majest<5, autantje suis loin d'en tirer aucuno conclusion qu'il ait <?t«5 m(l, enancune
maniere, par des motifs de mauvaise volont<5 envers les l^tats-Unis, ou ni^me par des
motifs indignes d'aucune espoce. S'il m'^^tait permis de juger, en comparant avec oalme
la valeur relative de ses opinions diverses, i\ sa conduite en diifcreut^^s conjonctures, je
serais plut6t port<$ a couclure en faveur de la bonne volont<$ que de riiostilit^ a regard
des I^tats-Uuis.

Les afocats de la couronne, (5galement consultds, donnerent une opinion favorable
aux mesures prises par le gouverneur Bayley, mais recommanderent fortcment d'en-
voyer le recit de ce qui s'etait passed i\ Liverpool, au sujetde la construction t)t de Tarme-

OPINIONS OF MR. ADAMS. 163

should be at once sent forward, in order to complete the proof of her
hostile destination to the United States.

And here I trust I may be permitted to express my sense of gratifica-
tion on reading the reports and observing the action of the two gallant
naval officers. Their clear good sense and rapid judgment had led them
straight forward to the penetration of the motives of the authors of the
wretched equivocations and falsehoods by which they were surrounded,
as well as to the adoption of the most effective measures to bring their
machinations to naught. Neither does this course appear to have been
in any way prompted by a mere spirit of good- will to the United States,
which were to be protected by their action. It seems to have sprung
from that natural impulse of a conscience void of offense, which per-
ceived an act of injustice and fraud to be in contemplation, and deter-
mined at once to resort to the best measures to prevent it.

Had such an energetic spirit animated the whole action of Her Majes-
ty's government at all times and in all conjunctures, there would have
been no question about the exercise of due diligence in this narrative.

The opinion of the law-officers in London was received by Earl Rus-
sell on the 12th of August. Ten days before that date he had addressed
a letter to Mr. Stuart, the British secretary at Washington, requesting
him, in view of this proceeding, to dissuade the American Government
from proceeding in the measure then contemplated of issuing letters of
marque. He little thought of what had been laid up in store for him by
the learned judge of the court of Nassau.

On that very same day he had pronounced his judgment that there
was no sufficient evidence to prove any act committed at Nassau to
justify the seizure. But, considering the very suspicious nature of the
circumstances, he should release his own government from the payment
of costs.

It is the general rule of courtesy between nations to recognize the
action of their respective courts without seeking to analyze the princi-
ples upon which the decisions are made. And it is a wise rule, as con-
ducive to the general maintenance of law and order in the performance

ment du vaisseau, afin do corapl«5ter la preuve de la destination hostile de TOreto i\
lY'gard des fitats-Unis. Et ici j'espi^re qu'il me sera peniiis d'exprinier mon sentiment
do satisfaction en lisant ces mdmoires, et en remarqnant la conduitede ces deux braves
officici*s de marine; lenr bon sens liicide et leur jngemeut rapide les conduisirent di-
rectement h p<^,n<^trer les motifs des auteurs des mis(? rabies (Equivoques et des mensonges
dont ils dtaient enveloppds, axissi bien qu^\ adopter les mesures les plus efficaces pour
uiettre j\ n<5ant leurs machinations. Cette conduite ne semblo pas uon plus avoir 6t6
provoqu(5e en aucune mani^^e par uu simple esprit de bon vouloir ^ l'6gard des fitats-
IJnis, qui devaient etre proti^gds par leurs mesures. EUe semble avoir jailli de I'im-
pulsion naturelle d'une conscience nette de toute faute, qui voit se pr(5parer uu acte
d'injustice et de fraude, et qui se d<5termine en mftme temps i\ prendre les mesures les
plus d<5cisives pour rempccher.

Si le m(}me esprit 6nergique avait anira6 toute la conduite du gouvernemeut do sa
Maje8t<5, toujours et dans toutes les conjonctures, il n'eftt pjis 6t6 question de la pratique
des "dues diligences" dans ce mdmoire.

Cette opinion fut re^ue par le Comte Russell le 12 aoflt ; six jours auparavant il avait
adressi^ une lettre }\ M. Stuart, 8ecr<5taire de la l<5gation i\ Washington, pour lui demander,
en consideration de cette d<^cision, do dissuader le Gouvernement amdricain de mettre i\
execution la mesure dont il dtait question alors, do d61ivrer des lettres de marques. II
pr6voyait pen ce qiio lui rdservait le tn^s-dminent juge de la cour de Nassau. Le m6me
jour, ce juge avait prouoncd sou jugement; il d<5clarait qu'il n'y avait pas de preuves
sufBsautes qu'il e^t 6t6 commis ^ Nassau un act^^. justitiant la saisie. Mais consid6rant
la nature suspecte des circonstances, il lib(5rait son gouvernement du paiement des frais.

C'e8t une rc^gle g^n^^rale de courtoisio outre les nations de recounaltre les agissements
de leurs cours do justice respoctives sans chercher h, analyser les principes sur lesquels
se basent leurs d^^cisious. C'est 1^ une r^gle sage, aussi utile pour le respect do la lot
que pour le maintieu des droits rdciproques de prot<5ger les iutdr^ts de Tune et de I'autre.

164 ARBITRATION AT GENEVA.

of their reciprocal duties of protection to individual interests. But I
am not altogether sure whether this rule should be held to extend so far
as to bind the members of this tribunal to absolute silence in this and
similar instances that come before us. Whilst most anxious on all oc-
casions to preserve the decorum appropriate to a station of such emi-
nence, I am at the same time oppressed by the conviction that in no
portion of the history of this proceeding is the responsibility of Her
Majesty's government for the subsequent career of this vessel more
deeply implicated than by the action of this vice-admiralty judge, in
letting this vessel go upon the reasoning which he presents in his justi-
fication. It would be easy for me, if it were necessary, to go into an
analysis of the various points in which he appears to have ruled erro-
neously both in regard to the law and to the evidence. It is made cer-
tain by the papers that, in the former, he was not sustained by the law-
officers of the Crown at home. And as to the latter, I cannot but assume
the presence of some strong external bias which should have induced
him to give credit to certain persons on the mere score of personal
character, where testimony proves them so clearly, in my eyes, to have
been arrant cheats, and to discredit the seamen, chiefly on account of
their low condition, who are as clearly manifested to have told the sub-
stantial truth. My mode of explanation of this flagrant perversion of
the law is, that the judge partook so largely of the general sympathy
admitted by the governor to have held sway over the entire population
of the island, as to render him absolutely incapable, iu this case, of a
perception of justice. It is not probably without a strong conviction of
this truth that the plain sense and clear appreciation of facts prompted
Commander Hickley to advise the removal of the vessel entirely out of
this jurisdiction. For the honor of Great Britain, which must be held
responsible through its agents for this flagrant wrong done to the injured
party, it had been perhaps well if the desire of the gallant officer had
been complied with.

Many strictures have likewise been made upon the action 'of the attor-
ney-general, Mr. Anderson, throughout these ijroceedings, of so harsh a

Mais jo ne suis pas sftr si cette r^^le doit s'appliqner si rigoureusement, jnsqn'.'i obliger
les nieiiibrcH de co tribunal si nu silence absolu, dans ce cas et dans d'antres semblaWes
^ni uons sont sonniia. Quoique tres-di^sireux en toute occasion <le respecter le decorum
dft h une position si dminente, je snis press<6 par la conviction que nnlle part dans I©
«ours de cette aifaire, la responsabilit<5 du gouverueraent britannique au sujet de ce
batinient n'est devenue aussi grande que par suite de ce jugeraent de la vice-auiiraut^,
et des argument** pr<5sent<^s pour sa justification. II rae serait facile, s'il etait nc^cessnire,
d'analyser les difl(^ronts points oil il sVst tromp<5, soit sous le rapport de la loi, soit dans
le rapport du droit, soit sous le rapport de la preuve. Les documents prouvent sura-
bondaniment que, quant au premier, il u'a pas 6i6 appuy6 par los avocats de la cou-
ronne en Augleterre. Quant }\ la seconde, je ne puis que croire h l'exist«nce d'une
grande partialit<$ qui Ta conduit h douner cr^ance au t6moignage de certaines personnes,
sous pr^texte de leur reputation personuelle, alors que ce ti^moignage me prouve claire-
Dient qu'ils <5taieut des fourbes, et li ne pas ^jouter foi an t<^moignage des marins, prin-
•cipalement ii cause de leur rang infj^rieur, que Ton a prouv6 avoir dit la v6rit^ sul)stan-
tielle. J'explique cette flagrante injustice par le fait que le juge participait en une
grande mesure ^ la sympatliie g^ndrale dprouv<5e par la population pen nombreuse de
rile, synipathie admise du reste par Je gouveniear, et qui le rendait incapable d*un juge-
ment impartial- II eet probable que ce fut parce quMl <^tait couvaincu de ce fait que
le commandant Hickley couseilla de conduire le vaisseau hors de cette juridiction. Pour
riionneur de la Grande- B re tagne, qui doit 6tre tonne responsable des actions do ses
agents pour ce dommage Evident caus6 h la partie l^s^^e, il eilt peut-etre et«5 bien que
Ton se fftt rendu au dt^sir de ce brave officier.

Bien des critiques out 6t6 ^gaiement faites de la conduit© d© Tattorney-general, M.
Anderson, dans le cours de cett© procedure, d'un© nature si grave qu^il a 6t6 cngag^ 4

OPINIONS OF MR. ADAMS. 165

Datare as to have called from liira a formal paper in bis justification,
which ha« been pla<5ed among the documents before us.

After a careful examination of the question, I am led to the belief
that it is possible to arrive at a clear comprehension of the motives
which actuated him, without the necessity of imputinp^ any purpose
deeply affecting his integrity.

It appears that if, on the one hand; he was slow in his disposition to
reach any effective action to defeat the enterprise of tht Oreto in 18G2,
on the other, he appears in proportion quite as swift in the process of
seizing the vessel known as the Alexandra, and subsequently the Mary,
and pressing for her condemnation, when she made her appearance at
Nassau in the winter of 1864, under much less dubious circumstances.

The reason is plain. Mr. Anderson virtually admits in his statement
that, in the earlier stages of the struggle in America, he considered the
fate of the United States as settled, and he did not regret it. But, in the
last mouths of the war, not a shadow of doubt could have remained in
his mind as to its permanence. He then cheerfully accepted a retainer
on their side. The transition from one state of feeling to the other can
be no cause of surprise to any one observant of the relations of t he
small population of Nassau to the United States. Neither is it difficult
to perceive among the documents the traces of a similar revolution of
sentiment and action going on simultaneously in other portions of Her
Majesty's dominions far removed from that relatively insignificant island.
Be this as it may, the effect of the decision of the admiralty court in
1862 was not only to liberate the ship, but to put an end to all serious
attempts to prevent the full accomplishment of the nefarious purpose of
her owners. On or about the 7th of August, the Oreto sailed from Nas-
sau. On the 9th of the same month tlie schooner Prince Alfred also left
the place. They met at a spot agreed upon, about sixty miles distant,
called Green Cay; and there the Oreto received her armament and
ammunition, as well as her true officers and crew. The commander was
relieved from the terror of a new arrest which he had felt in the event

^rire pour sa jnstification un m6moire formel qni a 6t6 plac^ parmi les documents ex-
pos4^8 devant nous.

Apres un exanien scnipuleux de la question, je suia amend h croire qu'il est possible
d'arriver a une perception claire des motifs qui le dirij^eaient, sans qu'il soit ndcessairo
de lui imputer aucun dessein afiectant sou iutdgritd au fond.

II semble que, si d'un c6t6 11 a 6t6 leut dans sa disposition h adopter aucune mesuro
efficace pour empecber rentreprise de I'Oreto en 18(i2, do I'autre, il paralt en proportion
aussi avide 2\ poursuivre le vaisseau nommd PAlexaudra, et plus tard la Mary, et h
presser sa condamnation, lorsqu'il tit son apparition t\ Nassau, I'biver de 1864, dans des
circoustauces beaucoup moins douteuses.

La raison est dvidente. H. Anderson admet virtuellement dans son mdmoire que,
dans les premieres pbases du condit en Amdrique, il cousiddrait lo sort des £tats-Unis
comme termind, et il ne le regrettait pas. Mais, dans les derniers mois de la guerre, il
ne ponvait pas rester dans son esprit I'ombre d'un doute sur leur permanence. II agit
alors volontiers pour eux. La transition de Tune de ces famous de sentir h I'autre ne
peut ^tre une cause de surprise pour aucun observateur des relations de la petite popu-
lation de Nassau aVec les Etats-Uuis. II n'est pas non plus difficile de ddcouvrir parmi
oes documents les traces d'une r6volution semblable, li propos de la mani^re de sentir et
d'agir, simultancmentjdans bien d'autres parties des dtats de sa Majestd, tr^s-eloign<^es
de cette lie relativement insignifiaute.

Quoi qu41 en soit, la consequence du jugement de la cour en 1862 fut, non-seulement
de lib^rer le b^timent, mais encore de mettre un terme $k toute tentative sc^rieuse
pour empecher I'accomplissement des projets criminels de ses propridtaires. Vers lo 7
aodt, rOreto quitta Nassau. Le 9 du m6me mois, le schooner Prince Alfred quitta
anssi ce port. lis se rencontr^rent ^ un endroit convcnu, h une distance de 60 milles,
appeld Green Cay, et lii, I'Oreto re^ut ses armes et ses munitions, aussi bien que ses
rrais ofiiciers et son 6vuipage. Le commandant n'avait plus ^ craindre une nouvelle

166 ARBITRATION AT GENEVA.

of his continuance at Nassau for another day. There was no cause for
this apprehension. His victory was complete. On the morning of tlie
11th August, in a place called Blossom Channel, believed to be within
the British jurisdiction, the log-book found in his vessel shows the trans-
action to have been completed. The authority of Her Majesty's govern-
ernment had been successfully defied, and the decision of her admiralty
court proved a mockery and a show.

Hence it appears to me that Great Britain had clearly failed in enforc-
ing the second rule prescribed in the treaty of Washington, as well as
the first ; and if these two rules were not enforced as they should have
been, a failure in regard to the third appears to result as a matter of
course. ,

The next step in the career of the Florida, material to the present dis-
cussion, is the fact of her entry into Mobile, a port held by the insur-
gents, although at the time blockaded by the vessels of the United
States. Here she remained for more than four months. On the loth
of January, 1863, she again succeeded in running the blockade outward,
and on the 25th her captain had the cool insolence to go at once to the
very pla<je 6f the island of Nassau from which he had just escaped under
terrors which belong only to a malefactor. It is proper to add that in
the interval he had shii)ped an additional motley force of fifty -four men
at Mobile.

The question here naturally arises whether by this proc^iss the vessel
had so far changed her previous character as to be diACsted of any trace
of her British origin and fraudulent equipment, and entitled to claim a
new departure as a legitimate offspring of a recognized belligerent power.
This question, appertaining exclusively to the case of this vessel among
all those submitted to our consideration, and touching the release of
Her Britannic Majesty's government from any further responsibility for
the taint of her origin, appears to me one of the most interesting and
difficult of all that we are called to decide. But in order to complete
the review of the career of the vessel, so far as it relates to the aetion of

arrestation, crainte qu'il anrait 6prouv6e h Nassaa, sMl y <?tait rest^ un jour de pins.
II n'avait poiirtant aiicuue raison de craindre; sa victoire 6tait complete. Le 17 ao<lt,
an matin, dans im cudroit nomind Blossom Channel, daos Ics limited de la juridiction
britannique, lo livre du lo^ I'atteKte, la transaction fut achev<5e. L'autoril^ da
goiivernemcnt do sa MajeKt<S avait 6t6 brav^e avec succes, et la d<5ci8ion de la cour de
raniirautd so montra conime nne d^'rision et une moqnerie. II me semble ressortir de
la que la Grande-Bretagne avait dcbou6 ji faire respecter la seconde ^^glo du trait'^ de
Wassbiugtou aussi bien que la premiiire. Et si ces deux regies <$taient viol6es, la
troisi^nie dovait I'^tre ndcesnairemeut.

Lo j)as8nivant dans la carriere du Florida, relatif j1 la discussion pr<$8ente, est le fait de
son entr«5e t\ Mobile, port occup<^ par lea insurgos, quoiquo, ii cett^ dpoque, bloque par
les vaisseaux de« I^tats-Unis. II y resta plus de qnatre mois. Le 15 Janvier 18(53, il
rj^ussit de nouveau a forcer le blocus, et le capitaine, le 25 du memo mois, eut
IMnHolence de se rendre de suite an ni^me endroit de Pile de Nassau, d'oii il avait
<^ebapp<? sous les terreurs qui n'appartienneut qu'a un malfaiteur. II convient
d'ajouter <ine dans Tintervalle il avait enr61<5 cinquante-quatre bommes de plus de
toute esp6ce, h Mobile.

Ici s'ob^^ve naturellement la question de savoir si par ce proc<^dd le vaisseau avait
assez cliang<5 son caractere primitif pour ^tre ddpouill^ de toute trace de son origine
britannique et de son <5<|uipement franduleux, et pour 6tre autorisd a pr<^tendro partir
dt? nouveau comme un produit Ic^gitinie d'une puissance bellig<5rante reconnue. Cette
<inestion, ajipartenant exclusiyenieut an ens de ce vaisseau, entre toutes celles qui
sont souniises h notro exauien, et embrassant la d<^cbargc du gouvernement de sa
Majesty britannique de toute responsabilit^^ ulterieure au sujet de la tache de son
origine, me senible une des i)lus interessantes et des plus ditbciles de t<jutes celles que
nous sonmies appek^s a decider. Mais alin de completer la revue de la carri^re entiere
de ce vaisseau, en taut qu'cUe serax>porte a la couduiie de laGraude-Bretague, quant ^

OPINIONS OF MR. ADAMS. 167

Great Britain upon the occasion of her visits at any ports within that
jurisdiction, I deem it expedient to postpone the observations I propose
to make upon it until the end.

Whatever may be the doubts elsewhere expressed about this point,
Done whatever were admitted at Nassau, the very spot where the fla-
grant fraud had been most successfully perpetrated and Her Majesty's
dignity insulted and defied. She was immediately recognized as a
legitimate belligerent, the only objection made to her presence being a
violation of a minor regulation of the port, which required a previous
application for permission before coming to anchor. For this minor
offense the captain could afford to apologize, when the vastly greater
one had been so readily condoned. The object he now had in view was
the procuring a good supply of coals for the prosecution of his cruise.
Permission seems to have been given without stint. Some question has
been raised about the precise quantity ; but if there was no limit pre-
scribed by the authorities, it may reasonably be inferred, from the gen-
eral sympathy strongly manifested by the population, that all would be
supplied the captain would be ready to take. So, likewise, with pro-
visions. A person on board of the Florida at the time seems to have
recorded his impression that enough had been supplied to last several
months. This is doubtless exaggerated. So with the testimony of two
persons, taken several years afterward, of their recollection of the facts,
which would naturally be subject to serious reduction. Yet, after mak-
ing every possible allowance for these circumstances, it appears reason-
able to me to conclude that Captain Maffit succeeded in getting all that
he desired to put him in a condition to commence, and continue for
some time, a predatory cruise. It is also alleged that the captain
shipped here eleven men, which is not unlikely to be true also, if he
needed them.

Captain Maffit, thus completely fitted out from Ka'ssau a« a basis, x)ro-
ceeded on his cruise, which lasted for about a month, and in which he
alleges that he experienced very rough weather. This is the reiison

ae« Ti8it«« h certains ports sous cette juridiction, je crois pins convenable de reniettre
ju;i(|u^^ la fiu les observations que je me prop(»8e de faire lii-dessus.

Quels que pussent dtro les doutes entretenus ailleurs k ce sujet, on n'en adniettait
aacnu k Nassau, Tendroit oil la fraude flagrante avait ^t<S commise avec le plus grand
siicces, et oil la dignit(5 de Sa Majest<S avait H6 le plus outragde. II fut immddiatement
reconnu comme belligorant legitime, la seule objection faite ^ sa presence ayaiit ere
qu^il avait viol6 uu petit ri^glement du port, qui exigeait qu'on demanddt d'abord la
permission avant de mettre h, I'ancre. Pour cette Mg«>re faute, le capitaiue Maffit t
pouvait bien faire nne apologie quand celle qui ^tait beaucoup plus grande avait cte
pardonn^e si promptement. Maintenant le but que le capitaine Matlitt se proposait
daus cett>e visite <5tait de se pourvoir d'une bonne provision de cbarbon pour la
poursuite de son entreprise. La permission semble avoir 616 donu<Se sans rt^nerve.
On a agit^ la question de la quantite precise, mais sMl n'y avait pas de limite prescrite
par les antoritds, on pent raisonnablement conclure de la sympatbie gtSncrale,
haatement raanifestde par la population, que tout ce que le capitaiue eftt 6t6 \not a
preudro lui eftt 6t4 donne. De m6me pour les provisions. Une personne j\ bord du
Florida, h celte dpoquo, semble avoir mis par dcrit son impression qu'on en avait
accord^ assez pourplusieurs mois. Ceci est sans doute exager<5. De m^me quant au
temoignage de deux personnes, emprunt^ plusieurs aunde^ apriis, j\ leur recueil des
faits, qui devrait 6tre soumis ti une reduction s^rieuse. Mais apres avoir fait toutes
les concessions possibles !i TtSgard de ces circonstiinces, il me semble raisonnable de
conclure que le capitaine Matiitt r<Sussit ii obtenir tout ce quMl d<5sirait pour se mettre
en ^tat de commencer et de coutinuer pendant quelque temps une course de pillage.
On allegue aussi quo le capitaine y enrAla onze homines ; fait dont la v6ritc u'est pus
improbable, s'il en avait besoiu. Le capitaiue Miiffitt, ainsi compl(5tement pourvu it
Nassau, place prise pour sa b:iHe, commenga sa course, qui dura environ un mois,
pendant leqael il dit avoir ^prouv^ de tres-rudes tcmx^s. Au moius, c'est la raison

1G8 ARBITRATION AT GENEVA.

assigned for his visit to Barbadoes, where he applied for more coal and
some himber. He suppressed the fact of his late supply, and reported
himself as la^st from Mobile. He succeeded in obtaining 90 tons, and
thus prosecuted his predatory voyage on his renewed stock.

Much damage as these permissions unquestionably entailed upon the
United States commerce, it is proper to add that they had not beea
given so much from any willful disposition on the part of the officers of
Her Majesty's government, but rather from their indifference to all
measures of early prevention. So soon as information of these events
had been received at the colonial office in London, this liberality was
checked, and orders were issued to be more cautious in the future.

After a visit of four days to Pemambuco, the next British port
entered by Captain Maffit was Bermuda, on the 15th of July. His ap-
plication for government coal was here, for the first time, refused. He
succeeded, however, in obtaining plenty from other sources, and in
transgressing the limit prescribed for his stay for repairs without cen-
sure, which enabled him to cross the ocean and reach Brest, in France,
on the 23d of August.

It should be noted that this long cruise, from the 25th of January to
the 23d of August, of nearly seven months, was made with supplies of
coal received exclusively from British sources.

It seems to he unnecessary to enter into further particulars of her
career after she left Brest. She seems to have touched at some British
ports in the West Indies and obtained assistance, and she finally put into
Bahia, which proved to be the termination of her record, in October.
The length of her term on the ocean had been about eighteen months
— long enough to perpetrate much too large an amount of mischief.

It now remains to me only to recur to the question, already i)roposed
in the course of this opinion, regarding any change of original character
that may be considered to have taken place in this vessel by the fact of

donn^e par lui pour la visite qn'il fit le 24 fdvrier b, la Barbade, pour prendre encore
pluH do cbarbon et* da bois pour les rdparations. II supprima le fait de sou dernier
bubside, et il d^elara qu'il vonait en deruier lieu de Mobile. II rdussit ti obteuir
quatre-viugt-dix tonues, et coutinua aiusi sou voyage de pillage.

Quelque grand que 8oit le domniage causd, salis aucuu doute par ces permissions, an
counnerce des l^tat-Unis, il couvieut d'ajouter qu'elles u'ont pas taut <5t<5 donn^es avec
lualveillaucc de la part de I'bflicier du gouveruemeut de sa Majesty qu*ii cause de
ct'ttc iudift<5reuce qui ne prdvoyait jamais la ndoessit^ de prendre des pr<5cautious
d'avauce. AussitAt que la iiouvelle de ces <Sv(5nemeuts eut 6x6 ref ue h I'oftice colonial
de Loudres, cette lib<5ralit6 fut r^primce et des ordres fuient donu<5s d^fitro plus
circouspect h I'avenir.

Apri's uue visite de quatre jours h Pernambouc, le premier port anglais oh entra le
cai)itaine Maffit fut Bermuda, le 15 juillot. Sa demande d\)btenir du cbarbon du
gouveruenent fut ici refusde pour la premiere fois. II reussit cepeudant j\ en ol^enir
en abondance d'ailleurs, et i\ depasser saus censure les li mites prescntes h son 8(^jour

ijour reparations, ce qui lui donna les moyens de traverser Poc^an et d'atteiudre
3 rest, en France, le 23 aoftt.

II faut remarquer que cette longue course, du 25 Janvier au 23 aoftt, de pr^s de sept
mois, fut faite avec des subsides de cbarbon reyus exclusivement de sources brit^u-
uiques.

11 ne me senible pas n<!5ces8aire d'entrer dans des details ult<5rieur8 sur la carri^re de
ce vaisseau apres son depart de Brest. II semble avoir toucb^ h quelques ports
anglais, dans les Indes occidentales, et avoir obtenu des secours; et enfin il entra ^
Babia, ce qui mit fin h son bistoire, en octobre. La durde de sa carri^re sur Toci^au
avait 6t6 d'environ deux ans et demi. Sa course comme bellig<5rant avait dure environ
dix-buit'uiois; assez longtemps pour commettro uno somme de dommages beaucoup
troj) grande.

11 ne me reste plus qu'i revenir i\ la question d<^jil propos^^e dans le cours de cet avis,
b. IVgard du cliaugement de caractero national, qu'on pourrait considdrer comme ayaut

OPINIONS OF MR. ADAMS. 169

ier having succeeded in reaching a port of the belligerent power to
vliieh she claimed to belong.

I have endeavored to give to this point the most careful and diligent
study of which I am capable. The result is, that I cannot arrive at
any conclusion satisfactory to myself which even implies a necessity to
assent to the proposition that success sanctifies fraud. All law recognized
by tbe conscience of civilized nations has for its only solid basis a con-
riction that it is based upon clear principles of right. In some
languages the word used to express these 'ideas is identical. At the same
time, I am not unaware that, in the progress of international relations.
there may happen from time to time occasions when a necessity will
arise to recognize a simple fact without reference to its nature. But
this must happen under circumstances which imply neither participation
nor approval. It ought not to be permitted to happen when these cir-
cumstances are clearly within control, and the motive to act should be
imperative as upholding the majesty of law.

In the case before us, it seems to me conclusively established by
evidence that, from the moment of inception to that of complete execu-
tion, the building, equipping, and dispatching of the vessel were equally
carried on by a resort to every species of falsehood and fraud, in order
to baffle and defeat the legitimate purpose of Her Majesty's government
to uphold the sanctity of her laws and make good her obligations to a
foreign nation with which she was at peace. Down to the moment of
arrival at Mobile, I fail to perceive any good reason for supposing that
the character the vessel took at the outset had not substantially adhered
to it to the end.

It lias always been to me a cause of profound regret that Her
Majesty's government had not seen tit to mark her sense of the indig-
nities heaped upon her by the flagrant vlolatioiL of her laws in these
cases, at least by excluding the vessels from her ports. Thus she \vould
have rescued her own honor and escaped the evil consequences which
have ever since attended her opposite decision. Such a course had not

ea lieu dans ce vaisseau par 1e fait de sa rc^ussite h atteiudre nn port de la puissance
bellig^raute j\ laqueHe 11 avait la prc^tentiou d'appartenir.

Je me suis eftbrc^ de cousacrer h ce point I'dtnde la pins soigneuse et la plus
attentive dont je sois capable. Le resultat en est que je ne puis arriver h aiicune
conclusion featisfaisante pour moi-mt'me qui inipliquflt la n<5cessit<5 do donner mon
assentiment h la inaxime que le succca sanctifie la Iraude. Toute loi reconnuc par la
conscience des nations civilisdes a, ponr base solide unique, la conviction qu'elle est
foud<^e surdes principes moraux de droit. Dans quelques langues le mot employ*^ pour
exprimer ces iddes est identique. En mdme temps je n'ignore pas que, dans le progres
de tons les rapport« interuatiouaux, il pent se presenter de t^mps en temps des
occasions oil une n(?ce8sit<S arrive de reconnaltre un simple fait sans dgard ii sa nature.
Mais il faut, pour cela, que celui-ci se prdsente daiys des circonstances qui n'impliquent
ui participation ni approbation. On ue devrait pas i)emiettre qu'il arrivdt, quand ces
circonstances sont ^videmment sous contr61e et que le motif cVagir serait impdrieux,
comme appuyant la majest<^ de la loi. Dans le cas que nous avons devant nous, il me
semble incontestablement dtabli par la preuve que, depuis le moment du commence-
ment ju8qu';V celui de rex<5cution compltite, la construction, lYquipement et Fexpddi-
tion du vaisseau out 6t6 ^galement conduits an moj-en de toute espece de mensonges
et de fraudes combines pour ddjouer et i>our annuler les desseins Ic^gitimes du
gouvernement de sa Majesty?, de maintenir la souverainete de ses lois et de remplir ses
obligations envers une nation <$trangere avec laquelle il ^tait en i)aix. Jusqu'au
moment de I'arrivde a Mobile, je ne puis trouver aucune bonne raison de supposer que
le caractl're pris par le vaisseau au commencement ne lui ait pas 6t6 attache esseu-
ticllement jusqu'a la fin.

J'ai toujours regrettt^ profond<5mcnt que le gouvernement de sa Majest(5 n^eflt pas
jng<5 convenable de montrer son sentiment i\ regard des indignit(58 accumul<5os sur lui
par la violation flagrante de ses lois, dans ces cas au moins, en excluant les vaisseaux
de ses ports. 11 aurait ainsi sauve son honneur et dchappd aux consequences fjlcheuses
qui out toujours 6t6 attach<Ses & sa ddcision contraire. Une telle d-marche u'avait pas

170 ARBITRATION AT GENEVA.

been without its advocates among jurists of eminence in the kingdom,
at least one of whom had recorded his opinion. A significant example
may be found in the papers before us. Such a course could not have
failed to maintain itself in the end by the simple force of its innate har-
mony with justice and with right.

To suppose that the moral stain attached to a transaction of this
character can be wiped out by the mere incident of visiting one place
or another, without any material alteration of the constituent body in-
spiring its action, seems to me to be attaching to an accident the virtue
which appertains solely to an exercise of the will. 1 cannot, therefore,
concede to this notion any shade of weight. The vessel called the
Florida, in my view, carried the same indelible stamp of dishonor from
its cradle to its grave ; and in this opinion I have been happy to dis-
cover that I am completely sustained by the authority of one of the
most eminent of the jurists of my own country who ever sat in the
highest seat of her most elevated tribunal. I find it recorded in one of
the volumes submitted to our consideration by the agent of Her
Majesty's government, from which I pray for leave to introduce the fol-
lowing extract, as making an appropriate close : •

"If this were to be admitted," says Chief Justice MarsliaU, "the laws for the preser-
vation of our neutrality would bo completelj' eluded. Vessels completely fitted in our
ports for military expeditions need only sail to a belligerent port, and there, after ob-
taining: a commission, go through the ceremony of discharging and re-enlisting their
crew, to become perfectly legitimate cruisers, purified from every taint contracted at
the place where all their real force and capacity for annoyance was acquired. This
would, indeed, be fraudulent neutrality, disgraceful to our own Government and of
which no nation would be the dupe."

For the reasons herein specified, I have come to the conclusion in the
case now presented of the Florida, that Great Britain, by reason of her
omission to use due diligence to prevent the fitting-out, arming, and
equipping within its jurisdiction, of that vessel, and further of her omis-
sion to forbid the crew of that vessel from making use of its ports or

manqu6 d'avocats parmi les juristes les plus distinguds du royaume, dont un an moins
a donn<^ son avis. On pent en trouver un exemple significatif dans les documents qui
Bont duvant nous. Une telle conduite n'eiit pas manqud do se souteuir li la longue par
la simple force dc son harmonic inn<5o avec la justice et le droit.

Supposi'r que la tacho morale imprim<5e ii une transaction de cette nature puisse
f^tre ellacc^c par lo simple incident d'uue visito i\ un lieu ou j\ un autre, sans aucun
changcment materiel du corps constituaut qui inspire sa conduite, me semble attacher
h un accident hv vcrtu qui n'appartient qu'jl un exercice do la volont<S. Je ne puis, par
con8<^<lucnt, accorder a cette i([6e aucuue e8pt»ce de valeur. Le vaisseau nonime le
Florida, a mon point de vue, porta le memo cachet inddlebile de ddshonneur de son
berceau jusquVi sa tombe. Et j'ai 6t6 houreux de trouver que jo suis entiferement
appuyd dans cette opinion par I'autoritc d'un des juristes les plus dminents de mon
pays ([ui ait jamais occup^j le sic^ge le plus haut de son tribunal lo plus <!^lev<5. Je la
trouve rapportee dans nn des volumes soumis h notre exameu par Talent du
gouvernement de sa Majest<^, dont je vous prie de me permettro de presenter Textrait
suivant conune faisant une fin bien appropride j\ cot avis:

"Si Ton admettait ceci, (dit le Chief Justice Marshall,) les lois pourle mainticn de
notre neutral ito seraient completement ^'lud(5e8. Des vaisseaux ontiiToment equii)^s
dans nos ports pour des operations militaires n'ont quVi fair© voile jusqu'a un port bel-
ligc^rant, et la, aj)res avoir obtenu une commission, ii faire la c<5r<5uionie de licencier et
de ri^enr^lor leur t'quipage, pour deveuir des croiseurs parfaitement l<5gitimes, purifies
de toute tache coutractoe dans le lieu on touto leur force et leur pouvoir de nuire out
6t6 ac([uis. Ce serait en v(^rit<5 une neutrality fraudnleuse, d<^shonorante pour notre
propre gouvernement, et dont aucuno nation ne serait la dupe."

Por.r les raisons sp^^cifiees ci-dessus, je suis arriv6 i\ la conclusion, dans le cas main-
tenant present<5 du Florida, que le Grande-Bretagne — en omettant de fairo usage des
'*dues diligences " pour emp6cher I'arrangement, rarmement et r^^quipement, dans sa
jurisdiction, do ce vaisseau ; et de plus, en omettant de defendre j\ IV^iiuipage de ce
vaisseau de se servir do ses ports ou do ses eaux comme base d'operations contre les

OPINIONS OF MR. ADAMS. 171

waters as the base of operations against the United States, has failed
tofullill the duties set forth in each and every one of the three rules
prescribed to the arbitrators as their guide under the terms of the
treaty of Washington.

V. — THE ALABAMA.

On the 24th of June, 1802, Mr. Adams addressed a note to Earl Rus-
sell, remhiding him of the representation he had made some Aiabauiu
time before touching the equipment of the Oreto, and allud-
ing to the verification of his apprehension of its true destination.

In point of fact, Lord Russell had had in his hands for a fortnight
a copy of a letter of Commander McKillop to the secretary to the admi-
ralty, which has already been quoted in the memoir on the Florida, as
clearly indicating the character of that vessel and its destination.

Her Majesty's government had then had no reason to doubt as to the
nature of the vigilance which had been promised on the part of her offi-
cers at Liverpool, or of the manner in which it had been deceived.

Mr. Adams then proceeded to call his lordship's attention to another
and more remarkable case of a vessel in process of construction at
Liverpool, in the*yard of one of the most noted building firms of that
plaee, intended for the same purpose as designated in the case of the
Oreto, and controlled virtually by the same parties.

31r. Adams at the same time transmitted to his lordship a letter from
Mr. Dudley, the consul of the United States at Liverpool, addressed to
himself, giving all the information touching the matter he had been
able to collect.

On the next day Mr. Hammond, on behalf of his lordship, addressed
one letter to the secretary to the treasury, requesting immediate inqui-
ries to be made respecting this vessel, &c., in the customary form.

At the same time he addressed another to the law-officers of the
Crown, transmitting the note of Mr. Adams and the letter of Mr. Dud-
ley for their consideration, and asking for such observations as they
might have to make on the subject.

^tats-Uuis — n'a pas renipli, daus ce cas, les devoirs exposes daus les trois regies prescrites
aux arbitres coiuuie guides d'apres les teriues du traite de Wjishiugtou.

i.'alabama.

Lc 24 juiu 1862, M.Adams adressa iine uote an Comte Russell, lui rappelant la reprd-
sentatiou quMl avait faite quelque teuipsauparavant touchant r<5quipeuient de TOreto,
et faisaut allusion d. la v^riiicatiou de sou apprdhensiou sur la vraie destiuatiou de
celui-ci.

En effet, Lord Russell avait eu en mains, pendant une quinzaine de jours, une copie de
la lettre du commandant, McKillop, an secretaire de I'amirautd, qui a doja 6t6 citdo
dans le m<5moire sur le Florida comnio iudiquant clairemeut le caractere de ce vais-
seau et sa destination.

Le gouvernement do sa Majest<^ n^avait done eu aucune raison pour douter de la
naiure de la vigilance qui avait 6t6 promise de la part de ses officiers ii Liverpool, ni
de la maniere dont il avait 6t6 tromp^.

M. Adams attira ensuite I'attention de sa seijcneurie sur un autre cas, plus remarqua-
ble, d*un vaisseau en construction ji Liverpool, dans le cliantier d'un dcs plus fameux
constructeurs de cette ville, destinij an meme but que celui qui a et«5 indiqud dans le
COS de rOreto et contrfild elfectivemeut par les memes parties.

M. Adams transmit en memo temps a sa seigneurie une lettre de M. Dudley, le consul
des ^tats-Unis j\ Liverpool, adress^e li lui-m^;me, donnant tons les renseignements
touchant cette attaire quMl avait pu rasseinbler.

Le lendemain, M. Hammond, au nom de sa seigneurie, adressa une lettre an secre-
taire de la trr'sorerie, dans la forme ordinaire, demandant qu'on fit immediatement une
enqmHe j\ lYgard de ce vaisseau.

Ku m<^me temps il adressa une lettre aux avocats de la couronne, en transnicttant
la note de M. Adams et la lettre de M. Dudley, pour qu'elles fussent prises en considd-
ratiou, et en demandant les observations quails pouvaient avoir ^ faire sur ce sujet.

172 ARBITRATION AT GENEVA.

It is presumed that this last measure was a precaution additional to
anything that had been done in the case of the Oreto.

Five days later a report was made by the law-ofificers, in reply to this
application, in substance to this effect:

If the representation made by Mr. Adams is in accordance with the facts, the build-
lug and equipment of the steamer is a manifest violation of the foreigu-enlistment
act, and steps ought to be taken to put that act in force, and to prevent the resttel from
going to sea.

This was a great step in advance of anything that had taken plac« in
the former case. It fully recognized the duty of prevention, and strongly
recommended that proper steps be taken by the authorities at Liver-
pool to ascertain the truth, and if sufficient evidence could be obtained
to justify proceedings under the act, to take such i)roceedings as soon
as possible.

Nothing could be more satisfactory than this direction. If it had
been carried out in its spirit by the parties who had it in charge, there
is little reason to doubt that the policy pointed out would have been
effected.

But it appears more than doubtful whether this injunction produced
the smallest effect upon the parties concerned; for it could hardly
have reached its destination before the time at which the report of the
commissioners of the customs was made up. That report was clearly
made in answer to the earlier letter of Mr. Hammond of the 25th ; for
the reports of Mr. S. Pric^ Edwards, the collector, and of E. Morgan,
surveyor at Liverpool, dated the 28th instant, inclosed therein, precede
by two days the opinion of the law-ofScers. No allusion appears to be
made to it in this reply. The substance of it is the admission of the
fact that the vessel is intended for a ship of war. But no evidence has
been produced of its destination sufficient to justify proceedings, and
unless the consul, Mr. Dudley, should be able to submit such evidence
to the collector of the port, any attempt to seize the vessel would end
only in entailing upon the parties concerned very serious consequences.

On pent prdsumerque cettederui^ro mesure <5tait une precaution eni)lu8 de tout ce qui
avait et6 fait dans le cas de TOreto.

Ciuq jours plus tard, un expos<^ fut fait par ces "officiers," en r^ponse h cette demaude,
contenant en substance ce qui suit:

**Si la repri^scutation faite par M. Adams est d'accord avec les faits, la construction
et Vdquipeiuent du steamer sont une violation manifeste du foreign euUstment act, et
des mesures doiveut 6tre prises i)0ur faire ex6cuter cot act et pour empccher h vaijfseau
de partir."

C'dtait un grand progr^s sur tout ce qui avait eu lieu dans le cas pr6c<^dent. Cet
expo8<5 reconnaissait pleinement le devoir depn^'fiiir, et recommandait fortemcnt que
des mesures couveuables fussent prises par les autoriti^s de Liverpool pour constater la
v^ritd, et si I'ou pouvait obtenir des preuves suffisantes pour justifier des poursuites
conform^uient {\ I'acte, pour prendre cos mesures aussitAt que possible.

Rieu ne j)ouvait otre plus satisfaisaut que ces directions. Si elles avaient 6t6 suivies
dans cet esprit par les parties qui en dtaient charg(5es, il y a peu de motifs de douter
que la couduite indiquee aurair 6t6 efficace.

Mais il paratt jdus que douteux que cette injonction produislt le moindre effet sur
ceux qu'elle concernait. Car elle aurait t\ peine pu atteindre sa destination avant
I'dpoque oil fut <^crit le rapport des commissaircs des douanes. Ce rai)port fut 6videm-
meut fait en r«^ponse il la pr<^cddente lettre de M. Hammond, du 25, car les rapports de
M. S. Price Edwards, le receveur, et de M. E. Morgan, surveyor de Liverpool, dat<5s du
28, qui y <^taient renferm<^s, precedent de deux jours I'avis des "otJiciers do la loi." II
n\y est fait aucune allusion dans cette rdpouse. La substance en est I'admission du
fait que le vaisseau est destind :\ C^tre un vaisseau de guerre ; mais qu'aucune preuve de
sa destination n'a 616 produite qui suffise h justifier des poursuites, et, qu^il moius que
le consul, M. Dudley, ne pftt pro<luire une telle preuve au receveur du port, toute ten-
tative de saisir le vaisseau u'aboutirait qu'a attirer sur les poursuivants des cousd-
quence^ tr6s-s6riou8e8.

OPINIONS OF MR. ADAMS. 173

The report of the commissioners terminates in the customary form,
to wit:

We beg to add that the oflHcers at Liverpool will keep a strict watch on the vessel,
and that any further information that may be obtained concerning her will be forth-
with reported.

On a first examination this paragraph would seem by its terms to
iraplj a promise in the nature of a pledge of constant vigilance ; bat
upon comparing the phrases with the almost identical ones used in the
preceding cfise of the Oreto, and observing the results which happened
in both cases, it must be inferred that it was regarded by the parties
only as one of the established forms of ending a dispatch.

A copy of this report was, on the 4th of July, transmitted to Mr.
Adams, with a request that the United States consul at Liverpool, Mr.
Dudley, should be instructed to submit to the collector of the customs
such evidence as he might possess tending to show that his suspicions
as to the destination of the vessel were well founded.

The name of this collector was S. Price Edwards, and I have already
had occasion to point out in my examination of the destination of the
Oreto the very peculiar situation in which he was placed by the repre-
sentations on that subject made by him at that time to Her Majesty's
government.

Mr. Dudley, in accordance with Mr. Adams's instructions, accordingly
addressed to Mr. Edwards, on the 9th July, a letter furnishing a long
array of details as to the nature and source of the information he had
obtained, and providing, as it would appear, abundant means of prose-
cuting further inquiries if there were any inclination so to do.

To this letter Mr. S. Price Edwards replied by promising that he
would submit it to the consideration of the board of customs. He did
Dot fail, however, to add an expression of opinion that the statements
made by him must, first of all, be substantiated by evidence furnished
by himself.

But this Mr. S. Price Edwards happened to have received from the

Le rapport des coramiasaires se termine dans la forme ordinaire, c^est-ii-dire :

*'Nons prions d'ajouter que les officiers de Liverpool exerceront iine surveillance
8<?verc sur le vaisseau et que tout renseignement ult^rieur qui pourrait ctre obteuu le
concemant sera rapports sur le champ."

X nn premier exauien, ce paragraplie semblerait par les termes impliquer nne pro-
mes5ie dans le genre d'nn engagement d'uue vigilance constante ; mais en comparant ces
phra«es, j\ celles, presqu'identiques, qui sout employees dans le cas prde6dent de
rOreto, et en remaniuaut les rdsultats arrives dans les deux cas, on pent en conclure
qu'il n'etait consid^r<^ par les parties que comme une des formes <?tablies pour terminer
une dopi^che. Une copie de ce rapport fut transmise, le 4 juillet, h M. Adams, avec une
demaude que le consul des £tats-Linis b, Liverpool Hit charg^ de soumettre an receveur
des doaanes telles preuves qu'il pourrait possdder teudaut ii moutrer que ses soupyons
k r<^gard de la destination du vaisseau ^taient bien fond^s.*

Le Dom de ce receveur dtait S. Price Edwards, et j'ai d6jh en Toccasion d'indiquer,
dans mon examen de la destination de TOreto, la situation tr^s-particnli^re dans
laquelle il <5tait plac6, par les representations qu'il tit ^ ce sujet, h cette ^poque, au
gonvernenient de sa Maje8t<5.

M! Dudley, selon les instructions de M. Adams, adressa en consequence h M. Edwards,
le 9 jnillet, nne longue lettre, fournissant une s^rie de renseignemeuts sur la nature et
les sources des informations qu'il avait obtenues, et donnaut, k ce qu'il semblait, des
mojens abondants de poursuivre des enqudtes ulterLeures s'il y avait quelque disposi-
tion k en faire.

A cette lettre M. 8. Price Edwards rdpondit en promettant qu'il la soumettrait i\
Fexamen des comniissaires des douanes. II ne manquait pas cependant d'ajouter une
expression de son opinion que les affirmations de M. Dudley devaieut 6tre avant tout
v^rifides par des preuves fouruies par lui-m6me.

Mais ce M. S. Price Edwards se trouvait avoir reyu, du mdme consul, environ trois

174 ARBITRATION AT GENEVA.

same consul, Mr. Dudley, nearly three weeks before, a letter giving
many details strongly pointing to the destination of this vessel, which,
so far as appears irom these papers, must have been entirely suppressed.
It has been published in one of the latest volumes of the ])apeTS ap-
pended to the American case. I can only account for this omission upon
the supposition that, as Mr. Dudley's letter addressed to Mr. Adams on the
following day had found its way to him soon after, he inferred that a
notice of the latter would do for both. The fact really is, however, that
the evidence is of a different kind, and, though not decisive in itself,
was calculated to open a way to further investigation if such were de-
sired.

The letter of the 9th July was referred to the solicitor of the customs, Mr.
Hamel, who replied in the customary manner — " insufficient evidence."

On the 15th of July the commissioners of customs wrote to the
collector of Liverpool to the same effect, and on the 17th copies of
papers were sent to the treasury for the information of the lords com-
missioners.

Thus it appears that three weeks had passed since the injunction laid
upon the authorities of the customs at Liverpool to ascertain the truth,
and not a syllable had been returned to them excepting of a negative
character. No sufficient evidence of intention offered to them, and no
disposition to search for any ; that was the sum of the whole matter.

Tired of waiting for the action of Her Majesty's government, Mr.
Adams, on the 17th July, wrote instructions to Mr. Dudley to employ a
solicitor, and get up affidavits to lay before the collector. That officer had
had abundant reason to know, in the case of the Oreto, how difficult it
was, in a city swarming with sympathizers in the success of these ad-
ventures, for him to find persons who, however clearly they might know
what was going on, were not at all disposed to subject themselves to the
odium attending a public declaration of the truth. He did, however,
by the 21st, succeed in procuring six persons ready to take their de-
positions before the collector. The process was completed, and the col-

Bemaines auparavant, uno premiere lettre renfermant force details, donnant' h enteudre
qu*il s'agissait de la destiuatiou du vaisseau, qui, antaiit qiiMl ressortdecesdociinientHS,
doiveut avoir ^t^ entierement 8uppriui<5s. lis out 6t6 pyblids danslcs deruiers volumes
des documents aunex<^8 i\ I'exposi^ auK^ricain. Jo ue puis expliquer cetto omission que
par la supposition que, comme la lettre adressde h M. Adams le lendemaiii lui dtait
parvenuo bient6t apres, il en couclut (pi^iue meution de la derni^re valait pour toutes
les deux. Le fait en r{^alit<5 est ccpeudant que la preuve est d'uue espece ditfdi-ente, et
quoique nou dc^cisive en elle-mt^me, elle dtait calcul^ie pour ouvrir la vole ii des recher-
clies ult<?rieure8, si on voulait les faire.

La lettre du 9 juillet fut envoyoe au soUiciteur des douanes, M. Hamel, qui r^pondit
de la mani^re ordinaire, ''preuves iusuttisautes."

Le 15 juillet, les commissaires des douanes <5cTi virent au receveur de Liverpool dans le
mcme but, et, le 17, des exe^jiplaires des documents furent envdy^Ss il la trc^so erie i>our
I'information des lords commissaires.

Ainsi il parait que trois semaines s'dtaient pass<!^cs depuis que rinjonction avait 6t6
faite aux autorit<58 des douanes de Liverpool de s'assurer des faits, et pas nne syllabe
n'avait 6t6 renvoyee, sice n^est d^un caracttyre ut'^^atif. " Point de preuves suflisant^s
dMnteutiou " ne leur <5taieTit foumies, et point de disposition ii eu chercher eux-mSmes.
Voila le r<^sum<? de toute TafFaire.

Lassd (I'atteudre Taction du gouvernement de sa Maje8t<S, M. Adams 6crivit, le 17
juillet, des instructions a M. Dudley afin d'employer un "avoud" et de faire faire des
d^^clarations ocrites et affirmdes par sermeut i\ porter devant le receveur. Cet officier
avait eu des raisons nombreuses pour appreudre h connaltre, dans le cas de TOreto,
combien il lui dtait difficile, dans une villo fourmillant de gens sympathiques au succ^s
de ces aventures, do trouver des ])er8onnes qui, quoiqu'elles pussent savoir clairement
ce qui se jKissait, fussent le moins du niondo disposdes ^ s'exposer i\ Todieux qui <5tait
attaehd b, une declaration publique de la vdrit<^. II rdussit cependant, le 21, k so pro-
curer six persounes prestos it ddposor devaut le receveur, L'aifaire fut termin6e et le

OPINIONS OF MR. ADAMS. 175

lector transmitted them on the 22d to the commissioners of customs,
who handed them to the solicitor, who promptly returned his customary
reply — "no sufficient evidence." But the United States authority might
try to stop the vessel at their own risk.

But there were two influences now converging from different quarters
which were destined to threaten the sluggish officers of the customs
with responsibilities much greater than their solicitor had labored to
throw upon the United States.

The one proceeded from the United States agents, who had assumed
the entire labor of procuring eight depositions to prove what should
have been established by the energy of Her Majesty's government it-
self—- the intent and destination of the gunboat. But they seem scarcely
likely to have had any chance of weight if supported exclusively by the
authority of their judgment alone. The first symptom now appeared of
the possibility of a doubt of the policy which had been marked out by
the customs solicitors. The papers had been submitted to the consider-
ation of an eminent gentleman of the law, a Queen's counsellor, Mr. R.
P. Collier, who, in reply, gave the following as his deliberate opinion :

I have perused the above affidavits, and I am of opinion tliat the collector of cus-
toms would be justified in detaining the vessel. Indeed, I should think it is his duty
to detain her, and that if, after the application which has been made to him, supports
by the evidence which has been laid before me, he allows the vessel to leave Liverpool,
he will incur a heavy responsibility, of which the board of customs, under whose direc-
tions he appears to be acting, must take their share.

The last sentence was the most significant of all. It was this :

It well deserves consideration whether, if the vessel be allowed to escape, the Fede-
ral Government would not have serious grounds of remonstrance.

The idea that, instead of a responsibility for stopping the vessel
thrown upon the United States, there was to be a responsibility to be
imposed upon the customs authorities and their superiors in office, ap-
pears never to have entered into their conception. It was like a thunder-
bolt in a clear sky.

receveur transmit ces dispositions, le 22, aux commissaires des donanes, qui les remirent
au solIicit'Cur, qui envoya promptement sa rdponse ordinaire: " point de preuves suffi-
santes; mais quo les £tats-Unis pouvaient essayer d'arrdter le vaisseau ti leurs risquea
et pdrils."

Mais il y avait deux influences convergeant alors de diflr«5reuts points, qui dtaient
destinies h menacer le^ paresseux officiers dos donanes d^une responsabilitd bcaucoup
plus grande que celle que leur solliciteur avait cherch<S h rcjeter sur les fitats-Unis.

L'une procddait des agents des l^tats-Unis qui avaient assumd toute la charge de
procurer huit depositions pour prouver ce qui aurait dd etre <$tabli par I'euergie du
gouvernement de sa Majestd lui-m^me, le but et la destinatiou de la canon uiere.
Mais il semble peu probable^ qn'elles auraient eu aucune valeur si elles avaient ot<$
appuydes exclusivement par I'autoritd de leur propre jugement senl. Alors parut le
premier signe de la possibility d^un doute sur la couduite qui avait dte indiqude par
les solliciteurs des donanes. Les documents avaient 6t6 soumis k rexamcu d'uu
dminent jurisconsulto de la Reine, M. K. P. Collier, qui eu repouse donna ce qui suit
corame son avis rdtidchi :

"J'ai ctudid les affidavits ci-dessus, et je suis d'avis que le receveur des douaucs
ferait bien de retenir ce vaisseau. En eff*et, je penserais que c'est son devoir de le
retenir, et que, si apr^s la demande qui lui a 6t6 faite, appuyde par les preuves qui ont
dtd mises devant moi, il permet au vaisseau de quitter Liverpool, il encourra une
lonrde resi>ousabilitd. dont le * board of customs/ [sous les directions duquel il semble
agir, doit preude sa part."

La demidre phrase dtait la plus significative de toutes. La voici : '' II convient bien
de considdrer si, dans le cas ou on laisserait dchapper le vaisseau, le Gouvernement
fdddral n'aurait pas de sdrieux motifs de remont ranees."

L'iddo qu'au lieu d^une responsabilitd pour la saisie du vaisseau rejotde sur les fitats-
Unis il devait y avoir une responsabilitd h imposor aux autoritds des douane^s et ii,
leurs supdrieurs, semble alors ^tre entrde pour la premitire fois dans leur esprit. Co fut
comme uu coup do tounerre dans uu ciel serein.

176 ARBITRATION AT GENEVA.

The assistant solicitor of customs immediately sought to put himself
under the protection of the law-officers of the Crown. Meanwhile the
same papers had been transmitted by Mr. Adams to Lord Kussell, and
by him likewise referred to the law-officers of the Crown.

These papers reached their destination at different dates ; those sent
from the customs on the 23d July, in the evening, while those from Mr.
Adams got to them three days later, though his note appears to have
be^n dated on the 24th. It is obvious that this difference could have no
effect in delaying their decision. But one additional dei)osition was
added, which could scarcely have done more than confirm the result.

Five whole days passed before a decision was returned. Meanwhile
the vessel was rapidly getting ready to depart. On the 28th, Mr. Dud-
ley's solicitor sent a communication to the board of customs, to the effect
that they had every reason to believe the vessel would go on the 29th.

This letter did not reach them until the 29th. The vessel sailed on
the 29th. That intelligence likewise was obtained from the same source.
Meanwhile what becomes of the profession, made on the 1st of July by
the commissioners of customs, that "a strict watch^ should be kept on
the vessel, and that any further information that might be obtained con-
cerning her would be forthicith reported.''

To be sure, on the 1st of August, Mr. S. Price Edwards addresses a
letter to the commissioners of customs, in which appears the following
significant line, "The board will see that the vesel has left the port."
How they could have seen through the spectacles pi^sented by that offi-
cer remains to be explained. The surveyor, however, is more communi-
cative. On the day before he gravely states that he had followed the
collector's directions to keep a strict watch on the vessel. He is confi-
dent she had no ammunition on board. He had visited the tug Her-
cules, where he found a considerable i)ortiou of the crew, some of whom
were on their way in that vessel to join the gunboat. Mr. Dudlej' had
given the same information to the collector. Even then the vessel could
have been traced and stopped by an energetic interposition of govern-

Uaide-solliciteur des donanes chercha iinm^diatement f^ se raettre sous la protection
devS ofticiers de la couronne.

Pendant ce temps les inemes documents avaient 6i6 transmis par M. Adams j\ Lord
Russell, et par lui dgalement sounds i\ IVxamen des ofticiers de la couix>niie. Ces
documents atteij^nirent leur destination ji des dates dift<5rentes. Ceux envoyes par les
douanes, le 23 juillet an soir, taudis que ceux de M. Adams leur parvinrent trois jours
plus tard, cpioique sa note semble avoir 6x6 dat<^e du 24. II est clair que cette
dirtt^reuce ue pent avoir nullement retard*^ leur dt^cision. Uue dc^position additionnello
fut ajout<5e plus tard qui pourrait avoir i\ peiue affects niatt^riellement lo resultat.
Cinq jours en tiers se passi^reut avant quHiuo decision fut anYioncde. Pendant ce temps
le vaisseau se pn?parait au d<5part tres-nipideiueut. Le 28 le solliciteur de M. Dudley
cnvoya une communication aux commissaires des douanes & Tetfet : quMls aieut touto
raison de croire que le vaissean partirait le 29. Cette lettre ne leur parvint que le 29 ;
le vaisseau sortit le mdme jour. Cette nouvelle fut dcalement obtenue de la m^me
source. Pendant ce temps, que devient la dt^claration, faite le 1**" juillet par les com-
missaires des douanes, qu'une surveillance stricte serait exercc^e sur le vaisseau et que
tout« information ult^rieure qui pourrait ^tre obtenue le conccruant serait rapport^o
8Hr le champ f

Sans doute, le I*' avril, M. S. P. Edwards adresse une lettre aux commissaires
des douanes, dans laquelle se trouve la ligne signiticative suivante: '*Le froard verra
que le vaisseau a quitt<5 le port." Comment ils aunuent pu voir ;\ travers les lunettes
pr<5sent<^es par cet otflcier, c'est ce qu'il reste !\ expliquer. Le sMrreyor cepeudant est
plus eommunicatif; la veille, il expose gravement qu'il avait sHivi les dii-ections da
receveur, d'exercer uue stricte surveillance sur le vaisseau. II est persu;Mk^ quMl
n^avait point de munitions si bord. II avait visits le remorqueur, I'Hercule, et il avait
trouv<S, dans ce vaisseau, une partie cou8id«5rable de r«5(iuipage, dont quelques hommes
etaienteu route pour joindre la canonniere. M. Dudley avait douu<S le mfMue ren-
seiguement au receveur. M6me alors, ce vaisseau aurait pu t*tre suivi et arr^td par
uue intervention ^uergiqne de Tautorit^ du gouvernemeut. Les commissaires des

OPINIONS OF MR. ADAM8. 177

raent authority. The commissiftners of castoms preferred to send harm-
less telegraphic orders to Liverpool and Cork, to Beaamaris and Holy-
head, which looked like dispatch, but*coald by no reasonable probability
have been of any avail. And- the collector could promise that, ^' should
opportunity offer, the vessel should be seized in accordance with the
directions given." It is presumed this must have meant if the vessel
should voluntarily present itself, and not otherwise. On a calm exam-
ination of the evidence presented to us respecting the measures taken
by the authorities charged with the duty of prevention, it really looks
as if they had chosen to look any way for it rather than the right way.

Upon a careful comparison of the language and the action of Mr. Ed-
wards, the collector, as it has been heretofore explained in my observa-
tions upon the case of the Florida, with the course taken by him in this
case, it is very difficult in my mind to resist the suspicion that he was
more or less in direct sympathy with the designs of the insurgents, and
not unwilling to accord to them all the indirect aid which could be
supplied by a purely passive policy on his part. Very surely, if he had
wished actively to promote their ends, he could scarcely have hit upon
more effective means than those to which he resorted.

It is alleged that the escape of this vessel was effected earlier than
originally contemplated, by reason of the reception, by the managers, of
intelligence from London of the intent of the government to detain her.
This statement appears in the deposition of one of the persons who served
as an officer on board from the start and during the whole of her first
cruise. Certainly a delay of five whole days in announcing a decision
might furnish ample opportunity for active sympathisers, of whom there
was notoriously an abundance in that capital, to watch and report every
symptom of change that might be gathered from sources of authority.
Even the fact of the long delay itself might be construed as ominous.
Of the causes of that delay no absolute knowledge has ever yet been
colnpletely obtained. Neither is it deemed expedient here to enter into
any examination of it. It is sufficient to the present purpose to say that

donaues pr^f^r^reut envoyer d'innocents ordres t^ldgraphiques h Liverpool et k Cork,
k Beaumaris et k Holyhead* qni avaient Tair de ddpdches, mais qui, selon toute
probability, ue pureut 4tre cVancune utility. £t le receveur put promettre que, ''si
roccasioD s'eu pr^sentait, le vaisseau serait saisit conformdmeiit aux directions dou-
niSes.'' On doit croire qu'il voulait dire, si le vaisseau se pr^seutait volontairement, et
non autreraent. A. un examen calme de la preuve qui nous est soumise toncbant les
mesures prises par les autorit^s cbargdes du devoir de pr<Svention, 11 semble r^ellement
qn'elles avaient cUoisi de regarder partout ailleurs qu'au bon endroit.

£n comparant soigneusemeut le langage et la conduite de M. Edwards, le receveur,
comuie Je Pai expliqu^ auparavant daus mes observations sUr le cas du Florida, avec la
conduite tenue par lui dans ce cas, il m'est tr^s-difficile de r6sister au soupgon qu'il
^tait plus ou moius en. sympatbie directe avec les projets des insurg6s, et qu'il n'6tait
pas fiich^ de leur accorder tons les secours indirects qui pouvaient 6tre foumis par une
conduite pnremeut passive de sa part. Tr^-certainemeut s'il avait ddsir^ activemeut
les appuyer, il u'aurait gut>re pu trouver des moyens plus efficaces que ceux auxquels
il eut recours.

On.all^gue que Invasion de ce vaisseau s'ex^cuta plus t^t qu'on n'en avait en d'abord
rinteiition, en raison de la reception par les propndtaires de uouvelles de Londres de
Tintention du gouvernetnent de rarrSter. Cette allegation apparalt dans la deposition
d'une <)ee personnes qui remplit les fonctions d'officier ii bord d^s le depart et pendant
toute la dnr^e de sa premiere course* Tr^s-certainement nn ddlai de cinq jours entiers
dans Tannonce d'une decision pouvait fournir ample occasion aux partisans actifs, dont
U y avait une abondance notoire dans cotte villo, d'dpier et de rapporter tout sympt6me
de clian^ement qui pouvait 6tre recueilli des sources d'autoritd. Meme le fait du long
deiai luirmdme pouvait 6tre interpr<5t6 comme mena^ant. Quant aux causes de ce d61ai ,
aucune connaissance absolue n'a pu encore en 6tre compietement obtenue. II ne paralt
pas non plus opportnu d'en aborder ici Texamen. II sufflt pour le but actuel de dire

12 b

178 ARBITRATION AT GENEVA.

the omission to act in season was due t% causes wholly within the pro-
vince of Her Majesty's government to control, and that the failure is one
which must entail the responsibility for the great injuries that ensued,
not upon the innocent parties whom it was the admitted duty of that
government to have protected, but upon those through whom the inju-
ries became possible.

One portion of this transiiction having been, by the means already in-
dicated, with difficulty accomplished, the other portion remaining to
complete it met with no resistance whatever. The British steamer
Bahama, laden with the armament prepared for the vessel by Fawcett,
Preston & Co., and having for passengers the insurgent Americans and
others destined to command the cruiser, cleared on the 13th of August,
on the pretense of going to Nassau. The English barque Agrippina
almost simultaneously left London, ostensibly for Demerara, laden with
coals and munitions of war.

Somewhere about the third week in August the three steamers met at
Angra Bay in the Azores, and under the sanction of the British flag
this great fraud i^eached the point of its full accomplishment The hos-
pitality so freely extended to strangers of all nations in that kingdom,
at 6nce so enlightened and so energetic, had been basely abused, sJmost
with an intent, not merely to gain an undue advantage on the ocean,
but to sow the seeds of dissension between it and a kindred nation with
which it was under the most solemn obligations to keep the i>eace.

Thus it was that the vessel ^hich then first received the name of the
Alabama commenced her reckless career of destruction on. the ocean.
Everything on board of her was of British origin, excepting a few of
the directing spirits bent on making use of the means thus placed in
their hands to do an injury to their fellow-countrymen in America which
they could have compassed in no other possible manner.

I pass over the minor details qf the mode in which supplies of coal
wer^ subsequently obtained exclusively from British source^s as matters
of relatively little consequence, and come to what appears tp me the
next essential point in the narrative.

que la u<^g]igence li aeir an moment con vec able fut dfte ^ des canses qu'il ^tait en
ti^remeut dii ressort du gouvernement de sa Migest^ de contrAIer, et que la faute est
de nature k imposer la responsabilit^ des grands dommages qui s^ensuivireut, non pas
aux parties innocentes, qtie le devoir reconnu de ce gouvournement 6tait de prot^ger,
mais k ceux par qui les dommages devinrent possibles.

Une partie de cette affaire ayant 6t6 apeomplie avec difficult^ par lee mojens d<^j^
indiquds, Tautre partie qui restait k accomplir ne rencontra nulle part de ii^istance.
Le steamer anglais Bahama, cbarg^ de Tarmeraent pr^par6 pour le vaissean par Fawoett,
Preston et C'% et ayant pour passagers les insnrg^s am^ncains et d'autres destine ^
commander le croiseur, s'acqnitta le 13 aofit, sous pr^text« d'aller h Nassau. La barque
auglaise Agrippina quitta Londres presque simultau<^ment, en apparence pour le
Danemark; cbarg^ de cbarbon et de munitions de guerre.

Vers la troisi^me seniaine d'aofit, les trois steamers se rencontr^rent ii Angra Bay,
aux Azores, et« sous la sanction dn pavilion britannique, cette grande fraude atteignit
le point de son entier accomplissement. On avait honteusement abus^ de rhospitaiit^,
si lib^ralement <^tendue aux strangers de toute nation, dans ce royaume k la fois si
i^claird et si ^nergique, presqu'avec Fintention, non-seulement d*obtenir nn avantage
ilU'gitime sur Foc^^au, mais de semer des genues de dissensions entre lui et une nation
parente, avec laquelle il i^tait dans Tobligntion la plus solennelle de garder la paix.
Ce fut ainsi que le vaisseau, qui, alors pour la premiere fois, re^ut le nom de TAlabama,
eommenya sa carri^^e effr^n<^e de destruction sur f oc<^an. Tout ^ son bord <^tait d*ori-
gine angl iise, except<5 quelques-uns des esprits dirigeants, r^solus k fair© usage des
moyens aiusi mis entre leurs mains pour faire k leurs compatriotes en Am^rique un
dommage (ju'ils n'auraient pu accomplir en aucune autre maui^^e.

Je pa*i8e sur les petits d(^tails dn mo<le par leciuel de subsides de cbarbon furent en-
suite obteuus excliisivement de sources britauniques, comme objet de pen d'mportance
relativenieut, et j'eu tiens k ce qui me parait cti*e le i>oiut suivaut esseutiel dansce
r(?cit.

L OPINIONS OF MR. ADAMS. 179

I On the 11th of January, Captain Semmes, whilst on bis cruise oft' the
I coast of the United States, met the United States gun-boat Hatteras,
I and^ after a short engagement, sent her to the bottom. He was com-
pelled to take the prisoners on board, and having received six large
shot holes at the water-line, to navigate the ocean not without peril, in
qaest of a port of some sovereign powef or other in which he could not
oolj land his excess of numbers but likewise obtain the necessary means
wherewith to renew his capacity of cruising at all. The captain seems
to have reflected upon the matter carefully, and to have made up his
mind that, although at a very considerable distance from his actual
position, his best chance of a favorable reception would be in a port of
the kingdom whose laws had been so dexterously defied. He accordingly
made his way, not without great difficulty, to Port Royal, in Her M^'esty's .
islind of Jamaica. In his own statement of this transaction will be
most clearly discovered the state of his feelings on approaching this
crucial experiment:

This was the first English port I had entered since the Alabama had been comniis-
siooed, and no question whatever as to the antecedents of my ship was raised. I had,
in fact, brought in pretty substantial credentials that I was a ship of war, 130 of the
officers and men of one of the enemy's sunken ships. Great Britain had the good sense
not to listen to thb frantic appeals either of Mr. Seward or Minister Adams, both of
whom claimed, as the reader has seen, that it was her duty to stultify herself and
ignore the commission of my ship. Nor did Commoilore Dunlop say anything to me
of my destruction of British property, &.c.

From this passage it appears very clearly that the possibility of such
an obstacle had not been entirely out of the line of his apprehension.
If the objection had been made, it is altogether probable that the career
of this vessel would have been terminated in a manner very difl'erent
from that which subsequently happened. But it was not raised. Gov-
ernor Eyre, who was then the ruling authority, appears to have acted
with some hesitation, and to have been mainly determined by the ob-
vious necessity of landing the great number of prisoners as a pure act

Le U Janvier, le capitaine Semmes, pendant qn'il croisait le long de la cAte des £tats-
Unis, reucontra la canonni^^e des Ltats-Unis le Hatteras, et, apr^s un court engage-
^Dt, la coula h fond. II fnt oblig^ de prendre les prisonniers 4 bord, et, le vaisseau
tyant six grand trouB de boulets k fleur d'eau, il dut navigner sur Pocdan, non sans
P^ril, en quete ,d'nn port d*une puissance souveraine quelconque, dans leouel il pilt,
non>(ienIement mettre'^ terre le surcrolt de ces personnee, mais au8si obtenir les moyens
n^oessaires pour se remettre en <^tat de croiser, ce qu'il ne pouvait pas faire sans cela.
Le capitaine parait avoir r^fl^^hi soigneusement sur ce sujet, et avoir d<^id^ que, quoi-
<Ioe 4 nne distance tr^consid€rable de sa position actuelle, la meilleure chance pour
Ipi d'ane reception favorable serait dans un port du royanme dont les lois avaient 6t6
^ babilement bravdes. £n consequence, il se dirigea, non sans grande difficult^, vers
Port Royal, dans Tile de la Jamaique; appartenant k sa Majesty. Dans son propre ex-
p08^ de cette aifaire, on d^couvrira tres-nettemeut r<Stat de ses sentiments k rapproche
<i« cette ^preuve supreme :

"Ce fut le premier port anglais dans lequel j'entrais depuis que PAlabaraa avait 6t6

comoiissionu^, et ancune question sur les antecedents de mon navire ne fut soulev^e.

J'arais apporte en eft'et des lettres de crdance assez substantielles, prouvant que j'dtais

QD vaisseau du guerre : cent trente officiers et soldats de Tun des vaisseaux ennemis

eooie k fond. La Grande-Bretagne avait eu le bou sens de ne pr6ter Poreille ni aux

appels fr6neti<]ue8 de M. Seward ni k ceux du ministre Adams, qui tons deux soute-

naient,conime le lecteur Pa vu, que c'dt^it son devoir de se renier elle-mdme et dMgnorer

la commission de mon navire. Le commodore Dunlop ne me dit rien non plus an sujet

de la destruction par moi de propriet^s anglaise^,'' etc.

II ressort tn^s-clairement de ce passage que la possibility d^nn tel obstacle n'avait
pas 6t6 entitTement etraug^re k sea apprehensions. Si ^objection avait ete faite, il
esr tres-probable que la carriere de ce vaisseau aurait ete termiuee d'une mani^re bien
differeute de celle qui eut lieu dans la Ruite. Mais elle ne fut pas soulevee. Le gou-
venieur Ej're, qui etait alors I'autorite regnante, semble avoir agi avec quelqne hesi-
tation et avoir ete surtout determiue par la necessite claire de mettre k terre le j^rand

180 ARBITRATION AT GENEVA.

of humanity. The order sauctiening the repairs does not appear to
have been expressed by him in terms, and he immediately addressed a
letter to the Duke of Newcastle, the colonial secretary at home, submit-
ting the facts, Jind soliciting his approbation.

Oil the 14th of February, by a letter from Mr. Hammond, on behalf
of Earl Russell, that approbation api)ears to have been granted, though
not without reluctance, for it is followed by an injunction to get rid of
the vessel as soon as iwssible.

Nevertheless the evil was done. And by this proceeding Her Majes-
ty's goveniment appear, hi least to my eyes, practically to have given
their formal assent to the principle in international law that success
SANCTIFIES A FRAUD. In the memoir which I have heretofore prepared
•on the subject of the Florida, I have gone so much into the examination
of that question th^t there is no necessity for my dwelling upon it fur-
ther. I have always regretted that on this occasion Her Majesty's gov-
ernment failed to use the occasion for establishing a law on the ocean
most consistent with the principles of equity which should prevail ui)ou
men, and not unlikely, in the distant future, to inure to the benefit of
her own marine quite as largely as to that of any other nation

The next step in the order of events essential to the purposes of the
narrative was the arrival of Captain Semmes at Cape Town. But I do
not, at this time, propose to pursue the matter further, partly because
the consideration of it is likely to be renewed in examining the case of
the Tuscaloosa, and partly because the facts material to a judgment in
\ the case seem to me to have been already collected.
^ It thus appears that this vessel was built and fitted up with the intent
to carry on war with the United States, in the kingdom of Great Britain,
in violation of her laws, and that, notwithstanding the evidence of the
fact was established so far in the opinion of Her Majesty's law-ofl5cers
as to justify detention, by reason of the absence of due vigilance, not
without suspicion of connivance on the part of some of Her Majesty's
oflScers, and of an extraordinary delay in issuing the necessary orders at the

Dombre de prisoDDiore comme iin pur acte d^bumauit<^. L'ordre sanctionnant les re-
parations ne pairalt pas avoir ^t^ exprinx^ par liii fonuellement^^et 11 adressa iniin<Sdi-
atemeDt une lettre au duo de Newcastle, fiecr<5taii*e des colouies eu Angleterre, lui
soumettant les faits et sollicitant son approbation.

Le 14 fcvrier, par une lettre de M. Hammond, sur Tordre du Conite Kussell, cctte
approbation paralt avoir 6t6 accordec, quoique nou sans repugnance, car elle est suivie
d'nne injouction de faire partir le vaisseau le plus vite possible.

Neanmoins le mal <Stait fait, et par cette conduite le gouvernement de sa Majesto
serable, au moins h mes yeux, avoir donn^ pratiquement son assentiment formel au
principe de loi Internationale que le *^ succ^s sanctifie une fraude.'^ Dans le m<5moire que
j'ai pr^par^ d^j^ au si^jet du Florida, je suis entnS si longuement dans Texamen de oette
question qu'il n'y a nulle n6ce8site de m'dtendre davantage l^-deesus. J^ai toi^ours
regrett^ qu'^ cette occasion le gouvernement de sa Majesty ait manqu^ de saisir I'oc-
casion d't^tablir une loi maritime tout k fait en rapport avec les principes d*<^quite qui
devraient prdvaloir parmi les hommes, et ^ui vraisemblablement a\ I'avenir contri-
buera k Tavantage de sa propre marine aussi largement qn'i\ celui de toute autre na-
tion.

Le pas suivant dans Tordre des dvdnements essentiels au but de ce r^cit fut Varrivee
du capitaine Semmes ii Cape Town. Mais je ne me propose pas maintenant de pour-
suivre ce sujet plus longtemps, en partie parce que I'examen doit en ^tre renouvele en
examinant le cas du Tuscaloosa, et en partie parce que les faits qui doivent fournir la
luati^re d'un jugement dansce cas n^ semblent avoir 6t^ dejii rdunis.

II semble ainsi: 1^ que ce vaisseau a ^t^ construit et <^quip<$, avec Fintention de faire
la guerre aux £tats-Uuis, dans le royaume de la Grande-BretJigne, en violation de ses
lois ; 29 que, quoique la preuve du fait ait 6t6 <^tablie dans ^opinion des officiers de la
loi de sa Majesty assez pour justifier one saisie, en raison de Tabsence ^'des dues
diligences,'' non sans soup^on de connivence de la part de quelques officiers de sa
Majest<5 et d*un d<^lai extraordinaire i\ donner les ordres u<5cessaires au moment le plus

OPINIONS OF MR. ADAMS. 181

most critical moment, the vessel was suffered t« escape out of the juris-
diction. That her armament, her supplies, and her crew were all pro-
vided and transported from Her Majesty's kingdom without the smallest
effort to investigate their nature or their purposes. That though orders
were freely given for the detention of the vessel at any of the colonial
ports at which she might arrive, the first time that she did actually ap-
pear she was received and recognized with all the honors due to the
marine of a recognized belligerent power, without the smallest mani-
festation of dissatisfaction with the gross violation of laws that had
entailed upon Her Majesty's government a gravq responsibility to a power
with which she was at peace.

Thus it appears to me beyond a doubt that in the case of the Ala-
bama, Great Britain, by her omission to exercise due diligence in pre-
venting the fitting out of this vessel, which it had reason to believe in-
tended to cruise against a power with which it is at peace, has failed to
fulfill the duties set forth in the first article prescribed to the arbitrators
as their guide under the terms of the treaty of Washington. |

VI. — THE TUSCALOOSA.

In the series of papers which it has been my duty^ prepare upon
the vessels successively brought to the attention of the tri-
bunal, I have proceeded so far as to deduce from the evi- tu»c«iooi...
dence submitted one general rule, which I believe to be sound. This is,
that the assumption of a belligerency on the ocean, founded fexclusively
upon violence and fraud, can at no later period have any issue different
in its nature from that of its origin.

This rule must receive another illustration from the case of the Tus-
caloosa now before us. This was a merchant-ship belonging to the United
States, originally having the name of the Conrad, which was captured
by the Alabama on the 21st of June, 1863, on the coast of Brazil. Of the
case of rhat vessel, of its fraudulent origin, and of the unfortunate re-
cognition afterwards made of its character as a legitimate vessel on

critique^ ou permit an vaissean (V<$chapper k sa juridiction ; 'S° que son arniement, sea
subsides et son Equipage fnrunt tons fouruis et transport<Ss dn royaume de sa Majest^S
sans le plus petit effort ponr rechercher leur nature ou leurs projets ; 4® que, quoique
des ordres aieut 616 librement donuds pour la saisie du vaisseau dans quelque port des
colonies quMl pftt arriver, la premiere fois qu'il y apparut rdellement, il fut royu et
recouuu avec tons les honneurs dHa k la marine d'une puissance belligdrante reconnue,
sans la plus petite marque de ni(^coutentement an snjet de la violation f^rossl^re de ses
lois, qui avait attird uue grave resx)Ousabilitd envers une puissance avec laquelle elle
otait en paix.

Ainsi il me paralt hors de doute (jue, dans le cas de TAlabaraa, la Grande-Bretagne,
en manquaut d'exercer les 'Mues diligences" pour empAcher I'dquipement de ce vaisseau,
([u*elle avait des motifs raisonnables de croire dispose k croiser contre une puissance
avec laquelle elle 6tait en paix, a manqnd k raccomplissemeut des devoirs stipules
dans la premiere r^glo pr<?sent<5e aux arbitres comme guide d'aprfes le texte du traitd
de Washington.

LE TUSCALOOSA.

Dans la sdrie de documents qu'il a 6t6 de raon devoir de pr<?parer sur les vaisseaux
prdsentds success! vement h Vexamen de ce tribunal, je snis arrive k ddduire, des
preuves qui nous ont 6t6 soumises, une r^gle gdo^rale qne je crois dtre juste. Cette
r^gle est que, si Von prend le titro de belligdrant^sur Tocdan, en se fondant exclusive-
ment sur la violence et sur fa fraude, on ne pent finir autrement que comme on a com-
menc<^. Cette regie revolt une autre illustration du cas du Tuscaloosa, qui est mainte-'
nant devant nous. C'<5tait nn vaisseau marchand appartenant aux £tats-Unis et ayant
d'abonl le nom du Conrad, qui fut pris par TAlabama, le 21 jnin 1803, sur la cAte du
Br<?8il. Quant an cas de ce vaisseau, k son origine frauduleuse et k la reconnaissance
malheureuse faite plus tard de son caractere comme vaisseau ]<^gitime sur Foc^an par

182 ARBITRATION AT GENEVA.

the ocean by the goveruilient of the nation whose laws it had so impu-
dently set at defiance, I have already submitted my judgment in a
preceding paper. That government was now destined to go through
another crucial ^experiment, the necessarj^ and legitimate consequence o
its primal error.

It should here be observed that, in the order of events naturally fol
lowing what has ever seemed to me the great original mistake of th
recognition of this false maritime belligerent, sprang up a necessity
immediately considering the question of the recognition of any prize?-
which it might take and send in under the established law of nations t
any of the ports of Her Miyesty's kingdom, there to await a regula^
condemnation in the courts at home. Unless some action were at one
t^ken to prevent it, the practical result would clearly be that the whol
commerce of the United States would be in danger of sacrifice to om
belligerent in British ports without a single chance of correspondin
advantage to the other. For the fact that the insurgents had no coit:*^ •
merce of their own whatever had become quite notorious.

In order to guard against this danger Her Majesty's governmeim ^
promptly resorted to a precautionary measure entirely within its pow^M"
to take, under th# law of nations, the prohibition of the use of its port:-s
to either party for the admission of prizes. The same policy bavin .^
been adopted by all other naval powers, it became evident to the fals^
belligerent that nothing positive was to be gained to itself from its as-
sumption of a place on the ocean. The only motive left for trying to
keep it was the possibility of injuring its opponent. Hence, a resort to
the barbarous practice of destroying the property it could not convert
into plunder.

But this practice seems at times to have become unpleasant and
wearisome to its perpetrators. Hence, it was natural that their atten-
tion should be drawn to some manner of evading it. The commander
of the Alabama having made it the occupation of some of bis leisure
hours to study the best known treatises on the law of nations, seems to
have hit upon a passage which he considered exactly to fit his purpose.

le gouverDoment do la uatiou dont les lois avaient 6t6 si impudemment bravdes, j'ai
d6jii soumis mon jugenient dans un prdcddeot DX^moire. Ce gouveruement ^tait d^
lors de8tin<$ ti passer par uuo autre dpreuve d<5ci8ive, consequence n^cessaire et legitime
de sa premiere ^reur.

U fant remarnuer ici que dans Tordre des ^v^uements qui suivirent naturellenient
06 qui m'a sembl6 toujours la grande erreur origiuelle de la reconnaissance de ce faux
bellig^rant. s'^leva la ndcessite^de consid^rer imni^diatement la question de la recon-
naissance ae toute prise qu'il aurait pu faire et envoyer dans quelqu'un des ports da
royaume de sa Majesti^ d*apr^ le droit des gens, pour y attendre un jugement r^gulier
devant les cours du royaume. Amoins de quelque mesure prise imm^diatemeDt pour
renip^cher, le r^ultal^ pratique aurait 6t6 clairement que tout le commerce de§ fitats-
Unis se serait trouv6 expose 4 dtre sacrifi^ k Tun des belligerents dans des ports anglais,
sans une seule chance aavantage correspondant pour Fautre. Car, le fait que les in-
surges n'avaient en propre aucun commerce du tout devait £tre parfaitement notoire.

Afin de se garder de ce danger, le gouvernement de sa Majesty recourut promptement
k nue mesure de precaution qu^il etait enti^rement en sbn pouvoir de prendre d'apr^s
le droit des gens, la defense aux deux parties de so servir de ses ports pour Tadmission
des prises. La mdme oonduite ayaut ete adoptee par toutes les puissances maritimes,
il devint evident pour le faux belligerant qu'il u'avait rieu k gaguer en s^arrogeant le
litre de puissance navale sur Tocean. Le seul motif qui rest^t pour t&cber de le garder
etait la possibilite de nuire k son adversaire. De 1^ le rdcours k la pratique barbare
de detruire la propriete dont il ne pouvait pas faire du butin.

Mais cette pratique semble parfois 6tre devenue desagreable et ennuyense poor ceux
qui s'y livraient. II etait dolors naturel que leur attention se port&t sur quelque
moyeu de reviter. Le commandant de 1' Alabama, en ayant fait Toocupation de
quelques-uns de ses moments de loisir pour etudier les ouvrages les plus connus du
droit des ^ens, semble etre tombe sur un passage qu'il considerait comme tout k fait

OPINIONS OF MR. ADAMS. 183

This was an extract from Wheaton's well-known work, to the effect that
a legitimate authority might convert a captured merchant-vessel, with-
out condemnation, into a ship of war, to such an extent at least as to
secure the recognition of it by neutral nations.

It was probably from this source that Captain Semmes contrived his
scheme of turning the United States merchantman Conrad, laden with
a cargo of wool from a distant market, into the Confederate States ship
Tuscaloosa, tender to the Alabama, having two 12- pound rifle guns, and
ten men ; and bringing her into Her Majesty's port of Simon's Bay,
Cape of Good Hope, to test the disposition of the local authorities to
recognize the proceeding.

As usually happened in the course of these transactions, the naval
•officer in command in the harbor at once penetrated the fraud. Rear-
Admiral Sir B. Walker, on the 8th August, addressed a letter to Sir P.
Wodehouse, in which he used this language :

The admissioD of this vessel into port wiU, I fear, open the door for nambers of ves-
sels captured under similar circumstances, being denominated tenders, with a view to
avoid the prohibition contained in tha Queen's instructions ; and I would- observe, that
the vessel Sea Bride, captured by the Alabama otf Table Bay a few days since, or all
other prizes, might be in like manner styled tenders, making the prohibition entirely
null and void.

I apprehend that to bring a captured vessel under the denomination of a vessel of
war she must be titted for warlike purposes, and not merely have a few men and two
smaU guns put on board her (in fact, nothing but a prize crew) in order to disguise
her real character as a prize. «

Now, this vessel has her original cargo of wool still on board, which cannot be re-
quired for wailike purposes; and her armament, and the number of her crew, are quite
i nsnfficient for any services other than those of slight defense.

But this sound judgment of the gallant naval officer met with little
response from the higher authorities of the Cape.

As usual, the governor had consulted his attorney-general, and, as
usual, the attorney-general gave an opinion, giving five reasons why

convenable h son dessein. C'<^tait un extrait du volume bieu connu de Wheaton, dont
le sens dtait qu'nne autorit^ legitime pouvait convertir un vaisseau marchand capture,
sans jugemeut, en vaisseau de guerre, assez, du moius, pour assurer sa recounaissanco
par des nations ueutres.

Ce fut probablemeut h cause de cela que le capitaine Semmes conynt son projet de
changer le vaisseau marchand des ^tats-Unis^ le Conrad, charg^ d'une cargaison de laine
d'un marchd <^loign<^, en vaisseau des ^tats-conf^d^r6s, le Tuscaloosa, tender de TAla-
bama, ayaut deux canons ray^s de douze, et dix hommes, et de le conduire dans le port
de sa Majcst<^ de Simon's Bay, Cap de Bonne-Esp^rance, pour 6prouver la disposition
des autorites locales ii reconnaltre la fraude.

Comme il arrivait d^ordinaire dans le cours de ces transactions, Tofflcier de marine
qui commandait dans le port p^n^tra imm^diatement la fraude. Rear- Admiral Sir B.
Walker adressa, le 8 aoflt, une lettre & Sir P. Wodehouse^ dans laquelle 11 tenait ce
Ian gage:

'* L'admission de ce vaisseau dans le port ouvrira, Je le crains, la porte h nombre de
vaisseaux captures dans des circonstances semblables et que Ton nommera Unders, en
vue d'^happer ^ la defense contenue dans les instructions de la Reine; et je ferai re-
njarquer que le vaisseau Sea Bride, capture par VAlabama pr^ de Table Bay, il y a peu
de jours, on toute autre prise, pourrait, de la mdme mani^re, 6tre nomm6 tender^ rendant
ainsi la d6fen9e enti^rement nulle et non avenue.

*' Je crois que, pour placer un vaisseau capture sous la denomination de vaisseau de
guerre, il faut qu'U soit propre h des projets de guerre et f^wW u^ait pas seulemeut
qnelques hommes et deux petits canons h son bord (en fait, pas autre chose qu'un
equipage de prise) afiu de deguiser son vrai caractbre de prise.

'^ Maintenant ce vaisseau a encore ^ bord sa cargaison primitive de laine, ce qui est
assez inutile pour des projets de guerre; et son armament et le uopibre de son 6quipage
8ont tout k fait insuffisants pour aucun service autre que celui d^une 16g^re ddfense."

Mais ce jugemeut sain de ce brave offlcier de marine trouva peu d'<5cho chez les auto-
rites superieures du Cap.

Comme de coutume, le gouvemeur avait consults son attorney-general et comme de
contume rattorney-general donna un avis renfermant cinq raisons pour lesquelles ce

184 ARBITRATION AT GENEVA.

what was a captured merchantman to the eye of everybody else should
be regarded by the government as a legitimate ship of war of a recog-
nized belligerent. He also relied on the extract from the work of Whea-
ton, having reference to a very different state of things. This was on
the 7th August, 1863.

The governor sent these papers in the regular channel to the authori-
ties at home, and in due course of time they found their way to Earl
Knssell. He appears to have been so little satisfied with the singular
result that had been reached at Cape Town as to desire a reconsidera-
tion of the question by the law-officers of the Crown. This was dated
on the 30th September.

The consequence was an opinion, not delivered until nineteen days
afterward and bearing marks of careful consideration, signed by all
three of the legal officers, the purport of which was a disavowal of the
fiction of law based upon a misconception of the doctrine i)f Wheaton ;
'and a distinct expression of a proposition so important in connection
with all the events submitted to our consideration that I deem it neces-
sary to quote the very language :

We think it right to observe that the third reason allef!^ by the colonial attorney-
general for bis opinion assumes (though the fact had not been made the subject of any
inquiry) that ^* no means existed for determining 'whether the ship had or had not beeu
judicially condemned in a court competent of jurisdiction ; and the proposition that,
admitting her to have been captured by a ship of war of the Confederate States, she was
entitled tb refer Her Migesty^s government, in case of dispute, to the court of her States
in order to satisfy it as to her real character/' appears to us to be at variance with Her
Majesty's undoubted right to determine, within her own territory, whether her orders,
made in vindication of her own neutrality, have been violated or not.

The opinion then went on to declare what the proper course should
have been. The allegations of the United States consul should at once
have been brought to the knowledge of Captain Semmes, while the Tus-
caloosa was there ; and he should have been obliged to a<lmit or deny
their truth. If the result were, in that case, the proof that the Tusca-

qui <^tait un vaisseau mareband captur<5, pour tout le monde ailleurs, devait ^tre
regard^ par le gouvernement comme un vaisseau l<Sgitime de guerre d'un bellig6rant
reconnu. II s'appuyait aussi snr Textrait de Fouvrage de Wheaton, se rapportant h une
question toute differeute. Ceci se passait le 7 aoftt 1863.

Le gouverneur euvoya ces documents, par le canal ordinaire, aux autorit^ du
royaume, et avec le temps ils parvinrent au Comte Russell. II somble avoir 6X6 si pea
satisfait du singulier r^ultat obtenu h Cape Town qu'il d^^ira un nouvel examen de
\m question par les "law-officers" de la couronne.

Ccci 6tait dat6 du 30 septembre.

Le r^ultat fut un avis, qui ne fut livr^ que dix-neuf jours plus tard, renfermant des
marques d'un examen scrupnleux, sign^ par les trois officiers l^gaux, dont le r6sum6
i^tait un d<^saveude la fiction de loi, bastS snr un malenteudu de la doctrine de Wheaton,
et une expression claire d'une proposition si importante ii regard de tons les ^v^ne-
ments soumis k notre examen que je crois n<5cessaire d'en transcrire les propre^
termes :

" Nous croyons qu'il est bon de faire remarquer que la troisit^me raison all^gu^e par
Tat torney -general de la colonie pour sou avis affirme (quoique ce fait n'ait nullement
6x6 soumis ii aucune enqu^te) **quMl n'existait aucuu moyen de determiner si le vaisseau
avait ^t^ on non jug6 formellement par une cour comp<Stento de juridiction ; et la pro-
position qu^en admettant qu'il a 6t6 pris par un vaisseau de gueiTe des <?tats-conf«?dere5»
il <5tait autoris^ k renvoyer le gouvernement de sa Mtyest^, eu caa de dispute, k la cour
de ses ^tats, afin de donner satisfaction k celui-ci snr son \Tai caracti^re, nous paralt en
dcsaccord avec le droit indubitable de sa Majest<5 de determiner, dans les limites de
son territoire, si ses ordres, donnas pour le maiutieu de sa neutrality, ont 6t6 violas ou
non.

"L'avis en vient k declarer quelle aurait dft 6tre la conduite convenable. Les all^
gations du consul des £tat8-Uuis auraient dft dtre port^s imm^diatement k la connais-
sauce du capitaine Semmes pendant que le Tuscaloosa <5tait \k, Et il aurait 6t6 oblig^
d'en admettre ou d en nier la v^rite. Si ce r<5sultat «5tait, dans ce cas, la preuve que le

OPINIONS OF MR. ADA3IS. 185

loosa was an uncondemDed prize brought into British waters in violation
of Her Majesty's orders for maintaing her neutrality, it would deserve
serious consideration whether the most proper course consistent with
HerMajesty's dignity would not be to take from the captors, at once, all
further control over the Tuscaloosa, and retain it until properly reclaimed
by her original owners.

This opinion, so far as I have had occasion to observe, contains the
very first indication of a disposition manifested on the part of Her Ma-
iesty's advisers to resent the frauds and insults which had been so con-
tinually practiced upon her from the outset of this struggle by these
insurgent agents. Had it been duly manifested from the beginning, it
can hardly be doubted that she would have been materially relieved
from the responsibility subsequently ipcurred.

On the 4th of November the Duke of Newcastle addressed a note to
the governor of Cape Town, communicating the decision of the law offi-
cers as to what ought to have been done.

On the 19th of December the governor addressed a note to tUe Duke
of Newcastle, defending himself in regard to the action which had been«
disapproved, and praying for further directions what to do. The Tus-
caloosa had meantime left Simon's Bay on a cruise, from which she did
not return until the 26th December, when she put in for supplies. But
on the 5th of January Hear- Admiral Sir B. Walker addressed a note to
the secretary of the admiralty, announcing that, by the request of the
governor, he had taken the necessary steps to ascertain from the insur-
gent officer then in command the fact that she was an unoondemned
prize captured by the Alabama, and thereupon he had taken possession
of her for violation of Her Majesty's orders, to be held until reclaimed
by her proper owners.

It was in vain that the insurgent entered a protest against this de-
cided proceeding. The governor contented himself with a brief answer
to the effect that he was acting by orders.

Tuscaloosa <^tait. utie prise, Bon jngi^e, amende dans les eanx anglaises en violatinn des
ordres de sa Mi^estd pour le maiotien de sa neutrality, il faudrait examiner 8<Sriea8e-
ment si la conduite la plus conveuable h Fdgard de la dignit<^ de sa Majesty ne serait
pas de priver Tauteur de la prise de tout contrdle ult^rieur sur le Tuscaloosa et de le
d^tenir jnsqu'^ ce quHl fdt proprement rdclam^ par ses propridtaires primitifs."

Cette opinion, pour autant que j'ai eu Toccasion de le remarquer, contient la toute
premiere indication d^mc disposition manifest<^e de la part des conseillers de saMs^estd
a venger les fraudes et les Insultes qui avaient 6t6 si continuellement commises euvers
elle, cfepuis le commencement de ce conflit par ces agents insurg<Ss. Si cette disposition
avait 4t6 souvent manifest^Se d^s le commencement, on pent difficilement douter qu'elle
n^edt 6t6 matdriellement d^hargde d'une graude partie de la responsabilitd qui lui fut
imposde dans la suite.

Le 4 novembre, le due de Newcastle adressa une note au gouverneur de Cape
Town, lui communiquant la decision des "law-officers'^ ^ regard de ce qui aurait dd
eCre fait.

Le 19 ddcembre, le gouverneur adressa une note au due de Newcastle, se ddfendant
ai regard de la conduite qui avait 6t6 ddsapprouv6e et demandant des directions
ultCTieures sur ce qu'il y avait h faire. Le Tuscaloosa avait pendant ce temps quitt^
Simon's Bay pour une cause dont il ne revint le 26 ddcembre, lorsqu'il entra dans le
port pour prendre des subsides. Mais le 5 Janvier, Rear- Admiral Sir B. Walker adressa
une note au secretaire de Tamirautd annonyant qn'ii la requdte du gouverneur 11 avait
pris les mesures n^^cessaires pour s'assurer, aupr5s de Tofficier insurgd qui commandalt
alors, du fait que c'dtait une prise non jug<Se, capturde par I'Alabama, et qu*en cous<^-
<[uence il en avait pris possession pour violation des ordres de sa Majesty, et pour Stre
retenue Jusqu'^ ce qn'elle fttt r6clam6e par ses propri<5taires.

Ce f^ en vain que Tinsurgd protesta centre cette mesure ferme. Le gouvernemont
se contenta d^une courte r<$ponse, disant qull agissait par ordrc.

186 ARBITRATION AT GENEVA.

There were at the mouieiit no agents for the proper owuers to whom
the vessel could b^ transferred, so that it remained in the hands of the
British authorities, until a new letter was received from the Duke of
Newcastle, dated the 10th March, rescinding the instructions given in
the preceding one, and directing the vessel to be handed over once more
to some person having authority from Captain Semmes, of the Alabama,
or from the government of the Confederate States.

Thus it appears to me that Her Majesty's government, from an over-
sensibility to the peculiar circumstances of the return of the vessel after
once leaving her port, lost all the advantages to which it had enktled
itself for maintaining the dignity of the Crown against an unworthy
experiment upon her patience. The fact was that it was only making
the port of Simon^s Bay a base of operations, an additional insult.

The time had gone by, however, when this vessel could be made of
any further use by the insurgent commander of the Alabama. He had
succeeded in executing a fraudulent sale of the cargo of that as well as
of anotlker prize, the Sea Bride, and was bound on another cruise, which
proved to be his last on the ocean.

Taking into consideration all the circumstances attending this singu-
lar narrative, I have arrived at the conclusion that as a prize captured
by the Alabama, and turned into a tender, she comes distinctly within
•the scope of damages awarded by the judgment passed upon the course
of Her Miyesty's government respecting that vessel. And if in her own
brief career it should appear that she has herself committed any injury
to the people of the United States, I am clearly of opinion that Her
Majesty's government has made itself distinctly responsible for the neg-
lect to prevent it under the rules. It is alleged in the argument on be-
half of the United States that she had captured and released one vessel
on a ransom bond, before reaching Cape Town ; and on the 13th of
September, after her visit, she captured and destroyed one more. But
I have failed to discover the presence of 4iny distinct claim in damages.
Should such be made visible, I hold the claim to be valid.

Alors la question ^tait claire : c'etait ime prise anieui^e dans nn iK>rt de sa Majesty
contra la loi.

Mais il n'y avait aucan agent des propri^taires anqnel le vaisseau p<it Aire remis, en
sorte qu^l resta aux mains des aatorit<5s anglaises jusqa'li Tarriv^ dUine nouveUe
lettre du dnc de Ne^rcastle, dat^e du 10 mars, r^voqnant les instractions donn^es dans
la pr€c<^dente, et ordonnant que le vaisseau ftlt livrd de nouveau & qnelqu'un ayant
aatorit^ de la part du capitaiue Semmes, de 1* Alabama, ou du gouvernement de <^tats-
conf(6d^r6s.

Ainsi il me semble qne le gouvernement de sa MaQest^, h Tombre des clrconstances
particuli^res de ce cas, perdit tout Tavantage quMl s*6tait acquis en maiutenant la
dignity de la conronne centre la perpetration d'une fraude indigue.

Cependant le temps s'^tait pass^ lorsque le vaisseau put de nouveau ^tre employ^ ti
quelque service par le commandant insurgd de TAlabama. II avait r^ussi h op^rer nne
vente frauduleuse de la oargaison de ce vaisseau aussi bieu que d'uue autre prise, le
Sea Bride, et il faisait nne autre course, qui fut sa derni^re sur Toc^an.

Preuant en consideration toutes les circonstances qui se rapportent & ce singulier

T^cit, je suis arrive k la conclusion que, comme prise captur<Se par T Alabama, il tombe

'distinctement dans le domaine des dommages accordds par lejugement porte sur la

eonduite du gouvernement de sa M^jeste h regard de ce vaisseau. £t si, dans sa courte

•carri^re, il paraissait qu'il a commis lui-m6me quelque dommage envers le peuple des

£tats-Unis, je suis nettement d'avis que le gouvernement de sa Mi^este s'est rendue

clairement reeponsable pour sa negligence h Temp^cber, selon les r^les. On aU^gue

dans Texpoee des £tats-Unis qu'il avait capture et relftcbe un vaisseau sous promesse

^e ran^on avant d'atteindre Cape Town, et que, le 13 septembre, apr^s sa visi^, il en

•captura et detruisit encore un. Mais je n^ai pu decouvrir la presence d'aucnne demande

distincte en dommages. Si Von en montrait une, j^envisagerais la reclamation comme

valide.

OPINIONS OF MR. ADAMS. 187

VII. — THE GEORGIA.

This vessel was built at Dumbarton on tbe Clyde during the winter
of 1862-'63. She was constructed in a manner to excite very
little suspicion of the purpose for which she was intended.
Indeed, her frame proved so weak after a few months' trial as to render
her unsafe with an armament, and she was laid aside.

When she was launched, on the 16th of January, a person known to
be in the insurgent service, by the name of North, was reported in the
public journals to have been present with his daughter, and she was said
to have given to the vessel the name of the Virginia.

It was, however, known, by the means of an intercepted letter received
by Mr. Adams from his government, that this officer had incurred the
censure of his employers at Eichmond to such an extent as to prompt
his recall. The name thus given was not adhered to.

On the 17th of January, that is, the day after her launch, she was re-
ported by the measuring surveyor as the steamer Japan, and intended
for commercial purposes, her framework and plating being of the ordi-
nary sizes for vessels of her class.

On the 20th of March she was registered in the name of Thomas Bold,
a British subject resident in Liverpool, as the owner.

On the 27th of March she left for Greenock without exciting observa-
tions, and without clearance.

On the 30th of March a large nnmber of men who had been shipped
at Liverpool by Jones and CompanJ', a firm of which Mr. Bold was a
member, for a voyage to Singapore and Hong-Kong, and after arrival
there to be employed in trading to and from ports in the China and In-
dian seas, the voyage to be completed within two years by arrival. at
some port of discharge in the United Kingdom, left Liverpool to get on
board the vessel at Greenock.

On the 3d of April she left the British waters.

On the 6th, the collector of customs at Newhaveu addressed a letter to
the commissioners of customs in the following terms :

LE GEORGIA.

Ct) vaisseaa fiit constrnit ai Dumbarton, sur la Clyde, pendant Thiver de 1862-'63. II
fut couBtruit de maui^re ii exciter tr^pea de 8onp9on8 k regard du but auquel il ^tait
deetiud. £d effet, ses couples se montr^rent si faibles, apr^ quelques rnois d'essai, qu'il
deviiit dangereux avec son armement, et il fut mis de cdt^.

Qnand 11 fut lauc^, le 16 janvjer, les journaux r^pport^rent qu'une personne du nom
de North, connue pour 6tre au service des insurg^s, se trouva pr^sent-e avec sa fille, et
que celle-ci donna tm vaisseau le nom de Virginia.

On savait oependant, par une lettre intercepts, re9ue par M. Adams de son Grouverne-
ment, que cet offlcier avait re9U la censure ae ses sup^rieurs h Richmond au point de
motiver son rappel. Le nom ainsi donn^ ne fut pas conserve.

Le 17 Janvier — c'est-^dire, le lendemaindeson lancement — le mesureurfit un rapport
dans lequel il Pindiquait comme steamer le Japan et destine ^ des entreprises commer-
ciales, ses couples et ses pliiques 4tant des dimensions ordinaires pour des vaisseaux de
sa classe.

Le 20 mars, il fut enregistr^ au nom de Thomas Bold, si^et anglais, r^sidant k Liver-
pool, comme propri6tairu.

Le 27 mars, il partit pour Greenock, sans provoquer d'observations et sans papiers.

Le 30 mars, un grand nombre d'hommes quitt^rent Liverpool pour se reudre & bord
du vaisseau k Greenock, lis avaient ^t^ enrdl^s k Liverpool par Jones et C^", maison
de commerce dont M. Bold^faisait partie, pour un voyage h Singapore et k Hong-Kon^,
et'apr^ leur arrive 1^-bas pour 6tre employ<^8 au commerce dans les ports des mers de
la Cnino et des Indes; le voyage devait se faire en deux ans, et le retonr avoir lieu
dans un ^rt de d^batquement du Royaume-Uni.

Le 3 avril il quitta les eaux anglaises.* •

Le 6, le collecteur des douanes au port de New Haven adressa une lettre aux com-
missaires des douanes, connue dans les tennes suivants:

I>?^ AEBmLlTIOX AT GEXZTA.

Th^ «t^arr-h :> Alar, ">f I»n«:An, -^ urns, o^rned by H. P. Maples, sailed on Sun*
rr.r,rTi r* j. T,r\, ,r*.-»*ar.':- as 'i ^ m., i«tnnfi. a^N-oniintr ro rht? ^:p'«* papers, for Aldemey
?*t- Ma.o. '^/n .'•anrrtaT. a< 3i:«ini;inr- tinrrr m»*n. tirenry <rf whom appeared
hnT-n ^A..or»- t*^n ai^rraam^*. arr-v.**! hv tram. Tlin»«* srentlemen aeeompanied tl
Mr IvTr.-*. '^f A-«'>rr.#*'r. Mr. W.uTt. ^n«i Mr. J.»n<?A. Th*'' men appeared to be ignoi
of 'h«*::r Tr*-»=^;"«<» ^»r*ir:r.ir:« n : 4r>me<«ai(i Th»-y w.?re r»> 2*^1 :?»/. ea^^h for their trip. A iM:^m
ra*h«*T lar.-«='- «ut>*^r:r.*<*ii«i'*^ th*^?n- >lior"Iv afr«»r mi«iii!i;ht, a man arrived ^^a^
Pir. jriTAn. '»r. tuir^rr.ir\^ w^.th a teietrram, which. fi>r parpni^ea of secrecy, had been -seot
t::.f'r'' ar.«i noc t»> N'-wiiavrn. :^ ui *<L"*p»-t"t«-«L Mr. SvaDif«»rth, the a^nt, replied to mr
iT.fr:.T.f^ Tii.j4 ir.«'rn-n;j^ I hat Lae .X ar haii nnnirion^ of war on Wiard, and that tliej

w*-r*r cf'Ti'^MTirii hv to a Mr. L*-^:«». of AM'-niey. Hi* answer was hrief

ar>l w.m r*^!*eTTe. ieavirff n^ *i*^nr>t on my miDti nor on the minds of any here that the
th.rry TT.fn ac«l rr-.p.iti' hj* ^»f war ar*^ <l»-'*'r;iini for tran-^r at sea to some second Ala-
>»arr.a- TTie tel^-irraai r^ I>rLjhr.,n i-^rimar-il. verr pro^»al»Iv. ha\in^ been reserved for
tiif la-«t h'^/nr. wh^r*^ that v^j^rir-I :?roaI«: be f« nL«L Wheihtrr the {shipment of the men, who
al] a[.y-*-nrM To lie BnT-h *fi' ;r^t>. r*an. if it ^L'Tl!*! Ije hereafter fonnd that they have
V»eeii traii-f*-rre»i to a F»-«i'-ral •>r e«^ttV.ieraTe Tr7««««-1, be b»-ld an infringement of the
forejiTTi-eDii-tment ar^t, and whether the ciearance of the Alar, if hereafter foond to be
nntrrje. mn render the ma."«t**r amenable aD«ier the co^toms-consolidation act^isfor
jonr con.'i<ierat:oD rtr-petrUaiiv sabmitted.

R. J. DOLAN, CoUcctor.

On coDtra.stiDj^ the substance of this letter with any or all of those
commonieated from a similar scarce at Liverpool, in the case« of the
Oreto or the Alabama, the ditiferenee cannot fail to be apparent to the
most ordinary apprehension. There is no equivocation or reservation
to be suspected here. The officer seems to me to have faithfully per-
formed his duty, and completely relieved himself ^from responsibilit3%

This letter appears to have been received by the commissioners of cus-
toms on the 7th April, and they on that same day made a report to the
home office in the following terms :

I am desired to transmit, for the information of the lords oommissioners of her
Majesty's treasury, and for any directions their lordahipa may see fit to give thereon,

" Le vapeor Alar, de Londre^ jan^^^ant 85 tonneanx, (propri^taire, H. P. Maples,) a
fait voile dimanche, le 5, k deux heures dn matin, destin^, dii moius selon les papiers
de bord, ci-apr^, pour Aldemey el St.-MaIo. II est arrive samedi k minait, par le
chemin de fer, trente hommes, dont viu«::t paraissaient ^tre des marins anslais et dix
ra^^caniciens. Trois messieurs les accom{Kif]niaient, Monsieur Lewis, d^Aloerney, Bfr.
Ward et Mr. Jones. Les hommes semblaient ne pas savoir an juste le lieu de leur des-
tination. Quelques-nns d'eutre eux disaient qn'ils devaient avoir £20 par t^te ponr le
voyage. Un homme qui boitait nn pen avait la direction de la troupe. Pen apr^
minuit, nn cavalier est arriv^ de Brighton, portenr d'nn t^l^gramme que Ton sonp-
V'onne avoir 6t6 envoys dans cette ville au lien de New Haven pour n*en pas laisaer ^chap-
per le secret. Interrog^ par moi, le courtier, M. Stanifortfa, m^a r<$pondn, ce matin,
qne I'Alar avait, k bord des munitions de guerre consignees par . . ^ M. Lewis,
(rAldemey. SeK r^ponses ^talent breves et r^serv^es ; ellee ne nons ont laiss^ aucun
<lonte dans Tesprit, ni k moi ni k per^onne d'entre nous, que les l^nte hommes et les
munitions de ^lerre ne fussent destines i\ ^tre transbord^s en mer snr un second Ala-
bama. Le t<51<^gTamme priv^, expMi^ k Brighton k la derni^re henre, indiquait trfes-
probablement le lieu de reunion. L^embarquement des hommes, (yai tous paraissaient
f'tredes snjets anglais, peut-il Atre con8id<5r<^ comme une infraction - au yWi^fi-en/wf-
ment act^ dans le cas oti il serait prouv<5 plus tard qnMls ont ^t^ transbord^ sur dn
vainsonn fM^.Td] on conf<6dere f Les papiers de VAlar, s'ils sont reconnus faux dans la
suite, [HMivent-ils exposer le patron k des ponrsuites en vertu du ciwtom«-coR9o(i(ia^a
acf f Co Mont \h des questions que j'ose vons souraettre respectuensement.

" R, J. DOLAN, CoZZectetir."

Kn cotnparant la substance de cette lettre avec toutes celles communiqu^es d'nne
soniTu Mernbliible k Liverpcxd, dans les cas de TOreto on de TAIabama, la difference ne
pent itiati(|ner do sauter aux yeux de Tintelligence la plus oidinaire. On ne pent soup-
V'onuer i(!i ni (^M|iiivoqiio ni rdserve. L'officier me semble avoir rempli fid^Iement son
devoir et it'Atro iU'vUnr^^^ do toute responsabiIit<5.

(*etto lettnt piirult avoir ^t^ re^ue par les commissaires des douanesle 7 aa'ril, et le
nuMiie Jour iU lliiMit mpport au home office dausJes termes suivauts :

^* On tno riM|iii«M't do transniottre, pour Tiuforraation des lords-commissaires de la
tieMororUMlo Nil MuJi»Ht«\ et pour les directions que leurs seigneuries poorront juger

OPINIONS OF MR. ADAMS. 189

copy of a report of the collector of this revenue at Newhaven, relative to the clear-
ance of the vessel Alar, having on board a number of sailors and mnuitious of war,
ostensibly for Aldemey and Saint Malo, but suspected by the collector to be intended
for transfer to some other vessel belonging to one of the belligerents in America ; and
1 am to stat« that the board having conferred with their solicitor on the subject, that
officer is of opinion that there is no evidence to call for any interference on the part
of the Crown.

It thus appears very clearly that whatever may have been the opiu-
ions of the law expressed ia this letter, the fact is certain that at that
date none of the officers of the government had received any informa-
tioa of the direction to which it could truly look for the destination of
these vessels. The whole operation had been conducted, it must be
admitted, with great skill and address. Nobody had ever guessed at
the result down to the time in which it was in process of execution within
the jurisdiction of another power.

Meanwhile, let us now turn our attention to the position in which the
representatives and agents of the United States, the party the most
deeply interested in preventing this undertaking if possible, were occu-
pying.

This may most readily be gathered from the testimony of the most
vigilant officer they had in th«.t kingdom, a man who spared no pains
and DO expense to secure all the information that could be had, not
simply within his own district, but everywhere in the kingdom where
eea-going vessels were in process of construction outside of the capital.

Ou the 3d of April Mr. Dudley writes the following letter to Mr.
Seward at Washington :

Mr. Underwood, our consnl at Glasgow, has no doaht informed yon about the steamer
Dow called the Japan, formerly the Virginia, which is about to clear from that port to
ihe East Indies. Some seventy or eighty men, twice the number that would be re-
<|nired for any legitimate voyage, were shipped at Liverpool for this vessel, and sent
*^ Greenock on Monday evening. They are shipped for a voyage of three years. My
'^'f^f is that she belongs to the confederates, and is to be conveited into a privateer ;
^^ite likely to cruise in the East Indies, as Mr. Young, the paymaster of the Alabama

^^v<inable de donner h ce sujet, copie d'un rapport du collecteur des donanes b, New
^^Ven relatif aux papiers du vaissean Alar, ayant h bord une quantity de matelots et
^^ inanitions de guerre, ostensiblement pour Alderney et St.-Malo, mais soupgonn^s
?^^ le collecteur comme devant 6tre transbord^a sur quelque autre vaisseau appar-
jJ^'Xant k Pun d^ bellig^rants en Amdrique ; et je dois dire que le hoard ayant confer©
^^ leur 8olliciu:ir sur ce sujet, cet officier est d'avis quUl n'y a pas de preuves qui
^igent une intervention de la part de la couronne."

^paralt ainsi tr^s-clairement que, quelles qu^aient pu 6tre les opinions de la loi ex-
^^im^es dans cette lettre, le fait est certain qu'i)^ cette date aucun des officiers du gou-
T'^mement n'avait re^u de reseignements sur la direction oh il devaffc regarder pour
*^aver ces vaisseaux. Toute I'op^ration avait 6t6 conduite, il faut Fadmettre, avec
Grande habilit^ et adresse. Personue n^avait mdme devin6 le r6sultat, jusqu'au mo-
ment oti il 6tait en vole d^ex6cutiou dans la juridiction d'une autre puissance.

Maintenant. tournons notre attention versl^T position qu'occnpaieut les reprdaeutants
et les agents des fitats-Unis, la partie la plus intdressde ^ emp^her cette eutre|)rise, si
possible.

On peuts^en faire une Idde plusfacilement par le tdmoignage de Fofficer le plus vigilant
qu'ils eusseut dans ce royaume, homme qui n'dparguait ui peine ni argent pour se pro-
carer tons les renseignements que Ton pouvait avoir, non-seulemeut dans son propre
district, mais partout dans le royaume o& des vaisseaux destin<Ss h la haute raer ^taient
en voie de construction, hors de la capitale.

Le 3 avril, M. Dudley 6crit la lettre suivante h M. Seward, h Washington :

"M. Underwood, notre consnl k Glasgow, vous a sans doute dcrit an sujet du steamer
appel^ maintenant le Japan, auparavant le Virginia, qui eat sur le point de s'acquitter
de ce porte pour les Indes orientales. Environ soixante-dix oh quatre-vingts hommes,
deux fois le nombre n<^cessaire pour un voyage legitime, out 6t^ enr6l6s a Liverpool
poor ce vaisseau et envoyds h Greenock lundi soir. lis sont engages pour un voyage de
trois ans. Ma conviction est qu'il appartient aux conf6ddr6s, et qu'il doit 6tre converti
en corsaire, trds-probablement pour croiser dans les Indes orientales, comme M. Young,

190 ARBITRATION AT GENEVA.

tells me it has alwa3'8 been a favorite idea of Mr. Mallory, the secretary of the confed-
erate Davy, to seud a privateer in these waters. I sent a man from here to Glaagowto
accompany these men, to endeavor to find out the destination of the vessel, &c. He
has not been snccessfnl as yet in his eflbrts. He has been on board, and writhe that
she has no armament, and he is still there watching her, &c.

At the date of this letter the Japan was actually gone to sea ; aud the
vigilant consul had not even then obtained any testimony whatever
upon which to establish the truth of his very just conclusion as to the
purpose, though not just as to the destination of the vessel.

L^t me now observe what the case was with Mr. Adams, the minister
of the United States at London. It appears, by a letter of his ad-
dressed to Mr. Seward on the 9th of April, that "he had been long in
the possession of information about the construction and outfit of this
vessel on the Clyde ;^ and upon this part of the paragraph of his letter,
singularly enough, I perceive in the counter case presented to ns on the
part of Her Majesty's government, an attempt made to throw upon hiin
the responsibility for the escape of the vessel. The language is this :

'* If recourse had been had to the navy, it is probable,'' the arbitrators are told,
'' that the complaints of the United States miffht not have been necessary. They
might not have been necessary if Mr. Adams had communicated in good time such in-
formation as he i)08sessed, instead of keeping it undisclosed until six days after the
sailing of the Georgia, and more than three days after the departure of the Alar, and
if that information had iutendod to form an actual or contemplated violation of the
law."

Now, it should be observed that this passage begins by assuming that
the information to which Mr. Adams alludes in his letter of the 9th of
April, as having long been in his possession, was the same which he
communicated to Earl Hussell in his note addressed to him on the 8th.
If such had really been the case, the insinuation might have appeared
with some shadow of justice. But if the context of the passage quoted
had been given entire, it would show that at the period to which he re-
ferred, ''nothing had ever been furnished him of a nature to base pro-
ceedings upon;" whereas, on the reception of what appeared more

le maltre payeur de TAlabama me dit que qh atoi^jours 616 une idde favorite de M. Mal-
lory, le secretaire de la marine conf^d^rde, d'envoyer un corsaire dans cee eaux. J'ai
envoys un homme dMci h Glasgow pour les accompagner, pour essayer de d6couvrir la
destination de ce vaissean. Jus^u'ici il n'a pas r^ussi dans ses e^orts. II a 6t6 a bord,
et il ^crit que le vaissean n'a pomt d'armement, et qu'il le surveille toujours,^ etc.

A la date de cette lettre, le Japan avait pris la mer, et le vigilant consul u'avait,
m^me alors, obtenn aucun renseignement quelconque sur lequel ^cablir la v^rit^^ de sa
conclusion tr^juste quant au but, quoique erronn^e quant iH la destination, du vaisseau.

Permettez-mo^ de faire observer maintenant la position de M. Adams, ministre des
£tat8-UniB ii Londres. II semble par une lettre qu'il adressa & M. Seward le 9 avril,
** qu'il avait 6t6 longtemps en possession de renseignements but la construction et sur
les prdparatifs de ce vaisseau dans la Clyde,'' et quant h cette partie du paragraphe
de sa lette, je remarque assez singuli^r^ment, dans le ** Counter-case," qui nous est
presents de la part du gouvernement de sa Majesty, nne tentative faite pour rejeter
sur lui la responsabilit^ de I'^vasion du vaisseau. Voici les termes :

'^ Si on avait eu recours h la marine, il est probable," c'est ce qu'on assure aux arbi-
tres, *^ que les £tat8-Unis n'auraient pas en de plaintes h adresser relativement ii ce
vaisseau. lis n'en auraient pas eu, si M. Adams avait communique en temps utile les
renseignements qu'il pouvait poss^der, au lieu des les garder pour lui, jusqu ;^ six jours
apr^s le ddpart du Georgia, plus de trois jours apr^ celui de rAlar, et si ces renseigne-
ments eus&ent 616 de nature k pronver une violation actuelle on projet^e de la loi."

Maintenant, il faut remarquer que ce passage commence par poser que les renseigne-
ments, aux([nels M. Adams fait allusion dans sa leltre du 9 avril comme ayant 6t6
longtemps en possession, 6taieut le« memes qu'il avait communiques au Comte Russell
dans la note c^u'il lui avait adress^e le 8. Si tel avait 6t6 reellement le cas, I'insinuation
aurait pu avoir quelque ombre de justice, mais si le contexte du passage transcrit avait
ete donnd enti^reraent, on verrait qu'au moment auquel il renvoie, ** il n'avait re^u en-
core rien qui ftlt de nature h servir de base k des poursuites," tandis qu*^ la reception plus
tard de ce qui lui parut nne preuve plus nette de faits qui so paseaient justement alors

OPINIONS OF MR. ADAMS. 191

distinct evideuce of facts jast then taking place, lie lost not a moment in
submitting them to the consideration of Her Majesty's government, in
his note to Earl Russell of the 8th of April. For the rest, it is probable
Mr. Adams had had too long an experience of the result attending the
transmission of insufficient evidence to be particularly desirous of draw-
ing upon himself the customary replies. If Her Majesty's government
is to be justified at all in the course of the transactions now under con-
sideration, it must be done by assuming the entire responsibility for her
action, or failure to act, rather than by attempting to share it with other
parties, in whom it could not possibly suspect any motive for indiffer-
ence or neglect.

It thus appears that it was not until the eighth of April, that is, six
days after the escape of the Japan, and three days after the evasion of the
Alar, that Mr. Adams appears to have bad within his control the requi-
site means for making a remonstrance. He then addressed to Earl Kus-
sell the following note:

From information received at this lej^atioD, which appears entitled to credit, I
am compelled to the painful'coiichision that a steam-vessel has just departed from the
Clyde with the intent to depredate on the commerce of the people of the United States.
She passed there nnder the name of the Japan, but is since believed to have assumed
the name of the Virginia. Her immediate destination is the island of Alderney , where it
is supposed she may yet be at tbis moment.

A small steamer called the Alar, belonging to Newhaven, and commanded by Henry
P. Maples, has been loaded with a supply of guns, shells, shot, powder, &g., intended
for the equipment of the Virginia, and is either on the way or has arrivM there. It is
further alleged that a considerable number of British subjects have been enlisted at
Liverpool and sent to serve on board this cruiser.

Should it yet be in the power of Her Mojcsty's government to institute some inquiry
into the nature of these proceedings in season to establish their character if innocent,,
or to put a stop to them if criminal, I feel sure that it would be removing a heavy
burden of anxiety from the minds of my countrymen in the United States.

The difficulty of the situation in writing so long after the ex-
ecution of the chief portions of the operation objected to is |ere frankly

il ne perdit pas un moment pour les soumettre h I'examen du gouvemement de sa
Majesty, dans sa note au Corate Russell le U avril. Au reste il est probable que M.
Adams avait eu une troplongue experience du r6sn1tat qui attendait la communication
de preuves insnffisautes, pour 6tre particuli^rement ddsireux de s'attirer les r^ponses
ordinaires. Si enfin le gonvernement de sa Majesty doit dtre jnstifi^ dans le cours des
transactions qui sont maintenant soumises h notre oxamen, il faut que ce soit en assu-
mant la responsabilit^ enti^re de sa conduite on de sa negligence h agir, plutdt qu'en
essayant de la partager avec d'antres parties chez lesquelles on ne peut suspecter
aucun motif d'indifffSrence ou de negligence.

II semble ainsi que ce ne fut que le S avril — c'est-^-dire, six jours apr^ Vdvasion dn
Japan, et trois jours apr^s celle de TAlar — que M. Adams paralt avoir eu h sa disposition
les moyens necessaires pour faire une remontrance. II adressa alors au Comte Russell
la note suivante :

" D^apr^ des renseignements re^us ^la legation qui semblent meriter toute croyance^
ie suis amene k la conclusion penible qu'un steamer vient de sortir de la Clyde avec
rintention de commettre des depredations contre le commerce des £tats-Unis. II por-
tait icl le nom du Japan, mais on croit, d^s lor8,qu'il apris le nom de Virginia. Sa de-
stination immediate est Tile d'Alderney, oti Ton suppose qu*il peut Stre encore dans ce
moment. •

" Un petit steamer nomme TAlar, de New Haven, et oommande par Henry P. Maples,
a ete charge d'une grande provision de canons, d^obus, de boulets, de poudre, etc.,
destines ^ T'equipement du Virginia, et il est en route pour s'y rendre ou il y est arrive.
On all^gue en outre qu'un nombre considerable de sigets anglais out ete enr6ies k Li-
verpool et envoyespour servir h bord de ce croiseur.

" S'il etait encore au pouvoir du gonvernement de sa M^'este de faire une enqudte sur
la nature de ces transactions, h temps pour etabllrleur caract^resi ellessont inuocentes,
ou pour les emp^cher si elles sont criminelles, je suis certain que ce serait dter un pesant
farcleau d'anxiete de Fesprit de mes compatriotes aux fitats-Unis."

On reconnalt franchemeut combien il est difficile d'ecrire si longtemps apr^ Vexecn-
tion des faits principaux de I'operation dont il s'agit. Rien de ce qui ctiit connu

192 ARBITRATION AT GENEVA.

conceded. Everything known thus far gave no clear indication toward
the unknown, and the only important affirmation of fact made in the
letter turned oat not to be correct.

On the same day this letter was written and sent, Earl Eussell made
his reply. After repeating the substance of the complaint, it proceeds
as follows:

I have to state to you that copies of yoar letter were sent without loss of time to the
home department and to the board of treasury, with a request that an immediate inquiry
might be made into the circumstances stated in it, and that if the result should prove
your suspicions to be well founded, the most effectual measures might be taken which
the law admits of for defeating any such attempts to fit out a belligerent vessel from
I^ritish ports.

It is due to the government of Her Majesty to add that all it could do
under the peculiar circumstances it tried to do. Mr. Adams had pointed
out the island of Alderney as the destination for the meeting of the
Japan and the Altar. This had been to a certain extent confirmed by
the report of the collector of customs at Newhaven, the only correct in-
formation which seems to have been at first obtained. Alderney and St.
Malo was the destination specified in the ship's papers.

Misled by this information. Lord Eussell took a step extraordinary,
and thus far exceptional, in the prosecution of preventive measures.
He caused a ship of war to be ordered from Guernsey to Alderney with
a view to prevent any attempt that might be made to execute the pro-
ject of armament within that British jurisdiction. Unfortunately the
practical consequence of having been put on this false scent was to fur-
nish the time lost there as a means of more completely carrying into
effect the projected scheme elsewhere. Even had Her Majesty's gov-
ernment attempted to go further, it could have been no use. The object
had been completely gained within the jurisdiction of another sov-
ereignty — ^the empire of France.

In the csme presented on the part of the United States it is urged
that Her ivfajesty's government might have gone so far as to seize the
vessel within the French jurisdiction, and the case of theTerceira exi>e-

— ^ — ♦

jusqu'alors ne foumissait une iudicatiou claire ii regard de Tinconuu. £t la seule
allirmatiou importaute faitedans cette lettre se trouvait n'^tre pas exacte.

Le radme jour oil cette lettre fut 6crite et envoyde le Comte RusseU rdpondit. Apr^s
avoir r^p<St<S la substance de la plainte, il continue comme suit :

" J^ai 4 vous exposer que des copies de votre lettre out 6t6 envoy6es sans perdre de
temps au ddpartement de Pint^Srieur et au conseil de la trdsorerie, avec pri^re qu'une
enqu^te immddiate fdt faite dans les circonstances qui y sont indiqu^es, et que, si le
r6snltat prouvait que vos soup^ons sont bien fond^s, les mesures les plus efficaces que
la loi autorise fussent prises pour emp^cher toute tentative d'6quiper un vaisseau bel-
ligdrant pour sortir des ports anglais.''

II convient d'figouter en faveur du gouvernement de sa Miyest^ que tout ce qu'il
pouvait faire dans ces circonstances particuli<^res, 11 a essay^ de le faire. M. Adams
avait indiqud Tile d' Alderney corame le lieu oil le Japan et TAlar devaient se rencontrer.
Ceci avait 6t6 confirm^, jusqu'^ un curtain point, par le rapport du coUectenr des
douanes de New Haven, le seul renseignement exact qui semble avoir ^t^ obteuu
d'abord. Alderney et St.-Malo 6taieni la destination s|HScifi<^e dans les papiers du vais-
seau.

Induit en erreur par oe renseignement, Liord Bussell fit une d-marche extraordinaire,
et jusqu'ici exceptionnelle, dans la poursuite des mesures preventives. II fit qu'uu
vaisseau fdt envoy^ de Guemesy & Alderney, en vue d'emp^cher toute tentative qui
aurait pu ^tre faite d'ex^cuter le projet d'armement dans la juridiction anglaise. Mal-
heureusement la consequence pratique d'avoir 6t6 mis sur cette fausse piste mt de donner
le temps qui y avait 6i^ perdu pour effect uer plus compietemeut auleurs le plan pro-
jete. M^me si le gonvemement de sa Msgeste avait essay^ d'aller plus loin, cela n'aurait
servi b, rien. Le but avait 6t6 enti^remeut atteint dans la juridiction d'une autre puis-
sance souveraine, I'empire des Fran^ais.

Dans I'expose presents de la part des £tat«-Unis, on avance que le gouvernement de
sa Majestd aurait pu aller jusqu'iii saisir les vaisseaux dans la juridiction fran^aise, et le

OPINIONS OF MR. ADAMS. 193

t\itioQ is cited as a precedent. But it seems to me that the Government
of the United States would scarcely be ready to concede the right of a
forei^ power to settle questions of justice within its jurisdiction with-
out its knowledge or consent.

It may be urged that the opinions of the oflScers of customs that no
violation of law had been committed in the expedition of the Alar, was.
equivalent to a neglect of due diligence.

Upon which it may be remarked, that whether right or wrong at the
date it was given, and with the information then in possession of the
j^overnment, there is no reasonable probability that the Alar could
have been seized excepting perhaps in the waters of France.

On the loth of April, Mr. Adams addressed ji note to Earl Russell
covering certain papers which went to prove tlie manner in which men
had been enlisted in violation of the laws of the kingdom by parties in
Liverpool in co-operation with the insurgent agents.

Ill consequence of these and other papers which followed them, Her
Majesty's government were enabled to take the requisite steps to bring
the chief offender at Liverpool into the courts of justice. The reports
of the trials carried on in the court over which our distinguished col-
league presides, are among the papers before us, and they satisfy my
mind entirely in regard to the justice and impartiality with which the
proceedings were conducted. The parties were all convicted, and
though the penalties inflicted were much too light, they appear to have
been thought sufficient to establish the efficienc3' of the law.

It was in connection with such proceedings as these that Mr. Dudley,
in one of his letters to Mr. Seward, wrote tbat " the prosecution of these
parties, if conducted vigorously with the view of convicting them, will
do more to break up these expeditions and fitting out of vessels in this
country than anything else.^

UiK)n a careful review of these facts as they appear I r fore me, I can-
not j)erceive that Her Majesty's government has made itself in any way

♦'.isdel'exp^dition de Terreire est cit<5 comme un prcc6dent. M:iis il me semble que le
(ioiiveruement des fitats-Uuis ne soruib j^uore di8po^46 ;\ recounaitrB le droit d'lino puis-
»vince (^trangere a r<5i;ler dcs questions de justice daus .sa juridictiou saus sa counais-
.Hance ni son consentement.

9° peut avaucer que I'avis des oflloiers des douiues. qu'il n*y avait ou aucuno vio-
lation (le la loi daus I'exprditiou de I'Alar, dtjuivalait h, une ut'^^ligonce " d >« dues dil-
igences."

^ quoi on peut faire remarquer, qu'a tort ou ii droit, :\ la date oh il fut donndct avec
1*^ renscijjneinents qui ^itaieut alors on ]M)ssession du gouveruement, il ii'y a nulle
probability raisounablo que I'Alar efit pu ctre saisi, si ce n'est peut-(Hre dans les eaax
<le la France.

Le 15 avril, M. Adams adressa an Comte Russell une note renferraant certains docu-
ments qui tendaient a prouver comment des hommi»s avaiont ^*t<^ enrAlds en violation
^e« lois du royaume par des personnes de Liverpool en cooperation avec les agents

En consequence de ces documents et d'autres qui les suivirent, le gouvernement de

sa Majeste etait mis h meme de prendre des mesures m^'cessaires pour livrer les princi-

[»anx coupables de Liverpool h la justice. Les comptes-rendns des prooiis jugds devant

iacourque preside notre coUe^iue distingud se trouvent parnii les documents plac68

devant nous, et ils satisfont enti^rem^5nt mou esprit soils le rapport de la justice et do

rimpartialit^ avec le-(|uelles ces atiaires fureut conduites. Les parties fu rent toutes

comlamn6fc8, et quoique les peines intiig^es fussent beaucoup tro^) l<5yferes,elle^s semblent

avoir 6t^ jug^es suffisaut^^s pour 6tablir l'efficacit<5 de la loi. C'est a propos de proc6d68

tAa que ceox-ci que M, Dudley, dans une de sos lettres ^ M. Seward, ecrivait ces mots:

*' La poureuite de ces personnes, si elle est mende vigoureusemeut en vue de los con-

damner, fera plus que toute autre cbose pour faire avorter cos expeditions et I'equipe-

ment de vaifiseaux dans ce pays.^'

Dans ane revue soigneuse de ces faits, telsqu'ils apparaissent devant moi, je ne pais
trouverque le gouvernement de sa Majesty se soit rendu respousable en aucune mani^re

13 b

194 ARBITRATION AT. GENEVA.

L'able for the failure to use diligence in this case, under the first rule
prescribed in the treaty of Washington.

The Japan had now changed her name and become the Georgia. The
fraud had been most successfully perpetrated. An insurgent officer, by
the name of Maury, had taken the command of her, and the next thiug
we learn is of her depredations on the commerce of the United States.

It is not essential to the present purpose to go into any details of her
cruise outside of the possible limits of liability on the part of Her Maj-
esty's government.

In a report made by Kear- Admiral Sir Baldwin Walker to the secre-
tary of the admiralty, dated 19th August, 1863, appears the following
paragraph :

On the 16th instant, the Confederate States steamer Georgia, Commander Manry,
anchored in this (Simon's) bay. She requires coals^ provisions, and calking.

In a letter addressed by the governor at Cape Town to the duke of
Newcastle, bearing the same date, is the following paragraph :

On the 16th at noon, tlfe Georgia, another confederate "war-steamer, aiTived at
Simon's Bay in need of repairs, and is stiU there.

It may perhaps be my fault, but after a careful search I have been
unable to discover any official report other than these as to the arrival,
the time of stay, and the treatment of the Georgia during this. visit.
Inasmuch as this event was cotemporaneous with the arrival of the
Alabama and her tender the Tuscaloosa, both of which were engross-
ing the attention of the authorities of the place, it is possible that the
customary detailed report in regard to her may have been omitted.

The fact is at any rate certain that, notwithstanding her fraudulent
escape in defiance of the laws of Great Britain, this vessel was duly
recognized at Capetown as a legitimate vessel belonging to a recognized
belligerent.

In the cases of the Florida and of the Alabama I have alreadv ex-
pressed my deep regret that this mode of proceeding should have been

de nc^gligence j\ exercer diligence, dans ce cas, selon la premiere regie* prescrite par le
traits de Washington.

Le Japan avait chang^ de nom et 6ta,\t devenu le Georgia. La fraude avait 6t^ ac-
complie avec le plus grand snccKs. Un officier insnrgt^-, du nom de Maury, en avait
pris le commandement, et la promiore chose que nous en apprenons, ce sont ses depre-
dations sur le commerce des ^tats-Unis.

II n'est pas esscutiel pour le but prdsent d'entrer dans les d<^tails de sa croisiere en
dehors des limites possibles de la responsabilito de la part du gouverneuient de sa
Msyest^.

Dans nn rapport fait par le vice-amiral, Sir Baldwin Walker, an secretaire de Tami-
raut6, dat<5 du 19 aoAt 1863, se trouve le paragraphe suivant :

"Le 16 couraut, le steamer des <^tats-confed^rcs, le Georgia, commandant Maury, a
jet6 Tancre dans cette baie, (Simon*sBay.) II demande du charbou, des provisions et
de ponvoir ^tre calfat^."

Dans une lettre adressc^o par le gouverneur de Cape Town au due de Xewcostle,
IK>rtant la meine date, se trouve le paragraphe suivant :

"Le 16, h midi, le Georgia, autre vaisseau de guerre confM(5re, e^t arrive j\ Simon's
Bay, ayant besoin de r(^parations, et il est encore ici."

C*est peut-^tre ma faiite, niais apres une recherche soigneuse je n\ii pu d<5rouvrir
ancnn autre rapport offlciel britannique que ceux-ci sur Parriv^e, le t<etnps de s«^jour et
le traitement du Georgia pendant cette visit'C. En tant que ce fait se passait en mdme
temps que I'arrivde de TAhibama et de son tender^ le Tuscaloosa, qui tons deux absor-
b^rent Inattention des autorites de I'endroit, il est possible que le rapport detail!^
accoutumd ait pu Atre omis j\ son <^gard.

Le fait est en tout cas certain que malgrd son ^^vasion fraudulense, en d^pit des lois
de la Grande-Bretagne. ce vaisseau fut dflment reconnu k Cape Town comme vaisseau
legitime appartenant k un bellig<^rant reconnu.

Dans les cas du Florida et de TAlabama, j*ai d^jii exprim^ mon profond regret que
ette ligne de conduite eiit 6t/6 adoptee k r<^gard de vaisseaux qui s'^taient reodas

OPINIONS OF MB. ADAMS. 195

adopted in regard to vessels which had been guilty of a flagrant viola-
tion of the laws of the kingdom. The right to exclude them is dis-
tinctly recognized by Sir Eoandell Palmer in a speech made by him in
the House of Commons on the 13th of May, 1864/ while he assigned as
a chief reason for not exercising it the danger that such a decision
might have an effect of appearing to favor too strongly one side in the
contest. The fear of doing a thing demanded by what appears to be a
paramount duty of npholding the majesty of their laws because it
might possibly appear to lean too much against one party and in favor
of the other, seems to have been the guiding motive to the policy actu-
ally adopted. But the question immediately arises whether that party
had, in its extraordinary course of conduct within Her Majesty's do-
minions, earned any right to such consideration.

Be this as it may, Her Majesty's government decided otherwise, and
admitted the Georgia into the port of Simon's Bay, where she .appears
to have remained a fortnight, repairing her decks and receiving sup-
plies and provisions on the footing of a recognized belligerent. It has
been argued that in thus deciding, Her Majesty's government made
itself liable under the second rule, as permitting one of its ports to be
made a base of operations against the United States by a vessel which
had issued from the kingdom in defiance of its laws as a hostile cruiser.
1 have given to this view of the matter the most careful considera-
tion; but I regret that I cannot bring myself to concur in it. The ves-
sel escaped from the kingdom under circumstances which have already
been detailed in this paper, involving no neglect or failure of dnty on
behalf of the government. If, on arriving at an English port furnished
with a regular commission as a vessel of a recognized belligerent, Her
Majesty's government determines to recognize her in that character,
however much I may regret it, I cannot call in question her right to do
soon her responsibility as a sovereign i)Ower. This is a right I should
not consent to have drawn into question in any case so decided by

coupables d'une violation fla^^n^aute des lois du royaume. Le droit de les exclare est
wttement reconuu par Sir Roaudell Palmer dans un discoars qu'il lit A la Chambre
des communes le 13 mai 1864, tandis qii'il indiquaitcomme un motif principal pour no
pw I'exercer le danger qu'uno decision semblable pftt avoii; pour effet de paraltre
^voriser trop fortement uno des parties en lutte. La peur de faire uue chose exig^e
I*r ce qui scmble 6tre le supreme devoir de maintenir la majeste de ses lois, parco
qo'elle pouvajt paraltre incliner trop coutre uue des parties et en faveur de I'autre,
semble avoir 6t<S le mobile dirigeant de sa conduite effectivement adoptee. Mais la
<)(ie8tion s'eleve imm^iatement de savoir si ce parti avait par sa ligue de conduite
extraordinaire dans les ^tats de sa Majeste m(^rit(^ aucun droit :\ une semblable con-
sideration. Quo! qu'il en soit, le gouvernemeut de sa Majeste ddcida autrement et
admit le Georgia dans le port de Simon's Bay, oil il semble etre rest<^ une quiuzaine,
f^parant se8 pouts et recevant des subsides et des provisions sur le pied d'uu belligd-
ruit.reconnu.

On a avanc^ qu^en prenant cette d<Scision le gouvernemeut de sa Maje8t<5 s'^^tait rendu
responsable, d'aprfes la seconde regie, en permettant qu'uu de ses ports fflt employ <S
oomme base d'opdrations contre les ^^tats-Unis par un vaisseau qui dtait sort! du
royaume en bravant ses lois comme croiseur ennemi.

J'ai consacr^ Fesamen le plus soigneux ^ cette mani^re d-envisager la question, mais
je regrette de ne pouvoir m'y rattacher. Le vaisseau S'<^cbappa du royaume dans des
eircoustances qui out 6t6 dfjii ddveloppc^es dans ce mdmoire, ne renfermant ni ne-
gligence ni omission de devoir de la part du gouvernemeut. Si, li son arrivde dans un
port anglais, pourvn d'uue, commission rdguli^re comme vaisseau d'un belligdrant
recoDna, le gouvemement de sa Majesty decida de lui reconnaltre ce caract6re, quels
que pnissent etre mes regrets, je ne puis mettre en question son droit dVn agir ainsi
sons sa responsabilit^ oomme puissance sonveraine. Ceci est un droit que je ne con-
aentirais pas a laisser mettre en question dans aucun des cas oil les £tat»-Uuis auraient

'American Appendix, \oJ 5 p. 583.

196 ARBITRATION AT GENEVA.

tbe United States. It appears to me on the same footing with the
original recop^nition of belligerency, the primal cause of all these un-
pleasant questions — a step which I always regretted to have been taken,
but which I never doubted the right of Her Majesty's government to
take whenever it should think proper.

The Georgia, after leaving Simon's Bay, had but a short career. She
proved utterly unsuitable to the service into which she had been forced,
and finally returned to Liverpool, where she was sold, and turned into
a merchant-ship. A question has been raised as to the course of Her
Majesty's government in permitting this to be doue within her harbors.
I cannot myself perceive the importance ot the question, provided that
she recognized the right of the belligerent to dispute the validity of
such operations. That she did so is certain; for the Georgia, after her
transfer into private hands, was taken on the high seas by the United
Stiites steamer Niagara, and sent to America as a prize, to be disposed
of in regular course of law. A reclamation attempted by the owner, in
a note addressed to Earl Eussell, was met by a reply decisive of the
merits of the case.

In view of all the facts attending this case, and of the considerations
attending them, I am brought to the conclusion that it does not show
any such course on the part of Her Majesty's government as will suf-
fice to impose any responsibility for damages under the t^rms of the
three rules prescribed by the treaty of Washington.

VIII. — THE SHENANDOAH.

We have now reached the last vessel, in the order of events, which is
?a.n.ndo«h. prescutcd to this tribunal for its consideration.

It appears clearly, from the papers before us, that the steadily grow-
ing energy manifested by Her Majesty's government in preventing the
departure of vessels obviously iu tended to carry on war had not been
without its eftect upon the parties engaged in procuring them. The seiz-

cl<^c.i(l(^ de mAiiie. II me parnlt qn'il en est do nit^me do la premiere reconiiaissaQoe d©
1>elli^<^M'ance, la cause pnMnioie de toiitey ces qiiehtions iiialhenreu^es, d-marche que
J'ai tonjours regretto que Ton eftt prise, inais que le •;ouveriiemeut de sa Majest<S avait
le droit de prendre, jo u'en ai jauiais doutc^, quuud il le ju^jeait couveuablo.

Le GeorjLria, apii-s avoir quitttS Simon's Bay u'eftt (prune courto ca^ri^re. II 86
moutra tout :\ fait inipropre au service qu'il avait 6t6 t'ovc6 de faire, et rvjvint enfin 4
Liverpool, oii il iiit veudu et transformo en vaisseau marchand. Ou a soulevo une
question ii Tegard de la conduite du fjouvernement de sa Majest«5, en permettant que
ceci fftt fait dans ses ports. Je ne puis comprendre I'importauco de la question,
pourvu qu'il reconnilt le droit du belli;:;orant de coutester la validit<5 d'opiSratiouB
semblables. 11 est certain cpi'il le tit, car le Georgia, J»'>re8 son transfert en mains par-
ticulitires, fut pris en haute mer par le steamer cbwj Etat^-Uuis le Niagara, ct cnvoy^
en Amdrique comme prise pour en disposer suivant la loi. line r<5clamation tent45e par
le propritSiaire dans une note adressco au Comte Russell rcf ut une reponse qui trancha
la question.

En considerant tons les fails (pii se rapportent a ce cas et tout ce qui 8;v rattache, je
Ruis amend, il la eoiielusion qii'il ne tdinoigne pas de la part du gouvernement de 8»
Majest^S d'une conduiteu <iui snttise pour imposer aucuno responsabilit6 en dommages
d'apr^s les termes des trois regies prescritos par le traito de Washington.

LE SIIKNANDOAH.

•

Nous 8(»mme8 main tenant arrivds au dernier vaisseau, dans I'ordre des 6v<5nemeDt8,
pr(Ssent6 h I'examen de ce tribunal.

II ressort clairemeut des documents places devant nous qne Tdnergie toi^onro
croissante roanifest^e par le gouvernement de sa Majesty, pour empdeher le depart do
vaisseaux dviderament destinds k faire la guerre, n'avait pas 6t6 .sans effet sur les per-
sonnes qui s'^taient engag6es ^ les fouruir. La saisie des b^^liers k va^ear .bliad^s

OPINIONS OF MR. ADAMS. 197

nreof the iron clad steam rams, built by Messrs. Laird, seems to have dis-
pelled all further idea of attempting open operations of that description.

Efforts were now directed to the prosecution of schemes that would
elude observation. In the execution of this policy, swift vessels, con-
stnicted for commercial purposes, were looked up. And when found
reasonably adapted for conversion into privateers, measures were taken
to procure the control of them so suddenly as to effect their escape from
the British jurisdiction before any means of prevention could be put
into operation.

A skillful combination of the means of supplying an armailient and a
crew at some prearranged point on the high seas far beyond the Brit-
ish jurisdiction, in a vessel so quickly and secretly pushed out of a
British port as to battle pursuit, completed the adventure.

This plan had been attended with complete success in the case of the
Georgia. It was now resorted to with a few variations in the case of
the Shenandoah.

The British steamer Sea-King had been built for a merchant vessel
and employed in the China trade, during which period she had gained
mnch reputation for her speed and her sailing qualities. In the year
1864 she appears to have attracted the attention of the insurgent agents
in England, and they proceeded through their customary British affilia-
tions to get her into their hands. On the 20th of September the
purchase and transfer were effected in the port of London. A per-
son by the name of Wright, a British subject, appeared as the owner.
OntheSthof October this vessel cleared from that port in the usual
way for Bombay, without exciting observation. The crew had been
bired for that voyage.

Simultaneously with this movement, a screw- steamer, called the Laurel,
issued from the port of Liverpool, having a considerable number of
passengers on board, and a cargo composed of an armament and ammu-
nition suitable for a vessel of war. Her nominal destination was Mata-
moras, via Nassau.

fiODstniits par MM. Lainl seniblo avoir fait evanouir toiite id<5e ult<?rienre de nouveUe
tentative d'op<^ratiou8 de cette nature.

D^ lors, on 8*effor?a de poursuivre des plans qui permissent d'echapper aux observa-
tions. Dans la r^lisation de co dossein, on chercha des vaiaseaiix rapides construits
poar des entrepriaes eommerciales. Et qaand on les trouyait assez bien adaptcs pour
dtre convertis en corsaires, on prenait des mesures pour les obtenir assez snbitement
poor effectuer leur evasion de la juridiction britannique avant qu'aucune niesure

preventive pftt <itre mise i\ execution.
Une habile combinaison des moyens de ponrvoir h I'armenient et :\ IN^qnipement, sur

qoelqne point fixd d'avance en haute mer, bien loin de la juridiction auglaise, par un

vaissean mis hors d'un port anglais assez rapidement et secretement pour ddjouer

tonte poursnite, corapldtait I'aventure.
Ce plan avail rcussi couipldt^ment dans le cas du Georgia. On y eut recours, aveo

qnelqnes variations, dans le cas dn Shenandoah.
Le steamer anglais Sea King avait 6t6 construit pour etre un vaisseau marchand, et

i|;ents

lions anglaiscs ordinaires, i\ I'acquerir. Le 20 septembre, Pachat et le transfert furent
effectn^ dans le port de Ltmdres. Une personne du nom de Wright, sujet anglais,
apparalt corame le propridtaire. Le 8 octobre, ce vaisseau s^acquitta de ce port en la
mani^re ordinaire pour Bombay, sans provoquer d'obseryatious. L'equipage avait 6t6
eofiAgS ponr ce voyage.

Simultan^ment avec ce mouveraent, nn steamer b, h^lice, nomm<5 le Laurel, sortit da
portde Liverpool, ayeibt nn nombre considdrable de passagers i\ bord et une cargaison
compost d*un arraement et de munitions propres i\ un vaisseau de guerre. Sa desti-
natioD ^tait Matamoras, via Nassau.

198 ARBITRATION AT GENEVA.

The true destination of both ships was the vicinity of the island of
Madeira. There they actually met, on or about the 21st of October;
and there the process of transfer of the armament and the men was
eflected on the hi^i^h sea.

This operation had been conducted with a degree of success exceed-
ing that of the Georgia. Even the vigilance of the consul of the United
States at Liverpool had resulted only in the formation of conjectures,
reasonable in themselves, and partially well founded in fact, but unsus-
tained by any positive evidence. That was not obtained until the
return of many of the crew of the Sea-King, who had refused to take
the new departure, when it was disclosed to them by tlie tnie com-
mander of the vessel, now called the Shenandoah.

Thus far I have onl^' to repeat the observations I made in the case of
the Georgia. Placing myself in the position of any neutral power pos-
sessing an extensive commercial marine and a large number of ports,
it seems to me that no ordinary degree of diligence could be likely to
avail to prevent the execution of such skillfully-contrived enterprises.

Her Majesty's consul at the port of Teneriffe appears to have done all
that it was in his power to do in the premises. On the arrival of the
Laurel at that place, and learning the state of the facts as given to him
by the parties on board, he prepared a careful report of the same, and
addressed it to Earl Russell. He also assumed the resi>onsibility of
seizing the master of the Sea-King, P. J. Corbett, and sending him home
for trial as having, even though at sea, violated the provisions of the
foreign-enlistment act.

On the 26th of January, 1865, Commander King, of Her Majesty's
ship Bombay, writes to Commodore Sir W. Wiseman.

I copj' the essential parts of his letter :

1. I conceive it to be my duty to report to you that a vessel of war
of the Confederate States of America arrived and anchored in Hobson's
Bay yesterday, the 25th instant.

3. Her name is the Shenandoah, a screw-vessel, &c.

La vraie destination des deux navirea Hiiit les para<]fes de I'lle de Madt'rt\ lis s'y
rencontrerent etfectivenient veMle 21 octobre, H lis proced<>rent au trausfert de Famie-
ment et des honiiues en haute mer.

Cette oi>^ration avait 6t6 couduite avec un de*rr<5 de succ«^s qui depassait meme celni
du Georgia. Meme la vigilance du consul des fitats-Unis i\ Liver)>ool u'avait abouti
qu^\ des conjectures, raisonnables en elles-memes, et en partie bien fond<5e8 en fait,
mais non appuy^^es d'aucune preuve positive. Une preuve de cette nature ne fut
obtenue qu'au retour de plusieurs des homnios de I'^quipage du Sea King, qui avaient
refuse de signer le nouvel engagement quaud celui-ci leur avait 6t6 r«5vdle par le vrai
commandant du vaisseau nommd d^s lors le Shenandoah.

Jusqu'ici, je n'ai qu'i\ r<^pdter les observations que j'ai faites dans le cas du Georgia.
En me plnyant dans la position d'uue puissance neutre, i)oss<^dant nue marine com-
merciale <?tendue et un grand nombre de ports, il me semble qu'aucune diligence ordi-
naire u'aurait probablemeut suffi i)our emnt^cher rex<?cntion d'entreprises si babilement
conduites.

Le consul de sa Majesty du port de Teneriffe semble avoir fait tout ce qu'il ^tiait en
son pouvoir de faire dans ces circonstances. A Tarrivt^e du Laurel dans ce lieu, et en
apprenant Tdtat des faits, comme les lui dirent les personnes a bord, nou-seulenient il
en pr<^para un rapport soigneux adress<^ au Corat« Russell; il assuma aussi la respon-
sabilit^ de saisir le capitaine du Sea King, P. I. Corbett, et de I'envoyer en Angleterre
pour y etre jug<5 comme a^^ant viold, quoique en pleine mer, le foreign-rnUBtment act,

Le 26 Janvier 1865, le commandant King, du vaisseau de sa Majesto le Bombay, s\
Hobson's Bay, 6cnt au commandant Sir \V. Wiseman. Je copie les x>arties essen-
tielles de sa lettre :

" 1. Je crois qu'il est de mon devoir de vous rapporter qu'un Vaisseau do guerre dee
dtats-confeddr<5s d'Am(^rique arriva et jeta I'ancre ji Hobson's Bay bier, le 25 courant.

" 3. Son nom est le Shenandoah, vaisseau il hdlice. etc.

OPINIONS OF MR. ADAMS. 199

4. Her armament consists of eight guns, viz, four 8-inch, (English,)
two 32-pounders, (Whitworth,) and two 12-pounder8, intended more
especially for boat service.

5. The crew at present consists only of seventy men, though her
proper complement is one hundred and forty ; the men almost entirely
are stated to be either English or Irish.

8. The ship appears to be in good order, her officers a gentlemanly
set of men, in a uniform of gray and gold ; but, from the paucity of her
crew at present, she cannot be very efficient for fighting purposes.

9. Leave had been asked by the commander for permission to coal
and repair machinery, &c.

It is to be noted here that, from the statements made by this officer,
it appears he had an opinion clearl}^ formed that, in the condition
this vessel was in at the time she arrived in port, and with such a limited
crew, she could not be efficient as a fighting ship.

The application nnylf^. by the master of the Shenandoah to the gov-
ernor of the colony, Sir C. H. Darling, was in these w ords :

I have the honor to annonnce to your exeollency the arrival of the Confederate States
steamer Shenandoah, under my command, in Port Philip this afternoon, and alao to
conjiuunicate that the 8teaM»cr^s machinery requires repairs, and that I am in want of
coals.

I desire yonr excellency to grant permission that I may make the necessary repairs
*ud supply of coals, to enahle me to get to sea as quickly as i>ossible.

It is to be noted that the object here mentioned was to get to sea,
without the specification of any port of destination.

On the 2Gth of January, Mr. Francis, commissioner of trade and cus-
toms, by direction of the governor. Sir Charles Darling, addressed a letter
^o the commander, Waddell, of which the essential part is as follows:

In reply, I have received the instructions of Sir Charles Darling to state that he is
^Ujing to allow the necessary repairs to the Shenandoah, and the coaling of the ves

^ ** 4. Son armement consiste en huit canons, savoir, quatre de huit ponces anglais
^^nx de trente-deux Whitworth, et deux de douze, destines plus spdcialemeut au ser-
^^co des embarcations.

''5. L'<^quipage n'est maintenant que de soixante-dix hommes, quoique son total
yoive dtre de cent quaraute ; les hommes sont presque tous, dit-on, anglais ou
^flandais.

**8. Le vaissean bon paralt en etre etat; les officiers sont un corps de messieurs
^ommeil faut, en uniforme gris et or ; mais h cause du petit nombre de ses hommes
d'^quipage en ce moment, il ne pent pas ^tre bien capable de se battre.

^'9. Permission a 6t6 demandde par le commandant de faire du charbon et de rdparer
8a machine," etc.

II faut remarquer ici que, d^apres les renaeigneraents donn<53 par cet officier, il paralt
que son opinion 6tait nettenient form^e que, dane I'^tat oh <^tait ce vaisseau h I'^poque
oh il arriva dans le port, et avec nn Equipage si pen nombreux, 11 n'dtait pas capable
de jouer le rAle d'un vaisseau de combat.

La demande faite par le capitaine du Shenandoah au gouverneur de la colonic, Sir
C. H. Darling, ^tait conyue dans ces termes :

" J^ai I'honneur d'annoncer i\ votre exceUence Tarrivtie du steamer des ^tats-conf6d^r^
le Shenandoah, sous mon commandement, h. Port Philip, cette apres-midi, et aussi de
coDimaniquer que sa machine exige des r<5parations et que j'ai besoin de charbon.

** Je desire que votre excellence m'accorde la permission de faire les reparations
n^^esftaires et les provisions de charbon pour que je puisse prendre la mer le plus t6t
possible.''

11 faut remarquer que le but ici mentionn(5 (Stait de x>rendre la mer, sans indiquer
ancnn port de destination.

Le26 Janvier M. Francis, commissaire du commerce et des douanes, sur Pordre dn
gouverneur, Sir Charles Darling, adressa une lettro au commandant Waddell, dont la
partie essentieUe est*comme il suit :

**En r^ponse, j'ai re^u pour instructions, de Sir Charles Darling, de vous dire qu'il
est dispose h accorder les reparations n^cessaires au Sheuaudoah, et I'approvisionne-

200 ARBITRATION AT GENEVA.

sel beinfi; at once proceeded with, and that the necessary directions have been given
accordiugl3'.

At the same time Mr. Francis communic;ited to this officer a copy ol
the general orders of the Duke of Newcastle, in regard to what is CiiUed
the twenty-four hours rule, and likewise those embraced in a letter
of Earl Russell to the Duke of Newcastle, of the 3Ist January, 1862,
covering Regulations applicable to all questions ordinarily arising out of
the arrival of similar vessels.

On the 26th, the 27th, and 28th of January, Mr. Blanchard, the consul
of the United States at Melbourne, addressed to Sir Charleys Darling
three successive letters, protesting against the recognition of this vessel
as belonging to a belligerent, on the ground of her origin, her conver-
sion at sea, and her actual condition.

On the 30th of January, his excellency states to the council of the
colony :

That be had replie<l to the United Static consul to tho efft^ct that, having given an
attentive consideration to his letter^ and having consulted with the law-oibcers of the
Crown, he had come to the decision'.that the government of this colony were bound to
treat the Shenandoah as a ship of war belonging to a belligerent power.

His excellency then consults the conucil on the only point upon which ho thonght
any doubt could arise, viz, whether it would be expedient to call upon the lieutenant
commanding the Sheuandoah to show his commission from the government of the Con-
federate States, authorizing him to take command of that vessel for warlike puri>oses.

After a brief couHultation, a majority of his advisers tender their opinion that it
would not be expedient to do so.

I do not find, on the part of Her Majesty's government, any notice of
this decision among the papers before us. Thus, it appears that
once more it had been determined to sanction a proceeding known to
have been executed in defiance of the laws of Great Britain, and of the
pledges of the government to maintain a strict neutrality in the contest.
The principle that success sanctions a fraud had again been ratified
under circumstances which could not fail, and did not fail, to entail upon
its supporters the heaviest kind of responsibilities.

ment de charbon dn vaisseau, auquel on pent proc<Sder de suite, et que les ordres ni^es-
saires ont 6t6 donuds en cons^qnence.''

£u mSme temps, M. Francis communiquait ^ cet officier un exemplaire des ordres
g^^raux du due de Newcastle sur ce qu'ou appelle la r^gle des vingt-qnatre heures, et
anssi ceux contenus dans une lettre du Comte Russell an due de Newcastle, du 31 Jan-
vier 1862, renfermant des regies applicables li toutes les questions que soulevait ordi-
nairement Parrivde de vaisseaux semblables.

Le 26, le 27 et le 28 Janvier, M. Blanchard, consul des £tats-Unis h Melbourne,
adressa h Sir Charles Darling trois lettres successives, protestant centre la iticonnais-
sance de ce vaisseau comme appartenant ik un bellig6rant, ii cause de son origine, de sa
transformation en nier et de sa condition actuelle.

Le 30 Janvier, son excellence expose an conseil do la colonic:

^'Qu'il avait rdpondu au consul des £tat«-Uuis en substance, qu*ayaut donne nno
attention s^rieuse ii ces lettres, et ayant consults les Maw-officers' de la ccmronne, il
avait ddcidd que le gouveruement de eette colonic <5tait oblig<5 de traiter le Sheuandoah
comme vaisseau de guerre apparteuaut ^ un pouvoir bellig^rant.

^*Son excellence consulte alors le conseil sur le senl point sur lequel il pensait qu'un
donte pilt s'dlever, ii savoir, s'il serait convenable d'inviter le lieutenant commandant
le Shenandoah ii montrer sa commission du gouveruement des 6tat8-coufed<Srds Tau-
torisant h prendre le commandemeut de son vaisseau pour des projets guerriers.

"Apr^s une br^ve delibdratiou, une majority de son conseil donna sou avis qu'il no
serait pas ^ propos de le faire."

U ne 86 trouve do la part du gouveruement de sa MajestcS aueune tra€e de cette
decision dans les documents qui sont devant nous. Aiosi il paralt qu'^une fcHS de plus on
d^cida de sanctionner un acte connu pour avoir 6t6 ex4Scut6 en d^fi des lois de la Grande-
Bretagne, et des promesses du gouveruement de maintenir une strrete neutrality dans le
conflit. Le principe que le succes sanctionne une frande avait 6t6 de nonveau ratifi^, dans
des circonstances qui ne pouvaient pas manquer et qui ne manqu^^rent pas d*attirer
sur ses parti8ans la reRpouRabilit^ la plus lourde.

OPINIONS OF MR. ADAMS. 201

For, in the series of consequences that happened at Melbourne, it

was no more than natural to expect that the parties guilty of the first

ofifense should be likely to resort to others of the same nature whenever

there should appear that any advantages were to be gained by it. The

authorities at Melbourne seem at first to have acted as if the baptism

of the vessel into a now name had, in their eyes, washed it white of all

its past sins. They were destined to learn a different lesson, but nobody

seems to have repented, with the exception, perhaps, of the governor

himself, whose latest significant declaration on that subject I shall have

occasion to notice hereafter.^

The application of the insurgent officer Waddell for leave to make
repairs and get supplies was made on the 25th of January. Five
days passed, and he had just discovered, from an examination made by
a diver, that repairs were necessary under the wat/Cr-line, which would
require that the vessel should be placed on the government slip, there
to continue not more than ten days. Meanwhile he had not yet be-
thonght himself to give to the authorities, who had requested it, any
report as to the quantity and the nature of the supplies which he
desired.

Thus delays were interposed, for one reason or other, until the 18th of
February, when the vessel sailed.

The commander had in this way managed to secure a period of twenty-
three days, during which time he could set in operation the means of
starting on his projected expedition in an effective manner.

It should here be observed that, in all his movements, he was much
fevered by the almost universal sympsfthy of the residents at Melbourne
and the colony. Whatever he could ask that was permissible they
would enthusiastically furnish. Whatever he dared to do that was not,
they were indisposed to perceive or to disclose.

Under these circumstances, there cannot be a doubt that, during all

Car, dans lii sdrie dcs effets qui se produisaient i\ Melbonrne, il n^^tait que Daturel
d'attendre que les personucs coupables de celte offense i\ Vorigine recourraieut probable-
ment si d^autres mo3'eus de la lu^me nature toutes les fois qu'il paraltrait qu^uu but
utile ponrrait Atre atteint de cette mauiere. Les autoritds de Melbourne seniblent
d'abord avoir agi corauie si le baptcme de ce vaisseau d'un conveau nom Tavait purifi^
de tons ses p<5cb<^s passes h leura yeux. Le destin avait uue autre leyon h leur appren-
dre, mais persouue ne semble s'etre repenti, ti I'exceptiou peut-etre du gouvemeur lui-
meme, dout j^aurai occasion de meutiouner ci-apres la dernit^re declaration signifi-
cative.

La demande de Vofficier insurgt"), Waddell, qu'il lui f(it permis de faire des reparations
et d'obtenir des provisions, fut iaite le 25 Janvier. Cinq jours se passerent, et il venait
de d6couvrir, par un exanien fait x>ar un plongeur, que des reparations etaient neces-
laires sous la ligne de flottaison, ce qui exigerait que le vaisseau ffttplacd sur le bcrdn
goavemement pour n^y restcr que dix jours. En attendant, il n'avait pas encore songd
k donner aux autorit^s, qui ravuient demande, un rapport sur la quantite et la nature
dee subsides qu'il desirait.

Ainsi des deiais inter vinrent, pour une raison on pour une autre, jusqu'au 18 fevrier,
oil le vaisseau parti t.

Le commandant avait manoeuvre de cette fa^on pour s'assurer une periode de vingt-
trois jours, pendant laquelle il put mettre i^ execution les moyens de partir pour sou
exp^ition projeteo d'une mani^re effective.

U faut remarquer ici que dans tons ces mouveraents il fut extrdmenient favorise par
la sympathie presque uuiverselle des babitants de Melbourne et de la colonic. Quoi
qu'il deniand^t de choses permises, its voulaieut bien les lui fournir avec entbousiasme.
Qooi qu'il os/lt fairg d'injustc, ils n'etaient pas disposes H le voir ni h le decouvrir.
Dans ces circonstances, on ue peut doubter que, pendant tout cet intervalle de temps,.

* British Appendix, vol. i, p. 722.

202 ARBITRATION AT GENEVA.

this interval of time, he was constantly busy in secretly obtaining addi-
tions to his crew. This was indispensable to his ulterior operations.

Had the matter depended on the energy of the authorities and popu-
lation of Melbourne alone to i>revent this, he would have had all he
wanted without a word of notice. Unluckily for him, he found the
consul of the United States, Mr. Blanchard, on the watch to check and
expose his proceedings by all the means in his power. On the 10th of
February, that officer addressed a letter to the governor inclosing the
deposition of John Williams. In it, this w itness affirmed that, on the
Monday previous, there had been fifteen or twenty men concealed in
ditterent parts of the ship, who had gone on board since her arrival
sixteen days before.

This statement it is material to connect with a part of the report made
by Captain Payiie to the authorities on that same day. He had been
instructed to make a careful examination of the vessel. In his report
he has this i)assage :

There appears to bo a mystery about her forehold, for the foi^eraan of the patent slip,
when asked to go down to that spot to measure her for the cradle, was informed he
could not f^et to the skin at tliat i»lace. The hatches were always kept on, and the
foreman states that he was informed they had all their stuff there.^

Another witness, obtained by Mr. Blanchard, named Walter J. Mad-
den, testified that, when he left the vessel on the 7th of February,
*' there were men hid in the forecastle of the ship and two working in
the galley, all of whom came on board of said vessel since her arrival
in that port ; that the officers pretend they do not know that said men
are so hid."

On the 14th of February Mr. Blanchard sent another deposition, of a
man named Herman Wicke, specifically' naming one person as having
come on board. These ai*e his words :

The rations in Hobson's Bay are sent out by the master-at-arms, who gives them to
Quartermaster Vickings, and this latter brings them to the gaUey to be cooked, by

il ne fftt constarament k Ta^nvre ponr obtenir secretement une augmentation considera-
ble de son dquipage. Ceci dtait indispensable pour ses oporatious ulterieures.

S'il eftt ddpeudu de I'duergie des autoritt^s et de la population de Melbourne senle.
ment de I'emp^cher, il aurait en tout ce dont il avait besoin sans un mot de critique-
Malheureusement pour lui, il trouva le consul des l^tats-Unis, M. Blanchanl, aux
aguets, pour r<?i)rimer et pour d<5voiler, par tons les moyeus en son pouvoir, ses pro-
cedes illdgaux. Le 10 fi5vrier, il adressa nue lettre an gouverneur, renfermant la
deposition de John Williams. Dans celle-ci, co t<^moin attirmait que le lundi pr<5ce-
dent il y avait eu quinze on vingt hommes cacht^s dans dittt^rentes parties du vaissean,
qui otaient alldes ;\ bord depuis son arriv<5e, seize jours auparavant.

II est essentiel de rapprocher cette affirmation d'un paragraphe d'un rapport fait ce
raf'rae jour par le capitaiue Payne aux autoritds. II avait re^u I'ordre d'examiner
soigneusement le vaisseau. Dans son rapport se trouve ce passage :

*' II semblo qu'il y a un mysture li lYgard de sa cale d'avaut, car le contre-maltre du
ber patent<5, lorsiju'on lui demauda d'y descendre pour le mesurer en vue de le mettre
sur le berceau, fut inform^ qu'il ne pouvait pas arriver jusqu'i\ la coque en cet eudroit.
Les panneaux de Tocoutille otaient toujours fermes, et le coutre-maitre depose qu'oa
lui a dit qu'ils y avaieut toutes leurs afi'aires."

Un autre t<^moin, trouv<5 par M. Blanchard, nomm<5 Walter G. Madden, d^^posa que
lorsqu*il quitta le vaisseau, le 7 fdvrier, il y avait des hommes cachds dans le gaillard
d'avant du vaisseau, et deux qui travaillaient dans la cuisine ; tons ils Otaient veuus .\
bord du dit vaisseau depuis son arriv^e dans ce x^ort; que les officiers pretendent ne
pas savoir que ces dits hommes soient ainsi caches.

Le 14 f<5vrier, M. Blanchard en voya une autre d6i)osition d*un hommenomm6 Herman
Wicke, indiquaut; par sou nom spticialement, une i>ersonne comme <5tant venue ^ bord.
Yoici ses paroles :

*' Les rations h Hobson's Bay sont servies par le capitaine d'armes qui les donne aa
quartier-maltre Ticking, et ce dernier les porte a la cuisine pour y etre cuites par un

^ British Appendix, vol. 1, p. 557.

OPINIONS OF MR. ADAMS. 203

^ook known by the name of Charley ; that said cook Charley was not onboard the
Shenandoah on her arrival in the bay ; he went on board Hiuce her arrival^ and he
told me he would join the ship as cook ; that he dared not to do it in port, but that he
'^vould do it when proceeding outwards; that I also saw said cook take rations to a
number of men concealed in the forecastle, who went on board since her arrival in
Hobson's Bay.

This testimony was laid before the law-officers, wlio deemed the first
deposition by itself sufficient evidence to lay informations ag^ainst the
mail enlisted, and this appears to have x>rompted the council, not to
take any proceedings against the commander, but to direct an inquiry
to be made when he would be ready to go away.^

It was the tempted on which indignation was to be expended. The
trae cause of the violation of law was to go his way in peace.

On the heels of this information came a report from the police depart-
ineiit that twenty men had been discharged from the vessel since her
arrival in port.

If this report was correct, then her crew, according to the report of
Captain Payne, must have been reduced to filly men.

On such a basis she could scarcelv have ventured on anv hostile
cruise. It seems tolerably plain that the object of sui)plying this defi-
ciency was kept in view from the first.

The detective proceeded to state that the captain intended to ship
forty hands, to be taken on during the night, and to sign articles when
outside the Heads. He wanted foreign seamen only; but, if English
^ere to be taken, they must assume a foreign name.

Further information from other sources given on the same day raised
^lie number of men actually engaged to sixty.

It thus appears that the authorities at Melbourne were, as early as
^Ixe 13th, fully apprised of what was the movement of the commander,
^rid in a situation to adopt energetic measures of jirevention, if they
^liould think proper.

^Uisinier connn sous le nom de* Charley^; le dit cnisinier * Charley' n^dtait pas ii
^ord du Shenandoah h son arriv<^.e dans la baie ; 11 vint h, bord depuis son arriv(5e et me
^itqu'il Yonlait prendre du service sur le vaisseau comme cuisinier ; qu'il n'osait pas le
^uire dans le port, mais qu'il le ferait lorsqne le vaisseau sortirait. J'ai vu aussl le dit
^nisinier porter des rations k des homnies cachds dans le gaillard d'avaut, qui vinrent
u bord depuis son arrivde a Hobsou's Bay."

Ce t<5moi^najfe fut soumis aux "law-officers," qui jugerent la premiere ddposition
preuve sufi&ante par elle-menie pour ddcerner un mandat d'arret centre les hommes
enrOlds, et ceci paralt avoir engage le conseil, non pas li prendre aucune niesure centre
le commandant, mais a ordoner qu'uue enquete fftt faite pour savoir quand 11 serait
pr«^t h partir.

Ce fut sur cenx qui avaient ^t6 s<5duit8 que I'indignation dovait se dcSverser ; le veri-
table aut«ur de la viotation de la loi devait s'en aller en paix.

Imm<^diatement apr^s ce mandat d'arrdt, vint un rapport du ddpartement de police,
que vingt hommes avaient quitt^ le vaisseau depuis son arrivde dans 1© port.

Si ce rapport dtait exact, son dtjuipage alors, d'ai>re8 le rapport du capitaine Payne,
doit avoir ei6 rdduit h cinquante hommes.

Sur une telle base, il pouvait h peine s'aventurer dans aucune croisi<>re hostile.

L'agent de police dit ensuite que le capitaine se iiroposa de recruter quarante
hommes, qui devaient monter a bord de nuit et signer les engagements quand ils serai-
ent hors des " Heads." II ne voulait que des marins Strangers, mais, s'il fallait prendre
des Anglais, ceux-ci devaient adopter un nom Stranger.

Des renseignements ultdrieurs, d'antres sources, donnds le m^me jour, dlevaient le
norobre des hommes effectivement engages a soixante.

II paralt ainsi que les antoritds de Melbourne dtaient, d^s le 13, pleinement inform^es
de ce que faisait le commandant, et en 6tat d'adopter des mesures de prevention, si ellea
le jugeaient convenable.

^ British Appeddix, vol. 1, p. 5*21.

204 ARBITRATION AT GENEVA.

The only measure which api^ears actually to have been taken was to
issue a warrant against the man Charley.

The officer charged with the warrant proceeded to the steamer in
which the man was supposed to be. The commander was not on board.
The officer next in charge at once refused to give him any assistance,
and forbid his going over the ship.

The next day he returned, and applied to the commander himself.
That officer is reported to have used these words : " I pledge you my
word of honor, as an officer and a gentleman, that I have not any one
on board, nor have I engaged any one, nor will I while I am here.''

How is this evidence to be reconciled to all the previous testimonj*,
and the suspicious circumstance mentioned by Captain Payne f

The rest of the evidence of the boarding-officer is quite important,
though not essential to transfer to this paper. The whole is accessible
in the first volume of the Appendix to the British Case. The issue of
the application was, that the commander absolutely refused to let the
officer look over the ship for himself. On a second demand of a more
pressing kind, he again refused, and added that " he would fight his
ship rather than allow it" — a threat as absurd in his then situation as
it was offensive to the authorities of the colony.

The governor in council, on receiving the news of this open defiance of
all recognized authority, at once took notice of it by issuing a prohibi-
tion to all the subjects of the colony of giving further aid or assistance
to the vessel then on the slip, which practically exemplified in an instant
the folly of the insurgent officer's proceeding.

Had the authorities persevered in this course, it is altogether likely
that the commander, Waddell, would have ultimately been compelled to
abandon all his schemes of illegal outfit, and with it perhaps the enter-
prise he was meditating.

Unfortunately, they listened to weaker counsels. They appeale<l
to the officer to reconsider his determination. %The letter containing
this appeal was delivered to him on the evening of the 14th. He an-

La senle mesure qui semble avoir ^te prise effectivemeut fiit do (16ceruer un mamdat
d'arr^t centre ** Charley." * «

L'officier char^<S du mandat so reudit an steamer oii rhoraiue dtait snpposd (Mre. Le
commandant n'dtait pas i\ herd, L'otticier en charge an-dcssous de lui refusa de suite
de lui aider en aucune mani^re, et lui dofendit de uionter sur lo vaisseau.

Le lendemain, il revint et s'adressa au commandant lui-imMuo. On rapporto que cet
officicr dit ces mots : "Jo vous donno ma parole d'honueur d'ofticier et de gentilhomrae
que je n^ai personue li bord, quo jo n'ai engagd persouno ot que je n^eugagorai personne
pendant que je serai ici."

Comment accorder cette prenve avec toutlc t<^moignago precedent, et avoc les circon-
Btances suspected mentionnc^es par lo capitaiue Payne f*

Le resto dn tduioiguage de I'oilicier qui alia i\ bord est tr^s-important, quoiquMl ne soii
pas essentiel de Fintroduire ici. On pent trouvor le tout dans Ic pramier volume de Tap-
pendice du *' British case.'' Lo rcsultat de la demande tut quo le commandant refusa
absolument do permottre ;\ I'agent do chercher sur le vaisseau par lui-mc^me. A une
seconde demando, d^me nature plus instaute, il refusa de nouveau et ajouta: *^Qu*il
livrcrait bataille plutot que de lo permottre ;" menace aussi absurde, dans sa situation,
qn'otfensante envers les autoritds de la colonie.

Le gouverneur, en conseil, en recovant la nouvello de ce d^fi ouvort de tout« autorii^
reconnue; en prit note de suite, en <^mettant une defense i\ tons les sujets de la colonie
de donner aucune aide ou assistance ult^riouro an vaisseau, alors sur le ber, ce qui
montrad'une niani^ro pratique, en un instant, la folio do la conduito dol'ollicior insurg<S.

Si les autoritds ava(ent pers45vcr<$ dans cetto manit^re d'agir, il est probable que le
commandant Waddell aurait 6t6 enfin forc6 d'abandonner tons ses plans d'equipement
ill<^.cal, et avec cela, peut-etre, Fentreprise qu'il m^ditait.

Malheureusemcnt, ils prC'terent I'oreillo ^ des conseils plus faibles. lis en appel^rent
ik Fofficier pour qu'il rdfldchlt sur sa determination. La lettre contonant cette invita-
tion lui fut remise le soir du 14. II y repondit en protestaut contre les obstacles mia

OPINIONS OF MR. ADAMS. 205

gwered it, protesting against the ojjstruction thus put in his way. The
fir^t sentence is all that is material in this connection. It is in these

words :

"I have to inform his excellency the governor that the execution of the warrant was
Dot refused, as no mich person as the one therein specified was on board.''

There were two falsehoods in this sentence. The reason assigned
could not explain the fact of the refusal. Scarcely was the letter
placed in the hands of the messenger, when the attention of the water-
police was attracted to the fact that four men were leaving the Shenan-
doah in a boat pulled by two watermen. They were headed off and
arrested. And then it was discovered that the man Charley, so posi-
tively alleged not to have been on board, was one of the four.

Yet, strange as it may seem, the fact of this discovery of a clear vio-
lation of the foreign-enlistment act was communicated to the perpe-
trator in a letter which, by way of compensation, announced to him that
the injunction upon British subjects to withhold all aid to his vessel was
thenceforth taken off.

The reason assigned for this change of policy was that, in the situation
of the vessel on the slip, a sudden storm might endanger its safety, and
in that event the authorities would be made responsible for the conse-
qoences of their order.

It was a suggestion skillfully made to attain its purpose, and it

alarmed the governor enough to induce him to withdraw his prohibition.

The reply of the commander is at once fawning, insolent, and untruth-

^Q1. He thanks the governor for his observance of the rights of bellig-

^reuts, to which he had done-everthing to forfeit a claim. He disavows

* knowledge of the fact that the men were there, though it is clearly to

^y mind the true reasou accounting for his absurd threat to fight

''^ther than to show the interior of the ship ; and, lastly, he vapors about

^he disrespectful and insulting tone used towards him, which he should

^ke an early opportuaity of bringing to the notice of the liichmond

Sovernment.

^>tisl 8ur son cherain. Le premier paragraphe est tout co qui est utile sous ce rapport.
*l^ est cougu en ces termes :

** J'ai ^ informer sou excellence le gouverneur cjue Tex^cution du niandat d'arrftt n'«
Pas 6t4> rofus^e, parce qu'aucune personne semblable 2^ celle qui y ^tait spdciti^o n'6tait
^ Iwrd."

11 y avait deux mensonges dans cette phrase. La raison indiqn^e ne pouvait pas
expliquer le fait du refus, A peine la lettre <5tait-clle remise en raaius du messager que
latteution de la police dcs eaux dtait attir(30 sur le fait quo quatre houmies quittaient
le Shenandoah dans uu bateau conduit par deux bateliers. lis fureut devanc6s et
arret^s, puis on decouvrit quo "Charley," si i)ositivement ddclard n^avoir pas 6t6 ii bord,
(ftait UQ des quatre.

Mais, qnelqu'etrangc que cela puisse paraltre, le fait de cette d<5converte d'uno viola-
ttoQ manifesto du foreign-enlistment act fut communiqu6 au coupablo dans une lettre
(|ui, comme compeusation, lui annon^a que I'injouction faite aux sujets anglais de
s'absteuir de donuer aide h sou vaisseau dtait d6sormais retir<^e. La raison in(liqu6e
pour ce changemeut de politique <Stait que, dans la situation du vaisseau sur le ber-
ceau, un oragesubit pourrait le mettreen danger. Et dans ce cas, les autorit^s seraient
rendues responsables des consequences de leur ordre.

C*dtait une suggestion habilemeut pr6seut€e pour attelndre son but, ot elle alarma
le gouverneur assez pour I'engager ^ retirer sa ddfense.

La r<5ponse du commaudaut est h la fois basse, Insolente et mensong(^re. II iremercie
le gouverneur de son observation des droits des bellig^rants, apr6s avoir tout fait pour
perdre le droit d\v prdteudre. II d^savoue toute conuaissance du fait que les hommes
y fussent, quoiqu'll soit clair pour moi que c'est la vraie raison qui pent expliquer sou
absurde menace de livrer bataille plut^t que de montrer rint^rieur du vaisseau, et en-
fin il fait le faufaron sur le ton irrespectueux et insultaut employ^ h son 6gard, qu'U
saisira la premiere occasion de porter Sk la connaissance du gouvernement de Richmond

206 AKBITRATION AT GENEVA.

Simultaneoasly with the (lispat<5h of this letter, this officer addresses
to the attorney-general of the colony thfe following inquiry :

'' Be pleased to iDform me if the Crown claims the sea to be British waters three mi]e»
from the Port Philip Head-lights, or from a straight line drawn from Point LontMiile
and Schauch."

The audacity of this application to that particular officer is its most
marked characteristic. The purpose of it could scarcely fail to have
been penetrated. It could only have had reference to the possibility of
taking on board of his ship at the nearest point outride of British waters
such men as he had already engaged to enlist with him. Yet the attor-
ney-general seems not to have been stimulated by it to take any new
precautions. He ccmtented himself with sending an evasive answer
that yet clearly betrays his own sense of the nature of the inquiry.

At this moment the captain of the Shenandoah had forfeited all pos-
sible right to respect from the authorities, whether as an officer or as a
man. They were fully informed of the fraud which had entered into
the origin of his undertaking. They were enlightened in regard to his
continuous effi)rts to violate Her Majesty's laws in their port, and they
were warned that detection in one instance had not availed to deter
him from meditating more. Yet, so far as the papers before us are con-
cerned, these considerations do not seem to have produced any other
effect than a desire to get rid of him as soon as possible by supplying
him with all he asked.

The consequences were no other than could have naturally been ex-
pected. No vigilance had been exercised in preventing the commanders
operations, and the boats which took out the i>eople who had been
enlisted beforehand had it all their own way. There is not a reasonable
doubt that he carried away from Melbourne at least twenty -eight of
these men.

An attempt has been made to draw a parallel between this enlistment
and that supposed to have been made by the commander of the Kear-
sarge at Cork. But it appears to fail in many resi}ects, the most impor-

Simultan^ment avec I'exp^dition de cette lettre, cet officier adresse h Tattomey-
general de la colonie la question suivante :

" Ayez la hont^ de m'informer si la couronne envisage que la mer soit eanx anglaises
h trois niilles du phare de Port Philip Head, on d'une liguo droite tir<^e de Point L«ou8-
dale et de Schanch."

L'audace de cette deniande, h cet officier en particnlier, est son trait caract<dristiqne
le plus niarqu^. Le but pouvait h, peine manquer d'en etre compris. Elle ne pouvait
se rapporter qu'i\ la possibility de prendre a bord de son vaisseau, an point le plus
proche^ hors des eaux anglaises, autant d'hommes qn^il en avait eugag6 k s'enruler avec
fui. Et cci)endant, l-attorney-general ne semble pas avoir ^t^ pous*6 par cela ti pren-
dre aucuue nouvelle precaution. 11 se contenta d'envoyer uue rdponse <5vasive qui
trahit pourtant clairement son propre sentiment snr la nature de la demande.

A ce moment) le capitaine du Shenandoah avait perdn tout droit possible an respect
des autorit<^S) soit comme officier, soit comme homuie. EUes <$taient pleinement
jnform^es de la fraude qui s'6tait introduite dans Torigiue de son entreprise. Elles
etaieut ^clairdes sur ses efforts coutinus pour violer les lois de sa Mnjest6 dans leur
port, et elles dtaient averties que, surpris une fois, il ne s^<3tait pas abst«nn d'en
m^diter davantage. Mais, autant que les documents places devant nous s'y rapport^ut,
ces cou8id<^ratioii8 ne semblent pas avoir produit d'autre effet qu'un d^ir d'^tre^
d^barrassd de lui le plus t6t possible, en lui fournissant tout ce qu'il demandait. Les
consequences ne furent pas autres que cellesqne Ton aurait pu naturellement attendre.
Aucuue vigilance n^avait 6t6 exerc^e pour emp^cher les operations du commandant, et
les bateaux qui emmen^rent les hommes enr6ies anparavant eurent le cbemin libre. II
n'y a pas de doute raisonnable quails emmen^rent de Melbourne an moius vingt-huit
de ces hommes.

On a essaye de tirer nn parall^le entre cet enrOlement et celni que I'on suppose avoir
ete fait par le commandant du Kearsarge k Cork. Mais il semble p^cher sur plusieuis-

OPINIONS OF MR. ADAMS. 207

tantof which is this, that Captain Winslow, after he g:ot out of British
waters, discovered the men, and took the trouble to bring them back
to Cork. The other never thought of reparation for his offense.

His vessel was one of the swiftest in sailing known in the records of
seamanship, and therefore stood in little need of coal. The supply she
had brought unexhausted to the port was large. Yet she obtained as
moch more as she could.carry. 'So questions seem to have been asked
as to the nearest port of destination. So far as I can gather from the
evidence, it appears that this vessel was completely supplied at Mel-
bourne with all she wanted for a cruise of depredation continued for
maoy months. And, worst of all, she obtained at this port a comple-
ment of her crew, without which she could have done nothing.

An attempt has been made to weaken the force of the testimony given
by Temple on this matter. It does not seem to have materially shaken
the belief in it of Sir C. H. Darling, the governor, whose only fault, so
ferasi have been able to observe, was that of listening too much to
the weak counsels of parties sympathizing more than was becoming
with the cause of these malefactors. When the deposition was sub-
mitted by Her Majesty's government to his consideration in 18G6, he
explained some of the incidents referred to, without contesting the truth
of any. But his most significant comment was the last, which is in
^iese words :

.'* Having expressed to yon in my dispatches, to which yon refer, my belief that Cap-
^iu Waddell had, notwithstanding his honorable protestations, flagrantly violated the
"®otrality he was bound to observe in respect to the shiptbent of British citizens to
f^i'Ve on board his vessel, I have read without surprise, though with deep regret, the
^^g list of names furnished by Mr. Temple, which completely proves that this belief
^^ justly founded."

The dispatches referred to in this extract I have not been able to
^i^cover among the papers presented to us on the part of Great Britain.
'^bey are not necessary, however, to prove how utterly fruitless were
^e attempts, steadily persevered in to the last, to bolster up the

TK^ints, dont le plus important est que le capitaine Winslow, aprc^s i>tre sorti des eaux
^glaisef*, decouvrit les hommes et prit la peine Uo les ;:ecouduire ii Cork. Uautre ne
IK>nsa jamais h faire reparation pour son offense.

Son vaisseau ^tait un des plus rapidcs voiliers connus dans les annales de la marine,
et par consequent n'avait besoin que de pen do charbon. La provision qu*il avait
apport^e inepuisee dans le port 6tait grande, et cependant il en obtint autant quMl
ponvait en porter. Nulle question ne semble lui avoir 616 faite sur le plus prochain
port de destination. Autant que je puis en juger par les preuves, il parait que co vais-
seau fut compieteraent approvisionno j\ Melljoume de tout ce dont il avait besoin pour
nne croisiere de depredations continuee pendant lilusieurs mois. Et, le pire de tout, il
obtint de ce port un complement de son equipage, sans lequel il n'aurait rien pu faire.

On a fait une tentative pour affaiblir la force de ce temoignage. EUe ne parait pas
avoir bcaucoup ebranie la confiance qu'y ajoutait Sir Charles H. Darling, le gouverneur,
dont la seule faute, autant que j^ai ete A. raeme de le remarquer, fut de prater trop
Foreille aux faibles conseils de personnes sympathisant plus qu'il n'etait convenable
avec la* cause do ces malfaiteurs. Lorsque la deposition de Temple fut soumise h, son
examen,en 1866, il expliqua quelques-uns des incidents qui s'y rapportaieut, sans con-
tester la verite d'ancun d'eux. Mais sa remarque la plus significative fut la demiero,
qui est con^ue en ces termes :

" Vons ayant exprime, dans les dep^-ches auxquelles vous faites allusion, ma convic-
tion que le capitaine Waddell avait, malgre ses honorables protestations, vioie d'une
maniere flagrante la neutralite qu'il etait teuu d'observer, par I'enrAlement de citoyens
anglais pour servir h bord de son vaisseau, j'ai lu sans surprise, mais avec un profond
regret, la longue liste de noms fournie par M. Temple, qui prouve pleinement que cette
conviction etait bien fondee."

Je n'ai pas pu decouvrir, parmi les documents qui nous sont presentes de la part de
a Grande-Bretagne, les depdches auxquelles il est ^it allusion dans ce passage. Elles
ne sent cependant pas necessaires pour prouver combien les tentatives faites avec une

208 ARBITRATION AT GENEVA.

character of the iusnrgent commander for veracity. Ou the other hand,
the effort was great, and successfnl at the time, to destroy the credit
of Temple's deposition. Yet, on a calm comparison of the evidence of
the two, with testimony received from without, I am convinced that
Temple was fiir the most worthy of belief.

In truth, Uer Majesty's government had entered upon a wrong path
at the outset, in recognizing the original fraud, and their adherence to
it only complicated the obstacles to extrication. For the depredations
on the hardy and innocent seamen earning an lionest living in the
most hazardous of all enterprises on the ocean continued long after the
last spark of belligerent pretensions had been extinguished in America.

It seems to me that Her Majesty's government and their authorities
of Melbourne are clearly to be held responsible. No such cruise could
have been made without the assistance derived from Melbourne as a
base of operations. Instead of attempting to counteract the strong cur-
rent of popular sympathy prevailing in all classes in that settlement,
the authorities either weakly yielded to it, or themselves co-operated
with it, at least so far as could be done by sluggish indifterence.

Hence, it is my conclusion that, from the time of the departure of the
Shenandoah from Melbourne, the government of Great Britain, having
failed to fulfill the obligations of the second rule specified for the gov-
vernment of the arbitrators uuderthe provisions of the Vlth articleof the
treaty of Washington, has rendered itself liable for all the damages to
the United States subsequently incurred thereby.

IX. — THE SUMTER.

In the second part of the volume called the Case, submitted to us on
the part of Her Majesty's government, on the seventh page
I find a paragraph in the following words:

^'In and soon after the month of May, 1861, a number of armed ships, mostly of small

5»nmti'r

perseverance continuello jnsqu'ii la fin, d'appuyer le caractore du commandant insurg^
quant ^ la v<;^racit<5, 6taiont tout i\ fait sans succes. De I'autre cdtC'y Tefibrt pour
ddtruiro le criSdit de la disposition de Temple fut jjrand, et r<5u8sit pour le moment.
Cepeudant nne comparaison oalme des preuvcs fonrnies par ces'deux bommes avec la
t^moignage reyu du dehors me convaiuc que Temple «5tait de beaueoup le plus digue de
foi.

En v6rit<^, le gonvernement de sa Mnjost<^ avait pris un mauvais chomin :\ rorigine
on reconuaissant la frande premiere, et I'adhdsion qu'il y donna no tit que compliquer
les obstacles qu'il rencontra pour en sortir. Pour les depi^^dations commises ii regard
des hardis et innocents marius, giignant honnetement leur vie daus la plus basardeuso
de toutes les entreprises sur I'ocoau, et coutinuees longtemps apres que la dernit)ire
etincelle du droit de bellig«5raut avait dto <5teiute en Amdrique, il mn SLMuble quo le
gouveruoment de sa Majest6 et ses autorites de Melbourne doiveut tStve tenus nettement
responsables. Nulle course semblaMe u'eiit pu etre faite sans le sccours tire de Mel-
bourne comme base d'operatious. Au lieu d'essnyer de rcai^ir contre le fort courant de
sympatliie populaire domiuaut dans toutes les classes de eette colouie, les autoritds, on
bien y c<Sdt^rent faiblenient, ou bien y coopcrereut, au moins autant qu'ou x>ouvait lo
faire, par une molle iudillorence.

Dt^s lors, ma conclusion est que, depnis T^poquo du ddpart du Shenandoah de Mel-
bourne, le gonvernement de la Grande-Bretague, ayant negligd de remplir Tobligation
de la seconde n^gle spdcitiee pour la conduito des arbitres selon Tarticle 6 du trait<6 de
Washington, s'est rendu responsable de tons les dommages encourus subsequemment ;\
cause de cetto udgHgeuce par lo commerce des £tats-Unis.

LK SUMTER.

Dans la seconde partie dn volume appel6 le '^Case,^' qui uons est sonmis de la pari
du gouvernement de sa Majesty, k la page 7, je trouve un paragraphe cou^n dans 1m
termes snivants :

'' Pendant et pea de temps apr^ le mois do mai 18&], plusieurs b&timents arm^

OPINIONS OF MR. ADAMS. 209

tdunaj^e, wure fitted out in and sent to sea from ports in tlie Confederate States, and a
cousidemble number of captures were made by them. Some of these were commis-
sioned as public ships of war of the Confederate States, and commanded by officers in the
naral service of the confederacy ; others as private ships of war or privateers. Among
the armed vessels which were so fitted out and made prizes were the Calhoun, a steamer
of 1,000 tons, sent to sea in May, 1861, the Jeff. Davis, Savannah, Saint Nicholas, Wins-
low, and York. More than twenty prizes were made by these vessels. The Sumter
(to which reference will be made hereafter) went to sea in June, 1861 ; the Sallie and
Nashville in October, 1861 ; the Echo in 1862 ; the Retribution and Boston in 1863 ; the
Chickamauga, Olnstee, and Tallahassee in 1864. These vessels are stated to have
taken from sixty to seventy prizes.^'

If by tbis grave report it was intended to establish thattbe insurgent
Americans were in 1861 entitled in any way to be considered as a bel-
ligerent on the ocean, the motive can only be explained by presuming
either an absence of all acquaiut^ince with the actual condition of the
insurgent States at that time or deliberate misrepresentation. I pre-
fer to adopt the earlier construction.

la iK)iut of fact, it is clearly shown in these papers, as well as
from the past condition of that region of coast ever since the time
of its first settlement, that it has never possessed any commerce or navi-
gation of its own. Whatever might have been the list presented, it
could contain only such ve-seels as might accidentally have been found
in its ports at the moment of the insurrection, belonging to owners
outside of the jurisdiction. That all such vessels were at once seized,
*^Dd niade for a short period to play a part for which they were utterly
unfitted, is strictly true. Yet, so far from presenting any just ground
^or recognizing these people as a maritime belligerent, all the facts tend
f^e more to convince me that to all intents and purposes Her Majesty's
government might, with quite as much justice, recognize in any similar
^^ergency these cantons of Switzerland as such. Be this as it may, 1
^^1 ready to admit there was for a short time a slight appearance of a
'^^Tal force that might deceive strangers. Out of the number of vessels

l^iit laplnpart <^taient de faible t<>nnage, furent <^quip6s et mis hors des ports situ<^ft

^^118 les et.at8-conf(6d6r^ ; ils firent un nonibre cousiddrable de captures. l)e ces bA,ti-

^^^nts, les uus, comniandes par des ofticiers au service naval de la conf6d<5 ration,

r'^H'orent la commission de vaisseaux de guerre des ^tats-conf<6d6r6s, les autres celle de

Hisseaux de guerre privcs ou <le corsaires. Au norabre des vaisseaux arm6s en guerre

M^li furent ^quipds de la sorte et qui fireut des prises, se trouvaieut le Calhoun, steamer

^^ugeant pins de mille tonneanx, qui prit la mer au mais de mai 1861, le Jeiferson

V^a\i8, le Savannah, le Saint Nicholas, le Winslow et le York. Plus de vingt prises

^tshorent h oes navires. Le Sumter (dout il sera fait mention plus loin) prit la mer en

juin 1861; le Sallie et le Nashville, en octobre 1861 ; PEcho, en 1862 ; la Retribution et

le Boston, en 1864; le Chickamauga, TOIustee et le Tallahassee, en 1864. Ces vaisseaux

uiiraieut fait, dit-on, de soixante li soixante-dix prises."

Si par ce rapport grave on avait I'intention d*<$tablir que les insurgds am<$ricains
avaient droit en 1861, en aucuue mani^re, li 6tre cousid<^re.s comme belligdrants sur
roe<5aa, la raison n'en pent etre expliqu<Se qu'en sn])posant r^elle une absence de toute
connaisKance de la condition actuelle des dtats insurg^ h cette cpoque, soit un faux
rapport r6^6fih\. Je prdtere ailoptcr la premiere interpretation. En etfet, il est claire-
meut d<^moutT<^ dans ces documents, aussi bien que par la condition ant<Srieure de cette
rdgion maritime, qn*elle n'a jamais pos8<kl6, depuis I'^poque de sa premiere colonisation,
aucnii coinmcrce ni aucuue navigation propre. Quel qn'ait pu ^tre le rAle des navires
pr<^nt<^s, il ne pouvait conteuir que des vaisseaux que Ton pouvait avoir trouvds acci-
(l^ntellement dans les ports au moment de l'insuri*ectiou, appartenant ii des prophd-
taires en dehors de sa juridiction. Que tf>us ces vaisseaux furent saisis en- mdme
iemp« et qu'on lenr tit pendant une courte p<^ri(Mle jouer un r61e |K)ur lequel ils 6taient
tant-s^-fair impropres, est nn fait strictement vrai. Mais loin d«i fournir ancun motif
raison nuble ]N)ur reconnattre ces gens comme bellig<Srants maritimes, ces faits tendonti
e«urt4>nt a me convaiucre qn^\ tons 6gards le gouvernement de sa MigesuS aurait pu.
avec tunc autaut de justice, reconnaitre comme tels, dans des circoustauces analogues,
les cantons de la Suisse. Quoi qu'il en st»it, je suis prta i\ admettre qu'il y eut
IHstidant quelqne temps une legere apparence d^ine force imvale qui pouvait tromper
des dtranirem mill infornids. Au nombre d«svaisseaix in<liqu66 dans le passigequr

14 b

210 AK13ITIUT10N AT GENEVA.

arrayed iu the passage I have quoted is the steamer Sumter, a case uow
presented to our consideration as founding a claim for damages from
Her Majesty's government by that of the United States.

This was a steamer built in no sense for a war-vessel. She had been
employed as a packet between New Orleans and the Havana, and thongli
most likely to have belonged to private proprietors in New York, may
possibly have had some in New Orleans. I am willing to concede the
benefit of the doubt. At all events, she was seized by the insurgent
government, fitted up in haste with the few guns that she could bear,
and pushed through the blockade at the mouth of the Mississippi to the
high se{\. This was on the 30th of June, 1801. After making some
prizes, and touching at various ports belonging to other powers, she at
last made her appearance in a harbor of Her Majesty's island of Trin-
idad. This was on the 30th of July. Here she was recognized in due
form, w as supplied with a new main-yard, provisions, and eighty tons
of coal. She next appeared at Paramaribo, in Dutch Guiana, nineteen
days after sailing from Trinidad, and there received an additional supply
of coals. From thence she proceeded to various i)orts of other sov-
ereign i)Owers, until at last she found her way to Her Majesty's port of
Gibraltar.

This experience had completely established the fact that in her then
condition she was utterly unfitted for her undertaking. The eftbrts to
get her refitted had failed ; and although there was a long delay per-
mitted at Gibraltar — much longer, indeed, than seems altogether justi-
fiable — the end of it was that she was disarmed, dismantled, sent to
Liverpool, and never afterward tried as a cruiser. The truth probably
was that it was found cheaper to build eflicieut vessels in Great Britain,
which this one never could have l>een.

It appears that eleven of her prizes were made before reaching Trin-
idad, where she coaled. None were made between Trinidad and Para-
maribo, and only five afterwanl.

If Her Majesty's government had been called to exercise due vigilance

j*fti transcrit, le steamer Snniter est uu caa present*^ aetuel lenient ;\ nutre exanien
comnie servant de base si nne reelauiatiou en dominates anpivs dn j^ouvernenient de
sa Maje8t«5 i>ar celni des fitats-lJnis.

Le Snniter nVtait en anenn sens nn steamer eonstrnit ponr t'^tre vaissean de jjneire.
n avait 6t6 employ*^ comnie paqnelwitentre hi XonvHle-OrU^ans et la Havane,et qnoiqn'il
ait appartenn tres-vraiseniblablement :\ des proprit^taires prives si New York, U est i>os-
sible qu'il en ait en a la Nonvelle-Orl^^ans. Je snis dispos«5 j\ aceonler le beu<5tice dn
donte. Quoi qn'il en soit, il fnt saisi par le soi-disant gonvernement insnrg*^, e4|nip45 a
la biite dn pen de canons qn'il pouvait porter et Ibi^a le blocns li renibonchnre dn
Mississippi ponr se rendre en liante nier. C'etait le :W jnin 1861. Apr^8 avoir fait
qnelqnes prises et toncbt^ divers ports appartenant a d'autivs puissances, il tit enfin son
apparition dans nn i>ort de Tile de sa Majeate la Trinite. CVtait le :U) jnillet. II y fnt
reconnn en dfte forme, fnt ponrvn d'nne nonvelle grande vergne, de provisions et de
qnatre-vingts tonnes de eliarbon. It apparnt ensnite a Paramaribo, dans la Gnyane
liollandaise, dix-nenf jonrs apres avoir qnitte la Triniie, et 1;\ il itH.-nt nn nonvean sub-
side de cbarbon. D'ici il se rendit a ditlV^rents ports d'antres pnissanees sonveraines
jnsqu'ji ce qn'entin il arriva a (iibraltar, ]WTt de sa Majeste.

Cette exix^rience avait completenient etabli le fait qne dans sa condition d'alore il
«^tait entierement impropre a son entreprise. l^^ ettbrts ponr le radon ber avaient
«''chon<^. et qnoiqne nn long delai Ini eflt ote acconle a Gibraltar, In-anconp jdns long
en ertet qn'il nesembl:\t necessaire, il fnt enfin desanne, demantele, envoyt^ ji Liverpool,
et no fnt pas employe pins tard comnie croisenr. La verite etait probablenient que
Ton troiiva nieilleiir niarclH'» do constrnire des vaisseanx pins ellicaees en Angleterre.

II senible qne ouze de ses prises fnrent faites avaiit d'atteindn» la Trinite, on il fit dn
eliarbon. II n'en lit ancnne entre la Trinite et Paramaribo, ct m-uU inent cinq i>lns
tard.

Si le gonvernement <le sa Majesty''' avait «»t«» ap]Kb' a fNcicrr diu' vigilance ]>onr em-

OPINIONS OF MR. ADAMS. 211

to prevent the fitting-out, arming, or equipping this vessel, it might
perhaps have been liable, but it is clear it had no opportunity. Such
as it was, the fact is well established that the entire work was done at
New Orleans.

Neither was it in a way to permit this vessel to make use of its ports
or waters as the base of naval operations, for the plain reason, if there
were no other, that its career so soon terminated in the second of the
only two ports she visited.

The only resemblance to such a thing was the supply of coals received
at Trinidad. But that was exhausted, without an opportunity of doing
damage, before reaching the port of another sovereign, and nothing was
ever received from British sources afterwards All the su[)plies ob-
tained with that exception came from ports belonging to other powers.
Ifail, therefore, to see wherein Her Majesty's government has omitted
to fulfill any duty presented in this case, for 1 cannot discover what duty
she was called to fulfill.

It is very true that, at the moment, this proceeding of the recogni-
tion of the Sumter at Trinidad was regarded by the Government of the
Cnited States as an unfriendly act, and much remonstrance was made
against it. Whether this was made with or without just foundation, it
<ioes not seem necessary here to consider. The question now is solely
of damages incurred by failure to fulfill certain specified duties. I can
tJiHcover no damages, and very trifling duty.

I3ut there is one more question in connection with the history of this
vessel that demands consideration. It is alleged that she was suffered
^<> remain an undue length of time in the port of Gibraltar, and that a
^'t'ondulent sale was recognized which enabled the insurgents to trans-
fer the vessel to Liverpool, and use her again, under a British register, as
^ transport for their cause.

The answer to this is, that her detention at Gibraltar, however it may
^ considered, was certainly productive of no damage, while her pres-
^tice on the ocean might have been. And as to the fraudulent sale.

iHlcber ^arrangement, rarmeineut on I'^quipemeut do ce vaisseau, il ponrraifc peut-ctre
avoir 6t6 responsable, niais il est clair qii*il n'en eut pas roccasiou. Tel qu'il fut, il est
bien dtabli que Touvrage entier fat fait li la Nouvello-Orlc^ans.

II ue fut pas non plus en position de permettre ii ce vaisseau de faire usage de sea
ports on de ses eaux comme base d*op6rations navales, par la raison <?vidente, s'il n'y
en eut pas d'autres, que sa carritTe se termina si t^tdaus le second des deux seuls ports
qn'il visita.

Le scnl fait qui ressemble h nne semblable permission fut le subside de cbarbon
re^Q i!^ la TriniuS. Mais celui-ci fut <5puis<S sans qu'il ait eu nne occasion de nuire avant
d'atteindre le port d'un autre souverain, et ensnite il ue re^ut plus jamais rien de
sources anglaises. Tons les autres subsides qu'il obtiut, ii I'exception de celui-lA, pro-
venaient de ports appartenaut a d'autres puissances.

Je ne puis done voir en quoilegouvernementdesaMajest<5a nogligt'^ de rempliraucun
devoir pn'scrit dans ce cas, car je ne puisddcouvrir quel devoir il dtait appel<^ j\ reinjilir.

II e^t bien vrai qu'au moment m^mece proc^dd de la recounaissanco du Sumter :\ la
Trinit<^ fut regard*^ par le Gouvernement des llltats-Unis comme un acte peu auiical, et
qn'ils y firent beaucoup de remontrances. Si ceci a 6t6 fait avec de justes raisons ou
non, il ne me semble pas n<^cessaire de I'examiner ici. La question actuelle est unique-
ment de domniages encourus par la n<^gligence h remplir certains devoirs specifies. Je
nc puis di^couvrir aucun doramage et qu'un tres-l<^ger devoir.

Mais il y a nne autre question en rapport avec Thistoire de ce vaisseau, qui dem'nnde
a r*tre examinee. On alleguo qu'on lui permit de demeurer dans le port de Gibraltar
au-delii du temps legal et qu'une veute frauduleuse fut recounue c^ui permit aux in-
surg<^8 de transferer le vaisseau ii Liverpool et de Temployer de uouveau sous registro
aiiglaiH comme transport pour la cause des iusurgds.

La n^ponse i\ ceci est que son s^jour h Gibraltar, de quelque fa^on que I'on puisso le
consid^^rer, ne fut certainement la cause d'aucun dommage, tandis que sa presence sur
Toc^^'an aurait pu IVtrc. Et quant b, la vente frauduleuse, le vaisseau dtait expo8<5 u

212 ARBITRxVTION AT GENEVA.

the vessel was open to capture in her defenceless state, aud it was con-
ceded that no reclamation could have been made for it. So fikewij^
she was open to capture in her latest capacity as a transport. la
neither case does Her Majesty's government appear to me to have in-
curred any responsibility under the three rules of the treaty which caa
be estimated in damages.

Of just such a character as this one are other vessels presented so
gravely in the extract which I have made from the British case at the
outset. These are the wretched nigs over which Her Majesty's minis-
ters condescended to throw the mantle of a belligerent. This they had
an unquestionable right to do. Having done so, it is not possible for
me to reach any other decision in the present case. At the same time, it
nmy be remarked that it is made clear from these papers that at no time
<lid this belligerent ever send to sea during the struggle a single war-
vessel built within the limits of the territory it temporarily controlled-

X.— THE NASHVILLE.

Tbis jippears to be another instance of a seizure of a steamer con—
• structed for apacket to run between New York and Charleston*

ijx South Carolina, and an attempt to turn her into a vessel,
of war by putting two light guns upon her, and the necessary ammuni-
tion to frighten unarmed merchant-ships.

In this state she received the requisite officers, and on the 26th of Au-
gust, having run the blockade of Charleston, made her way to the port
of Saint George, in the island of Bermuda, on the 30th, in the guise 0*^:
a war- vessel. In order to get safely out of Charleston Harbor, she hacX
been constrained to go light, in consequence of which she stood iu neecl
of considerable supplies of coal at Saint George, to enable her to effect"
her contemplated passage to Southampton. She obtained between 40O
and 500 tons from private sources.

Her stay at this place must have been from the 30th of August to the
4th of November, when she started for Southampton. A stay of sixty-

citre pris, dans l'imp08sibilit<f oil il <5taitde so d^feudre, et I'on reconniit qu'il n'y avait
point de reclamation ii faire a eel <^gard. II 6{mt ogalement exp09<5 h £tre pris dans s:)
dcmiere condition de transport. Ni dans un cas ni dans I'antro le jjonverueineut de sa
M^jcst<^ ne me semble avoir enconrn ancnne responsabilite, snivant Ics trois regies du
traits, qui puisso 6tre estim<>e en domnuiges.

Du mdnie canicti're que celui-ci sont les autres vaisseaux xirdsonids si 8<5rieu8eraent
dans I'extrait que j'ai fait du *' British case ^' an commencement. Ce sont les mis6rables
haillons sur lesquels les ministres de sa M^estd out bien voulu jeter le manteau de
bellig<^rant. lis avaient un droit incontestable i\lo faire. L'ayant fait, il ue m'est pas
possible do d<^cider autrtmient dans le cas present. £n meme temps, on pourrait bien
rcmarquer qu'il ressort clairement de ces documents qu*ii aucune <Spo(iue c© bellig^Srant
ne roit en mer pendant le conflit un seul vaisseau de guerre construit dans les limitt^s
du territoire snrlequel il exor^-a pour le coup son contr6le.

LK NASHVILLE.

Ccci paralt Hvo un autre exemplc d'une saisie d'uu steamer construit jwur servir
comme paquebot entro New York et Charleston dans la Caroline du Sud, et uue autre
tentative de le transformer en vaisseau de guerre, en y mettant deux Idgers canons et
les munitions n^cessaires pour dpouvanter les vaisseaux marchands non-arrads.

D*aus cet <5tat il re^ut les oflicers i*equis, et le 26 avril, ayant forcd le blocus de Charles-
ton, se rend it an port de St. -Georges, dans I'lle de Bermude, le 30, comme vaisseau de
guerre. Atin de sortir en s<5curite du port de Charleston, il avait 6t/6 oblige d'aJler sans
charge, et en consequence il cut besoin de subsides considerables de charbon h St.-
(Jeorge pour t'tre en 6tsit d'eftectuer son passage projet<5 k Southampton. II en obtint
entre qnatre et cinq cents tonnes.

Son s^jour dans ce port doit avoir 6t6 du 30 aoftt an 4 novenibre, oil il partit pour
'outhsiniptnn. Un s<^ionr de soixarto-six Jours accoifb^ j^ cet cndroit, ajoute ii ce grand

OPINIONS OF MU. ADAMS. 213

six (lays permitted at this place, in eoiinectiou with the large supply of
coal, indicate an extremely liberal constru(;tion of the civility duo to
such a vessel at the outset of a struggle like that in America.

At the same time it should be observed that Her Majesty's govern-
ment had not yet found time to mature the necessary regulations to be
observed in her remoter dominions, in regard to the stay of, and the sup-
plies to be furnished to, the vessels of the contending parties when touch-
ing at her ports.

lu her trip across the ocean the Nashville met and destroyed one
merchant- vessel of the United States — the Harvey Birch. After leav-
ing Southampton, she stopped again at Bermuda, where she received 150
tons of coal, which enabled her to return home. On her way she seems
to have destroyed one schooner. It is to be inferred that her utter un-
fitness for the business to which she had been put had been clearly
proved, and she was laid aside.

It is contended that the reception which this vessel met with at vari-
ous ports of Her Majesty's kingdom, and the abundant supplies of coal
received by her, are suflQclently proved to bring her within the purview
of the second rule specified in the treaty of Washington for the guid-
3^ee of the arbitrators.

_ But, in order to establish this claim, it seems to me necessary to con-
^uler the question of intent on the part of the authorities, as well as
^^at of negligence,

IFrom the evidence furnished in the papers before us in regard to these
^^vo points, I confess that I cannot gather sufficient materials to enable
^e to decide against Her IMajesty's Government on either of them. At
^l^e outset of the struggle, and before the receipt of clear directions to
regulate their conduct, it might very well happen that the authorities
^n the remote dependencies would make mistakes of judgment in per-
mitting supplies, without meaning to be partial to one side more than
to another. I have no reason to suspect that just the same measure
^ould not then have been granted to any vessel of the United States.
A few tons more or less of coal can scarcely be called convincing proof

subside de cbarbon, iudiqne uue interprdtationextrC'inement libdrale dela civility dfte ji
un tel vaisseau^aii commeacementd'unconflittel que celiii qui avait 6c\at6 en Am<5rique.

Eq m^me temps, il faut reraarquer que le gouvernement de sa Maje8t<5 n'avait pas
eucore tronv6 le temps de mftrir les regies u^cessaires j\ observer dans ces <^tats 61oignc8,
quant au s^jouret aux subsides ii accurder auK vaisseaux des deux parties en coudit
i|ui toucberaient leurs ports.

Dans sa course li travers I'oc^an, le Nasbville rencoutra et d<5truisit un vaisseau
marcbaod des T^tats-Uuis, le Harvey Birch. Apre^ avoir quitte Soutbampton, il toucba
de nouveau a Bennude, oii il ref ut cent cinquante tonnes de cbarbon, cc qui lui permit
lie retourner cbez lui. Dans sa route, il semble avoir d(^truit un scbooner. On pent
croire que son incapacito complete, pour le r61e qu'on lui avait fait jouer, avait etc
clairemeut prouvc^e, et il fut mis de cott^.

On allegue que Taccueil que revut ce vaisseau dans diffdrents ports du royaume de sa
Majesti^ et les subsides abondants de cbarbon qu'il obtint sout demontres suffisants
pour le placer sous la seconde regie spccifide dans le traite de \V:isliingtou comnie
guide pour les arbitres.

Mais alin dVtablir cette pretention, il me semble ndcessaire d'examincr la question
de mauvaise intenticm de la part des autoriti^s aussi bien quecelle <le u(5gligeuce.

Par les preuves fournies dans les documents places devant nous quant a ces deux
pointjs, j'avoueque Je ue puis rassembler des matc'Tiaux suffisants pour me permettre
de decider contre le gouvernement de sa Majest^^. sur aucun des deux. Au commence-
ment du conflit, et avant la reception do directions claires pour regler leur conduite, il
jMJuvait tres-bien arriver que dans les possci^sions ('•loign<5es le^ autorit(^s tissent des
erreurs de jugement, en accordant des subsides sans penser s\ etre partiales pour un
parti plutot que pour I'autre. Je n'ai nullo raison de 8oup^!onner qu'on n'eflt pas alors
accorde exactemeut la meme mesure a un vaisseau des Etats-Unis. Quelques tonnes
tie cbarbon de plus on de moius peuvent a peine Hie appellees des preuves convain-

214 ARBITUATION AT (UCNKVA.

of malicious iuteiit. From uiy observation of tlie general course of
Governor Ord, I fail to ^father any clear traces of a disposition to be
otherwise than impartial in that officer.

With respect to the stay of the Nashville at Southampton, and her
supplies received there, I do not find that the case was essentially dif-
ferent from that of the United States steamer the Tnscarora, which was
at that port at the same time.

Last of all, I entertain very serious doubts whether this vesst^l was
ever intended, by those w ho fitted her out, for the purpose of cruising
as a depredator on the ocean. Certainly, her long period of utt<?r inac-
tion at the only port where she stopi>ed, and her straight course to
Southampton and back, do not at all iiulicate it. Even the two cap-
tures which she actually made seem to have been vessels she chanced
to meet on her track, w hich she ccuild destro}' without the slightest de-
viation. The governor of St. George's seems to have been convinced
that the object of the voyage was connected with the establishment of
diplomatic relations in Europe, and procuring naval supplies and stores.
At one time it was intended to bring out ^lessrs. Mason and Slidell,
and it actually did have on boardColonel Peyton, supposed to be charged
with a mission of the same kind.

ETowever this may be, 1 fail to find solid ground upon which to base,
in this case, any charge either of intention or negligence against Her
Majesty's Government under the terms of the treaty of Washington.

XT. — THE CIIlCKAMArGA.

On or about the first week in March, 18G4, a steamer ciilled the Edith,
which had been built within the kingdom of Great Britain
for the purpose of running the blockade of the insurgent
ports in the United States, sailed from London. She appears to have
been one of a number constructed under a joint ownership of the insur-
gent authorities in the United States and certain commercial houses in

cautcs cViutcntion malicieiiso. Dans nion exanieu de la conduite g<5n<^rale dii gonver-
iieur Ord, jc nc piiivS i-eciieiHir aucuno traco clairc d'uuc dispositiou qui ait <5to autre
chose que d'etre impartial chez cot oliicier.

Quant au sojour du Nashville a Southamptou et aux sul>sidc8 quMl y recut, je ne
troure i>as <iue le cas fM cssentiellemeut diftV^rent dc celui du steamer des Etats-Unis
Tuscaroi*a, <[ue rtait dans ce port a la m^me <^poque.

Entin, j'ai de tres-grauds doutcs si ce vaisseau filt jamais destind par ecux qui
lVquip**rout n croiser comme coi*saire sur Tocoan. Certainement, sa longue p<?riode de
comlll^te inaction dans le soul i»ort ou il s'arreta et sa course directe aller et retour ne
Vindiquent pas du tout. Menie les deux prises qu'il fit eftectivement semblent avoir
rte des vaisseaux qu'il reucontra par hasard sur sa route, et quUl put detruire sans la
plus logiTe deviation. Le gouverneur de St.-Georgo semble avoir 6t6 convaincu que le
l)ut du voyage dtait en rapport avec rotablissement de relations diplomatique^ en
Europe et de procurer des subsides navals et des fournitures militaires. l*endaut uu
moment on eut Tintentiou do conduire MM. Mason et Slidell en Europe, et, eftective-
mout, il y avait :\ bord le colonel Peyton, tjue Ton supposait etre charge d'uue mission
de la meme nature.

Quoi qu'il en soit, jeue puis trouver de raisous solides sur lesquelles baser dans ce
cas aucuno accusation d'iutcntion ou do u<5gligence coutre le gouvcrnemeut de sii
Majoste, d'apres les ternies du traito de Washington.

I.E CIIICKAMAUGA.

La premiere semaine de mars 1864, ou :\ pen pri's, uu steamer apjH'le I'Editb, qui
avait 6t6 coustruit dans le royaume de la Grande-Bretagne dans le but de forcer le
blocus des ports insurgds aux I^tats-Unis, partit de Londres. 11 semble avoir etc un
des vaisseaux construits comme proprieto commune des autoritos insurgc^es aux fitats-
I'nis et de quelques maisons de commerce de la Grande-Bretagne. Comme tel il

OPIMONS OF MR. ADAM.S. 215

Oreat Britaiu. As such, she made her way successfully into the port
ot" Wilmington, in North Carolina, It being ascertained by experiment
tliat she was a fast and stanch vessel, it was then determined by the
insurgent authorities to put three guns upon her, with the necessary
\ eqnipmeut, and transform her into a regular cruiser. As such she
\ claimed to be recognized at Bermuda on the 7th November. Here her
eomiuander applied for leave to coal and repair machinery, which was
granted. She was supplied by the authorities with twenty-tive tons, and
l)erinitted to remain for repairs eight days. K it was proper to recog-
I nize ber at all, in no instance have I perceived a firmer tone in dealing
with a vessel of the kind, or a clearer execution of the orders given by
Her Majesty's government. If it happened that the commander suc-
ceeded in getting a larger supply from i)rivate sources, it must have
l>een done surreptitiously and in detiance of their will. On her outward
trip from Wilmington, she seems to have destroyed some merchant-
vessels. But when she got back, the experiment appears to have been
. considered unsatisfactory, for it M'as not continued. She was again re-
t'ttced to a transport. Not loiig afterward Wilmington was taken by
^he United States, and the last traces of spurious belligerency on the
-American coa«t were expunged.

Here I fail to see any reason for charging Her Majesty's government
^^ith any default under either of the three rules prescribed for the guid-
'"^Oce of the arbitrators by the terms of the treaty of Washington,

XII. — THE TALLAHASSEE.

This is one of the number of vessels constructed in Great Britain, ot
'^vliich the Chickamauga, whose case has been already con-
"^idered, is another example. About the first week of April,
^804, she left London, under the name of the Atlanta. On the 20th she
54rrived in Bermuda. Here she seems to have remained until the 24th
of May, when she started to run the blockade at Wilmington, in which
«he appears to have succeeded. For the next month she was ninningiu
the same business between Bermuda and Wilmington.

it^nssit h entrer dans lo port de AVilminf^ton, dans la Caroline dii Xord. L^cxp^^rienco
ayant doraoutr<^ que cVtait un vaisseau rapide et fort, les autoritc^s insurg^^es d<5cid^rent
d'y raettre trois canons avec l'<5quipement ndcessaire et de le transformer en croiseur
r*^giilier. II prdtendit t*tre recounn comme tel i\ Berraude lo 7 novembre. Son com-
mandant y demanda la permission de faire du cbarbon et de r^parer sa macbine, ce qui
lai fat accorde. II ret;ut des antoritos vingt-cinq tonnes et la permission de rester
huit joui*s ponr n^paratinns. S'il dtait convcnable de le reconnaltre du tout, je n'ai
trouve en aiicun cas uu ton plus ferme en traitant avec un vaisseau de cette sortc, ni
une execution plus nette des ordres donn(^s par le gouvernement de sa Majest<5. S'il
arriva que Ic commandant rcussit a obtenir un plus grand subside do sources privdcs,
ceci doit avoir ct<^ fait subrepticcment et en bravant sti volont(5. Dans sa course aprcs
etre sorti de Wilmington, il semble avoir d(^truit quatre vaisseaux marcbands. Mais
qnand il revint, rexpcriencc semble avoir 6X6 envisagi^e comme pen satisfaisante, car
elle ne fut pas continude. II fut de nouveau reduit j\ IVtat de transport. Pen de temps
apres, Wilmington fut pris par les f^tats-Unis, et les dernieres traces de guerre mari-
time sur la cAte amc^ricaine furcnt (5teintes.

.Je ne puis voir ici aueune raison d'aceuser le gouvernement de sa Majesty de faute,
d'apW's aueune des trois n-gles prescrites pour guider les abitres suivant les teruies du
trait<5 de Washington.

LK TAI.LAIIASSrj:.

C'cst nn vaisseau du nombre de coux qui out <5te construits en Angleterre, dont h)
Chickamanga (ce cas a d»^jt\ dtc examine^) dtait nn autre exemple. La premiere semaine
d^avril 1864, ii j»eu pres, il quitta Londres sous le nom de I'Atlanta. *Le 20 il arriva a
Bermuda. II semble y Htq Test6 jusqu'au 24 mai, oil il partit pour forcer le blocus do
Wilmington, ce a quoi il jiaratt avoir rc^ussi, car le mois suivaut il semble avoir ^tc
employe de la meme maniere entrc Bennuda et Wilmington.

216 ARBITRATION AT GENEVA.

Being fouiul swift and strong, it appears to have been decided at
Wilmington to make an experiment of turning this vessel into a cruiser.
The equipment and manning were all done there, and on the Gth of
August, the commander. Wood, succeeded in running the blockade, and
entered upon his career of depredation.

In this case it is fortunate that we have before us the whole story of
this short cruise narrated by the commander himself, under circum-
stances which render the truth of it probable. Commander Woo<], in a
letter purporting to be official, rejwrts these facts: 1. That he sailed five
days to the northward without finding any vessels not European. 2.
That on the 11th, having approached New York, as he pursued the line
of the coa«t northwanl, until the 20th, he captured thirty-thi*ee vessels,
twenty-six of which he destroyed. Most of them were of small size.
By this time he had reached the British x^rovinces, and had consumed
nearly all his coal. So he decided to put into Halifax on the 18th, and
try his luck for new supplies.

It appears very clearly from his confession that Sir James IIoi>e, the
admiral then in command at the station, like most of the officers in Her
Majesty's naval service, had no fancy for this fraudulent species of bel-
ligerency, and no disposition to be blind to the tricks by which it was
carried on. The lieutenant-governor also gave no hopes of any relaxa-
tion of the rules laid down by the government, whether in i^egard to his
stay or his supplies. After all, he boasts that he did succeed in cheat-
ing him a little, but it was not enough to do any good; so he was com-
l^elled to abandon his cruise for the want of coals, and make the best of
his way back to his starting-point. He succeeded in forcing the block-
ade at Wilmington on the 2()th. This made a cruise of twenty days.

There is some evidence to show that this vessel issued forth once more
as a cruiser from Wilmington, in the early part of November, and made
a few captures. If so, it was under another name, that of the Oluste^.
Like other rogues, after having once more exhausted her reputation, she
changed her name a third time, laid down her armament, and presented

Comme on Ic trpuvait rapide et fort il paralt que Ton tldcida :\ Wilmington d'essayer
de translbnner co vaisseau en croiseur. L'eqnipement ot le rucrutcment do r<5quipa|je
scmblent y avoir ('t6 faits eutierenient, ot, le G aoAt, le couimaudaut Wood reussit a
Ibrcer le blocus et couirnenva sa carriere de ddprodatious.

Dans cecas il est beureux qne nous ayous devant nous toute Thistoire de cette courte
croisitTe, racoutee par le comiuandant dn vaisseau lui-meuie, dans des circonstances qui
en rendent la vorit<$ probable. Ce monsieur AVood, dans une lettre qu'on pent envisa-
ger comme officielle, rappelle cea faits : 1. Qu'il tit voile cinq jours vers le uord sans
trouver aucuu vaisseau qui ne fut curop(5eu. 2. Que le 11, sVHant approcbo de New
York, et comme il snivait la ligne des cotes les joui-s suivauts jusqu'au 20, il captnra
trente-trois vaisseaux^ dont il dt'tmisit vingt-six. La plupart etait de i)etits navires.
Pendant ce temps il avait atteint les provinces anglaises, et avait consume a i>eu prt's
tout son cbarbon. II decida done d'entrer ti Halifax le 18, et de tenter la fortune i>our
obtenir de nouveaux subsides.

11 ressort trt*s-clairenient de sii confession que Sir James Hope, Tamiral qui com-
niandait alors dans la station, comme la plupart des othciers an service naval de sa
Majest*^, n'avait aucun jjoAt ]>our cette espece de belligerant frauduleux et nuUe dispo-
sition ti fermer les yeux sur les ruses dont il se servait. Le lieuteuant jjouverneur no
donna non plus aucuu esiwir de se relacber des regies otablies par le gouveruement,
soit a regard de son sejour solt pour ses subsides. Apres tout cependant il se vanto
<ravoir reussi 5\ le tricher un ])eu, niais ce n'«5tait pas assez pour rien faiix* de bon. 11
fut done oblige d'abandonner sa course faute de cbarbon et de faire de son niieux pour
revenir a son point de d(^part. 11 reussit :\ forcer le blocus de Wilmington le 2t>. Cola
faisait une course de vingt jonrs.

11 y a des preuves que ce vaisseau sortit de nouveau comme croiseur do Wilmington
tout an conniiencemeut de novenibre et lit quelques prises. 8i cela est, ce fut sous un
autre nom, celui <le rOiust(»e. Comme d'autres fourbes, apres avoir encore une fois use
sa r<^put;»tion, il eliaugea de nom uue troisieme fois, dcposa son armement et se presents

OPINIONS OF MR. ADA31S. 217

•

berself at Bermuda as a merchantman, with a cargo of cotton, which
she had run out of Wilmington. She was iiow called, not inappropri-
ately, the Chameleon. But when, on the 9th April, 1865, all American
ports being finally closed, she reached Liverpool, she was reported at
that place as the Amelia, consigned to Messrs. Fraser, Trenholm & Co.,
the sole remaining representatives of an extioguished fraudulent bellig-
erent.

The conclusion to which I have come is, that there is no evidence ad-
duced in this case to show that Her Majesty's government has failed to
observe the rules laid down for the regulation of neutrals, as prescribed
by the treaty of Washington.

XIII. — THE RETRIBUTION.

Of all the spots made memorable in Her Majesty's dominions by the
c'xtent of fraudulent transactions of every description con-
nected with navigation, during the struggle in the United
States, the little island of Nassau appears, from the papers before us, to
bave earned a right to bear away the palm.

The most flagrant instance seems to be now presented to our consid-
^^^tion in the case of this vessel, the Retribution. So thoroughly is the
ti^uth interwoven with and covered up in a web as well of simulation as
^f dissimulation, thjit 1 confess it to be a labor of extreme difficulty even
Jo reach any statement of the facts which I can rely upon as abso-
lutely con'exjt

It may, however, be assumed as true that, in the year 1856, a steam-
l^X'opeller was constructed at Buffalo, in the State of New York, which
'^as taken to New York, and employed for several years as a tug in that
Port.

In the month of April, 1861, being the precise period of the breaking
Out of the conflict in America, this tug appears to have been sent by
the proprietors to the southern coast. No reason for this proceeding is
given, and no port of destination is mentioned. Perhaps the object

a Bermuda comme vai.ssean marchand chargd d'une cargaison de coton avec laquelle il
«^tait sorti de Wilraington. II s'appelait alors d*nne mani^re conveuable le Cam61don.
Mais lorsqne, le 9 avril 1865, tons les ports anidricains furent enfiii ferm^s, il atteignit
Liverpool, fnt onregistr^ en cet eudroit sous le nom del'Anielia, consign^ ill MM. Frazer,
Trenholm et C'*, les seuls repr^sentants restants d'nn bellig<?rant frauduleux dteint.

La conclusion h laquelle je suis arrive dans ce ejus est qu'il n*y a pas de preuves pro-
duites i)our ddmontrer que le gouvernemeut de sa Mnjest<^ a ndglig<^ d'observer le^*
h'gles <^tablies pour la condnite des ueutres prescritos par le traitd de Washington.

LA KETHIIJUTIOX.

De tons les lieux rendns m<^inorables dans les dtats de sa Majesty? par I'etcndue des
transactions frauduleuses de toute espece, qui se rattacbent i\ la navigation pendant le
condit des fitat-Unis, la petite ville de Nassau seuible, d^ipres les documents deposcis de-
van t uous, avoir conquis le droit de remporter la paUne.

L^example le plus flagrant semble etre niaintenant prosent^ a notre examen dans le
cas dn vaisseau la Retribution. La v<5rit<^ est tellement entrelac(^e et couverte d'un
tissn de feintes et de dissimulations, que j'avoue que c'ost un travail d'nne extrOnio
difficult^ d^arriver ji aucuu exposed des faits sur lequcl je puisse m'appuyer comme abso-
Inment correct.

On peut cependant ailmettre comme vrai quo, dans l'ann(5o t8r)6, un steamer a hclico
fut construit i\ Buftalo, dans I'otat de New York, amene a New York et employes pendant
plusieurs anuses comme remorqueur dans ce port.

An mois d'avril 18GI, Tdpoque prdcise ofi cclata le conllit en Am<^rique, ce remorqueur
semble avoir ^te envoyt^ par les propri^taires sur la ente sud. Nulle raison de ce pro-
€ed<3 n'est donn((*e, ct aucun jjort de dei<tination n'est mentionn*!?. l*eut-etro le but

218 ARBITRATION AT GENEVA.

niiglit have been to find a market. If so, the owners must have been
disappointed. The tug was driven by stress of weather into Cape Fear
Kiver, where it was seized, after the fashion of that day in that region,
without the trouble of paying anything, and her crew were made pris
oners.

Her machinery seems to have been transfeiTcd to some other puri>ose,
for the next thing we learn is that she had become a sailing-vessel, aud
her name was the Retribution.

Meanwhile one year and a half had elapsed. On the 21st of Novem-
ber, 1SG2, only, she re-appears at Charleston, in South Carolina, and is^
there registered as the private property of one Thomas J3. Power, a
citizen of that place. Here it is recorded that a man named John Parker^
is the master. He was neither a citizen of South Carolina, nor of an}—
of the insurgent States.

It is thus made quite plain that this Mr. Parker, whom we shall sooim^
find under several other names, was at that time known only as th^
master of a private vessel belonging to a citizen of Charleston. There^
was no pretense of a public commission either of the vessel or of it>^
commander. I can nowhere discover that anything of the sort was ever-
produced throughout all the subsequent proceedings.

Nevertheless, it is reasonable to believe that this vessel was armed ,
equipped, and manned at Charleston for the purpose of carrying on &
system of depredation. Her first appearance in this capacity on the
high sea was on the 28th of January, 1863, when she pounced upon the
schooner Hanover, belonging to Provincetown, a small fishing town on
the coast of Massachusetts, and well on its way to its destination of Aui
Cayes, in the island of San Domingo.

The captain of the Retribution now laid down his name of Parker.
On reaching the Hanover, he at once recognized the master, Washing-
ton Case, as a person he had seen at Provincetown, when he was there
engaged in a fishing voyage from that port, a few years before. He now
announced himself as Vernon Locke, belonging to the British province
of Nova Scotia.

Xiourrait avoir 6t6 de trouver iin marcb<5. Si c'est la lo cas, les propri<^taire8 doiveni
avoir manqiid leur atteute. Le remorqiieur fut pons8<5 par lo iiiaavais temps daDS lo
Cape Fear River, oil il fut saisi, d'apres la mode d'alors dans co pays, sans s'inquicter
de rien payer, et I'^qiiipa^e fut fait prisonnier.

Sa machine semble avoir 6x6 consacrde ii im autre usage, car ce que nous apprenons
ensuite, c'est qu'il dtalt deveuu un voiiier et que son noni etait la Retribution.

Pendant ce temps, un an et demi sYtait <5coul(5. Lo 21 novembre 18152, seulement, il
roparalt h Cbarloston, dans la Caroline du Sud, et il y est euregistr<^ comme propridtc
l>articulitire d'uu Thomas B. Power, citoyen do cetto ville. Ici les registres portent
qu'un homuie nomm<5 John Parker en est le capitaine.

II est parfaitenieut clair que ce M. Parker, quo nous trouverons l)iont/)t sous plu-
sieurs autres nouis, n't'*tait a cctte c^poque counu (lue comme capitaine d'un vaisseau
particulier appartenaut h un citoyen de Charleston; il n'i^tait pas citoyeu de la Caro-
line du Sud, ni d'aucun etat insurg(5. II ii*y eut pas de pr<5texto d'une commission
publique, ni du vaisseaiv ni de sou commandant. Jo ne puis docouvrir niille part
qu'aucune pitice de cette nature ait jamais ct6 produite xiendant toutes les transactions
subsequentes.

N<5anmoin8 il est raisonnable de croire que ce vaisseau fut arm<5, dquiix^ et recrut^ a
Charleston dans le but de se livrer a un systi'ine de d<5prddations. Sa premiere appari-
tion dans ce rAle on haute mer eut lieu le 28 Janvier 18()3, ou il pin^a le schooner Han-
over, de Provincetown, petite ville de p^cheurs sur la c6te du Massachusetts, et sur le
point d'arriver ii sa destination, Aux Cayes, dans File de St.-Dominguo.

Lo capitaine de la Retribution d<5posa alors son nom de Parker. En arrivant a bord

du Hanover il reconnut imm6diatemeut le capitaine Washington Case comme nno per-

sonne qu'il avait vue li Provincetown, lorsqu'il y avait 6t6, quelques anndes anparavant.

'^6 d*un voyage de p(^che de ce port. II s'annon^a alors comme Vernon Locke, de

ince auglaise la Nouvelle-f^cosse. Si Ton admet ceci, il s'ensuit qu'un citoyen

OPINIONS OF MK. ADAMS. 219

If this be adiiiitted, it follows that a citizen of oue of Her Majesty's
vlepeudencies, acting as au ofticer of a vessel i)retciidiug to a belligerent
commission, took possession of the Hanover as his lawful prize, turned
adrift the true captain and his crew in an open boat to make their way
totbe nearest land as they best could, and then bore oft* with his prey
toward the island of Long Cay.

A question naturally arises here, whether this Nova Scotia man Locke,
in coming to this region, had been moved to it by any previous familiarity
with its facilities for such enterprises as he was about. The evidence on
this i>oint is not conclusive. Thomas Sampson, a person sent out as a
(ietective by the United States Government to watch what was going
on at Nassau, aftirms that he knew by good report that Locke had been
<*/erk for Adderly & Co., which fact, if it were true, would go far to ex-
]*Iain the cause of the success of all his operations. But it will not ex-
plain how he, a Nova Scotia man, should have been recognized as a
^<*{?itimate commander of a belligerent vessel of the insurgent States by
^he authorities of Nassau. But of this I shall have more to say presently.
On the 5th of February, 18C3, that is, eight days after the capture of
the Hanover, this vessel arrived at Long Cay. But there came at the
^^me time another vessel in company, called the Two Brothers, which
paptain Locke had succeeded in the internal in hunting up, as well as
*^er owner, a person of the name of Farrington, apparently not unaccus-
tomed to the business of buying up shipwrecked property. But it was
^ot as Locke that the captain now appeared. This time he had the as-
surance to personate Washington Case, the true master of the Hanover,
whom he had sent off" with his crew several days before. He told a
story that the vessel had been ashore and consequently sprang a leak,
which would make transshipment necessary. The end of it all was, that
he desired to sell more or less of the cargo. Farrington doubted the
truth of this account from the first, but he did not see why that should
prevent his buying the cargo. So the two proceeded to the otfice of the
collector, in order to get the necessary i^ermit to land. That otticer ex-

d*UDe clcM possessions do sa Majestc, agissant coinmo officier d^m vaisscau prdteudant
avoir udo comuiission de beUigcraDt, s'enipara du Hanover comme priso l(5gale, jeta lo
vrai capitaine et son dquipage dans uu petit batean, pour qu'ils gagnassent la terro la
plus profhe comme ils le pouiTaient, pais cingla avec sa prise vers Tile de Long Cay.

Ici 8-<51eve naturellcment la question de savoir si cet bonime de la Nouvelle-ficossc,
Locke^ en venant dans ces parages, y avait 6t6 pousse par une certaiue familiaritcS avec
Ics facilities qu'il y avait trouvSos auparavant, pour des enterprises comme ceUe qu'il
projetait. Les i)reuves sur ce point ne sont point concluantes. Tboraas Sampson,
envoyo comme agent de police par lo (iouvernoment des fitats-Unis, i)Our surveiller co
qui sc passait ii Nassau, aibrme qu'il savait de bonne source que Locke avait <5t<5
commiH chez Adderley et C''', fait qui, s'il ctait vrai, tendrait fortcment a cxpliquer la
cao8e4lu succes de toutes sos operations. Mais cola n'expliquerait pas comment lui, un
bomme de la Nouvelle-^cosso, aurait 6t6 reconnu comme commandant l<^gitime d'un
vaissean belligcrant des (^tats insurgf's i)ar les autoritos de Nassau. Mais j aurai a en
dire davautage tout a Tbeu^e.

IjO 5 fdvrier 1803 — c'cst-i\-dire, Iniit jours apres la capture du Hanover — ce vaisscau
.•iiTiva a Long Cay. Mais il y arriva en memo temps un autre vaisscau appel<5 les
Two Brothers, <iuo lo capitaine Locke, dans I'intervalle, avait rdussi a dccouvrir,
aiissi bien que son propridtaire, du nom de Farrington, qui avait apparemment I'habi-
tiide d'acheter des propridtos naufrag(^es. Mais ce no fut pas comme Locke ([u'apparut
aloi*s le capitaine. Cette fois il cut I'audace do jouer lo role de Washington Case, lo
vrai capitaine du Hanover, qu'il avait envoyo promenor avec son Equipage <iuelques
jours auparavant. II lit une histoire, disaut <|He lo vaisscau avait touchd terre ot qu'cn
oou8<'quence il avait uuo voie d'eau, ce qui rendrait un trausbordement nocessairo. La
liu de tout cela <^tait qu'il dosirait vendre plus on moins de la cargaison. Farrington
donta de la v<^ritc de cette bistoire des Tabord, mais il no vit pas pourquoi cela I'aurait
emp^cbe d'achetcr la cargaision. lis so rendirent done tons les deux au bureau du
reccvenr pour obtcnir la permission de ddbarquer. Cet ofticier examina les pupicrs

220 ARBITRATION AT GENEVA.

aniined the papers ottered in the usual manner, asked the cnstomary
questions, and, being satisfied, gave the requisite authority.

Thus every part of Locke's scheme had completely succeeded. He
received his money. Farrington sold the goods, doubtless at a goo<l
profit. The captured vessel was sent to Nassau, there loaded with salt
and provisions to go to one of the insurgent ports, after which there is
no further trace of her.

It should, however, be particularly noted that the manifests of the
cargo presented to the collector, upon which the transfer of the propertr
was authorized, were two. They bore dates on different days, the otL
and Cth February, and both purported to have been signed by the^
true captain, Washington Case. But inasmuch as he had been sent oi^
his way over the sea on the 25th of Januar3^, it is clear that the date^*-
were appended by Locke. Moreover, the two manifests were not ideu —
tical either in regard to the articles of the cargo nor to the quantities o^'
each. Furthermore, the signatures were by no means in the same hand —
writing. It is not unlikely that one of them may have been genuiue^^
and found on board of the vessel after it was taken. But the other wa^3-
so signed that no one at sight of it could avoid seeing it wfis not by thc3
same hand.

Mr. John Burnside, the resident magistrate of Inagua, subsequentl:^'
reported to the governor the facts which he happened to witness. Ho
affirms that both Farrington and he doubted the truth of Locke's story
at the time. A day or two afterward, by reason of some words dropped
from an intoxicated sailor in the Hanover, the collector was led to sus-
]>ect some falsehood, which induced them all to examine the papers
more closely. The truth became apparent, on inspection, that a palpable
forgery had been committed, and an individuiil falsely personated.

Here were the collector, the resident magistrate of the district, and
one other person, all of them convinced that a grave oftense had been
(committed against the law — an offense, too, involving a question of
l)roperty, which it would seem to have been the duty of the officers at

qui lui (^taient pn5sont<^s, dans la/orme onlinairo, fit les quostions iisueUes, et, 8atisfait»
(loiiua I'autorisiitioii demaudc^t).

Ainsi lo plan de Locko avait r(^assi complotenieut dans toutes ses parties. II re^nt
son argent. Farrington vendit la merchandise, sans doute avec grand profit. Le vais-
soan capture fnt onvo.yiS j\ Nassau ; li\, cliarg<5 de sel et de provisions pour so rondre :\
Tun des ports insurgt^s, apr<»s quoi on ne trojive plus de lui aucune trace.

II faut cependaut reniar([uer particuli^rement que les '* manifests" de la cargaison
])ri»sent<5s au receveur, sur lesquels le transfert de la propri6t(S fut autoris^, dtaient an
uonibre de deux. lis portaient des dat<?s do jours ditlV'rents, le 5 et le fevrier, et tons
les deux pr^^tendaient avoir 6t6 signos par le vrai capitaine Washington Case. Mais
comme il avait i'^te envoys* sur mi»r le 25 Janvier, il est clair que les dates avaient 6t^
:ijout<^e8 par Locko. De plus, les deux "manifests" n'ctaient ideutiques, ni quant aux
articles de la cargaison, ni quant ;\ la quantit*^ de chacun d'eux. En outre, les signa-
tures nVtaient ])as le moins du monde de la niome (Scritnre. II n'est pas invraisembla-
l)lo ([ue I'uue d'olles ait pu etre authentique et trouvee a bord apri^s sa capture. Mais
I'autre tHait t'l-rite do telle sorte quo personne, en la voyaut, no pouvait manquer de
n'counaitre quVlle ii\'tait pas do la niouie main.

M. .John Burnside, niagistrat d'Inagaa, rapporta plus tard au gouverneur les faits
dout il lui ofait arrivo drtrc t»Muoin. 11 atlirme <jue tons les deux, Farrington et lui,
«Mirent <U's doutos sur la voritt^ do I'histoiro de Locke a cette <^poque. Un jour ou deux
jdus tar<l, ou suite de quehiucs mots ochappos t\ un matelot ivre du Hanover, le re-
ceveur fut ameui'^ a soupvoinier <iui'lque meusonge, ce qui les conduisit :\ examiner
tons deux los \)apii'rs de ])lns pns. La vi^ritiS devint manifeste H IVxamen : qu'un faux
palpable avait vW' coinmis, ot (pi'on avait fausseuumt pris le titre d'un autre individu.

Voila done le roceveur, le magistrat du district et une autre personne convaincus

f/Mim trois <iuMino grave ortV'nse avait ot<^ commise oontre la loi, offense entralnant do

lie (piestion de propiioto qu'il aurait oto, soinblo-t-il, du devoir des otliciors du

.OPINIONS OF MR. ADAMS. 221

least to laeutiou officially to the authorities at Nassau. It was for them
to lead the way, in warning thein in season of an abuse which might
l)0S8ibly, and even probably, come to their notice in connection with
both these vessels at ^Nassau. In point of fact, both of them, as well as
a part of the cargo, went to Nassau and remained some time.

Three weeks elapsed, and, so far as appears by the papers, not a whis-
l)or regarding this extraordinary transaction seems to have been com-
lunuicated to the governor or anybody in authority at Nassau. The
Retribution was there and the Hanover was there. Nassau is a verv
vsniall place, where every event of this kind naturally would attract some
attention. The officers of the Retribution, including Locke himself, had
mine there. A single line from the collector would have served to point
ittteution to the subject, and to fix the eyes of the authorities on the
vessels at least, if not on the men. It is not unreasonable to infer from
the character of the pLace that the substantial facts attending the cap-
ture were more or less known to many persons, from the moment of the
arrival of the vessels and the men. The collector was dumb. The resi-
lient magistrate was dumb. As to Farrington, nothing could be ex-
pected from him, as he had become more or less a party in interest in
concealing the fraud which he could not doubt had been committed.

Neither is it at all likely that anything more would have ever been
^Usc.osed by these parties, had it not been that the agent of the under-
>vriters of the vessel, haying learned something of the case, on the 20th
of April addressed to the governor a remonstrance against the unlawful
pr(>cee<ling, and a desire for an investigation. The allegations were dis-
tinctly made —

That the Araericjiii schooner Hanover was taken to Fortune Island hy a pci-son call-
iiijif himself the master, who eoramunicated to R. W. Farrinofton, of the above island.
liis desire to dispose of the cargo of said schooner, and to purchase a cargo of salt ;

That the cargo of the Hanover was transferred to the Brothers, owned by the said Far-
rington, and all, or a part thereof, conveyed to the port of Nassau, and tliere placed in
cinirge of James I. Farrington, also one of the magistrates of Fortune Island :

moins de moutionncr ofticiellenient anx antoritds de Nassau. C'^tait h eux de prendre
les devants en les avertissant ii temps d'un abus qni j>ouvait peut-ctre, et m^nie pro-
bablement, venir alenr connaissance en rapport avec ces deux vaisseaux it Nassau. En
fait, t(ms les deux, aussi bien (pi'une partie de la cargaison, allereut i\ Nassau et y restr-
rent quelqne temps.

Trois seniaines 8*<^coulerent, et, autant qu*il ressort des documents, pas un nmt con-
cernant cette transaction extraordinaire ne semble avoir <Stc communique au gouver-
nenr ni a personne en autoritd k Nassau. La Retribution y etait et le Hanover y 6tait.
Nassau est un endroit tres-petit, oti tont<5vdnemeutde cette nature attirerait naturelle-
nient quelque atti^ntion. Les ofliciers de la Retribution, y compris Locke lui-meme,
y ^talent veuus. Une seule ligne du roceveur aurait servi ti attirer Tattentiou sur ce
snjet et it fixer les yeux des autorit<5s sur les vaisseaux au moins, sinon sur les hommes.
II u'est pas deraisonnable d'inf^rer du caract^re de Pendroit que les faits substantiels
conceruaut la capture 6taieut plus ou moins couuus de beaucoup de moude, depuis le mo-
ment de rarriv<Se des vaisseaux et des hommes. Le receveur fut muet. Le magistrat
-fat muet. Quant ^ Farrington, on ue pouvait rien atteiulre do lui, puisqu'iT dtalt
devcDu plus ou moins partie int^ressde h cacher la fraude, qu'il ne pouvait doucer qu'ou
eiit copimise.

n n'est pas non plus vraisemblable du tout que rien do plus eUt jamais 6t6 ddvoile
par ces personnes, si Tageut des assureurs du vaisseau, ay ant appris quelque chose de
<;« cas, u'avait pas adres8<S, le 20 avril, au gonvernear, une remontrance contre le pro-
c<^6 illegal, et nne demande d'iuvestigation. Ses allegations (Staient ncttemeut faites :

"Qaele schooner amdricain, le Hanover, avalt 6t6 pris it Fortune I^^Iand par un iudi-
vidn s'en disaot le capitaine, qui communiqua it R. W. Farrington, de Tile ci-dessns,
son ddsir de disposer de la cargaison du dit schooner et d'acbeter une cargaison de sel.

'* Que la cargaison du Hanover avait 6t6 transbordde sur le Two Brothers, propridto
4la dit Farrington, et que tout ou partie en avait 6t6 transports au port de Nassau, et
iii, livrc it Jamss I. Farrington. aussi un des magistrats de Fortune Island.

222 ARBITRATION AT GENEVA.

That the Ifanovcr was loaded with salt, and sailed for one of the southern ports of
the United States ;

That the party who represented himself as AVashinjjtoii Case, master of the Hanover^
]iroved to be the rii*st officer of the arme<l schooner Retribution ;

That the Retribution .was then at Nassau, as were also the officers.

Tlie lietribntion was then at Nassau, and had been there received as
a vessel of war of tlie insurgent States, without a word of remonstraoce
or even of notice by the authorities.

J]ut ou the 31st of January, 18G2, the Duke of Newcastle had dis-
])atclie<l to the governor of Nassau a paper of instructions to guide
his course in regard to such vessels, one of which was to this effect :

Durinjx the continuance of the present hostilities between the Government of the
Fniteil States and the States calling themselves the Confederate States of America, or
until Her Majesty shall otherwise order, no ship of war or privateer belonging to
lather of the belligerents shall be permitted to enter or remain in the i)ort of Nassau,
or in any other port, or roadstead, or water of the Bahama Islands, except by special
leave of the lieutenant-governor of the liahama Islands, or in case of stress of weather.

On the 11th of March following, Governor Bayley appears to have
issued a proclamation to the people of the Bahama Islands, ex)mmnni-
cating these instructions, and directing obedience to this provision.

The governor of Nassau had not taken any action whatever, so far
as it appears, in prohibiting the entrance or remaining of the Retribu-
tion in the port of Nassau, though he must have known she was there.

On receiving the letter of Mr. Jackson, he contented himself with a
reference to the attorney-general in these words, " I wish to know
what steps ought to be tak^n. It is suggested that a confederate officer
has made Fortune Island a depot for prizes,"

Such was the only point of view in which the governor thought fit to
consider the statement of ^Ir. Jackson, communicating to him other
fa<its of which it might have been supposed it was his duty to take notice.

**Que le Hanover avait ete charge de sel, et <iuMl <Hait parti pour Tun des ports du
sud des r^tats-lTuis.

**Qu'il avait ete prouv<^ que Tindividu se donnant pour Washington Case, capitaiue
du Hanover, (^tait le premier otficier du schooner armd la Ketribution.

*' Que la Retribution <^tait alors a Nassau, aussi bien que les officiers.^'

La Retribution <^tait alors a Nivssau, et y avait 6t6 re^ue comnie vaisseau de
guerre des etats insurgt^s, sans nn mot de remontranco ni une rcmaniue de la part des
autorites.

Mais le 31 Janvier 1802, le due de Newcastle avait exp<*die an gouverneur de Nassau
des instructions pour guider sa conduite a Tc^gard de vaisseaux seftiblables, dout Tune
«»tait convue comme suit :

** Pendant la duree des hostilites ijresentes entre le Gouvernemcnt des fitats-Unis et
les soi-disants rtats-conledi^r^s d'Amcriqne, ou jusqu'ji ce que sa Miyest^ en ordonue
autrement, il ne s<*ra permis li aucun vais.seau do guerre ni i\ ancun corsaire appar-
tenant li Tun ou a Tautre des bell ige rants d'entrer ou de rester dans le port de Nas!Mu,
ou dans quehpie autre port, ou rade ou dans les eaux des lies Bahamas, a moins d^iue
l>ermission si»eciale du lieutenant gouverneur des lies Bahamas, ou eu cas de mauvais
temps."

Le 11 mars suivant, le gouverneur Bayley pamlt avoir public une proclamation anx
habitants des lies Baliama.s, leur communiquant ces instructions et leur ordounant de
les suivre.

Le gouverneur dc Nassau n^avait pris aucune niesure, autant ([u'il le semble, |K)ur
empecher I'entri^e ou le sojour de la Retribution dans le port de Nassau, quoiqu*il eiit
dfi savoir qu'elle y i^^tait.

Ku recevant la lettre de M. Jackson, il se contenta de Tenvoyer a Tat torn ey-general
avec ces mots: **Jevoudrais savoir quelles mesure^s il fant prendi'e. On dit ipuin
otticier conf»Hl»*r<^ ii fait de Fortune Island un d»'p6t de prises.**

Tel etait le seul point de vue auquel le gouverneur crfit convenable de gonsiderer
Texpos*^ de M. Jackson, qui lui avait fait connaltre d'autres faits dont on imuvait sup-
poser ((uMl etait de son devoir de prendre connaissance.

OPINIONS OP MR. ADAMS. 223

•

The lletributiou had been received in Nassau as a confederate vessel
of war, contrary to the terms of his own proclamation.

The Hanover had been received in Nassau as a prize, and had been
fitted out from there to go to the Southern States of America.

The officers of the vessel were at the time stopping at Nassau, enjoy-
ing the fruits of their violation of the waters of the Bahamas.

Nobody residing in so small a place, where events of this peculiar
kind were passing before their eyes, could long remain ignorant of these
facts.

Yet the governor confines his inquiry of the attorney-general to the
mere fact that Fortune Island had been made a depot for prizes by a
confederate officer.

The attorney-general was Mr. G. C. Anderson, with whom we have
already been made acquainted in the transactions connected with the
steamer Oreto, alias the Florida, which took place in Nassau just one
year before. This gentleman does not appear to have been roused into
more activity in the interval. The opinion which he gave in answer to
the governor is in these words :

I li.ivo pjiveii my best consifleration to tlie aoconipaiiyiDg letter of Mr. Jackson, in
the hope of beiiij^ able to advise his excelleiujy to some course of proceediug which
would lead toa judicial investigation into the circumstances complained of, but I re-
i:;ret lo say that I have been unable to arrive at any other conclusion tending to such
a result.

The conveying of the Hanover into the port of Long Cay, and there transshipping
the cargo, assuming her to have been a prize of war, was a violation of Her Majesty's
iot'erdict on the subject of prizes, and the collector of revenue, if he had any cause to
suspect the character of the vessel and cargo, should at once have arrested lioth ; but
an this was not done, and the vessel has left the colony, and the cargo been disposeil
of, no proceeding in reni can now be instituted.

The next question is, whether any parties connected with the transaction have ren-
dered themselves criminally liable; and on this point I am clearly of opinion in the
negative.

La Retribution avait 6t6 re^ne h Nassau com me vaisseau de guerre confedcrd con-
trairement aux termes de sa propre proclamation.

Le Hanover avait 6X6, re^u h Nassau comme prise, et y avait 6M 6(\mp6 pour se
rendre aux ^tats du sud de PAm^rique.

Lea ofHciers de ce vaisseau demeuraient aloi-s li Nassau, jouissant des fruits de lenr
violation des eaux des Bahamas.

Personno r^sidant dans nn si petit endroit, oti des faits de cette nature particuliero
He p8^.saient sous les yeux de tons, ne pouvait les ignorer longt«mps.

£t cependant le gouverneur borne sa question ii Pattorney-general an simple fait
qu'un ofticier conf<6ddr<^ a fait un ddjpAt de prises de Fortune Island.

L'attomey-general <^tait M. G. 0. Anderson, dont nous avons d^j{\ fait la connais-
sance dans les transactions qui se rattachent an steamer VOreto, autrement le Florida,
qui eiirent lieu a Nassau juste nne ann<^e auparavant. Ce monsieur ne paralt pas 6tre
devenu jdus actif dans I'intervalle. L'avis qu'il donna en r^pouse %u gquverneur est
con^u en ces t^jrmes :

"J'ai examin<^ de mon mieux la lettre incluse de M. Jackson, dans I'espoir de
pouvoir ii'.diquer a son excellence quelque ligne de conduite qui pftt mener h une
enqut^te judiciaire dans les circonstances dont on se plaint; mais je regrette de
dire, que je n'ai pn arriver h aucune autre conclusion tendant i\ nn somblable
r<?«ultat.

"Le fait d'amener le Hanover dans le port de Long Cay et d'y transborder la
cargaison en Fen visa geant comme une prise de guerre ^tait nne violation de la
4l(5fense de sa M»je8t<^ au sujet des prises, et le receveur des douanes, s'il avait nne
cause quelconque de suspecter le caractere du vaisseau et de sa cargaison, aurait dft les
nrrf'ter tons les deux ; mais comme ceci n'a pas dt<S fait, que le vaisseau a qnitt<5 la
<>olonie, et qu'on a di8pos<^ de la cargaison, on ne pent mainteuant en tamer aucun
proc^s in rem.

"La premiere question qui vient ensnite eat de savoir si qnelqn'une des parties
inrl<^ej4 dans cette affaire s*e«t rendue passible d'un proc^s criminel; et sur ce point je
suis nettiunent d'avis que non.

224 ARBITRATION AT GENEVA.

I, however, tliiuk that the charge is one which calls for some iDvcstigation, and I
therefore recommend that the magistrate of the district be directed, on his next visit
to Long Cay, to institute inquiries with the view of ascertaining the exact facts of
the case, and that the collector of revenue be instructed to be vigilant in preventing
any occurrence of similar acts.

Id the first place it shoald be noted that this opinion at once con-
demns the course of the collector of revenue, who is proved to have had
cause to suspect the character of the vessel and cargo. He says that it
was his positive duty not merely to notify the government of the facts,
but to arrest both vessel and cargo. In point of fact, he did neither,
and gave no notice whatever at the time to the anthorities at Nassau.

Yet I do not perceive in the conrse of these papers the smallest at-
tempt to have been subsequently made to call the collector to any re-
sponsibility. Not a word was said to him of his failure to perform this
positive duty.

In the second place, the attorney-general gives it as his deliberate
opinion that none of the parties to this transaction had rendered them-
selves criminally liable. .

It would have been perhaps desirable had that officer given a single
reason for giving such an opinion prior to any attempt to investigate
the facts attending the case. There was plenty of evidence to be found
at Nassau if tbere were real energy present to seek it. If he had
sought it, it seems impossible that the attorney-general's statement
could have been made in good faith. As a clear proof to the contrary,
in point of fact, he himself was the party employed in prosecuting at a
later period an indictment against the principal engaged in these trans-
actions both for conspiracy and forgery.

It is impossible for me to explain this singular action of the at-
torney-general in any other way than this : He meant to say that in a
population so entirely in sympathy with the insurgent cause at that
moment, there was no chance, in his opinion, of procuring a verdict
against any one engaged in it. And in this he was probably right.

But this view of the subject does not relieve Her Majesty's goveru-

"Je pcnso ccpondant que I'accusation est de nature :\ exiger quelque examon et Je
recouimaudo en consequence que le magistrat du district re^oive pour instruction
dans sa prochaino visite i\ Long Cay de faire des enqa6tes pour constater les fails
exacts du cas, et que le receveur soit invito k 6tre vigilant pour emp^cher tout retour
d'act^s seniblables/'*

Tout d'abord, on doit remarqner que cet avis condamne du coup la conduite du
receveur, qui est prouvd avoir an des motifs de snspecter le caractere du vaisseau et de
la cargaison. 11 dit que son devoir positif 6tait non-seulement de notifier les fait«
au gouvernemont; mais encore d'arr6ter le vaisseau et la cargaison. £u fait, 11 ne fit
II i run ni rautre, et ne donna aucuu renseignement, k cette ^poque, aux autoritds de
Nassau.

Et pourtant je'n'aper^ois pas dans tons ces documents que la plus petite tentative
ait 6t6 faite plus tard pour rendre le receveur responsable.

En second lieu, Tattomey-general douue conime son avis r€fl<5chi qu'aucnne des
jiarties m616e8 dans cette affaire ne s'est rendae passible d'un proc^ criminel.

11 aurait <^t^ peut-^tre ddsirrble que cet oflficier edt donn^ une seule raison d'un t^^l
avis, avant toute tentative d'enqu6te sur les faits se rapportant h ce cas. On devait
trouver une abondance de preuves k Nassau, s'il y avait eu une volout^ fcrme de les
chercher. SHI les avait cherch^es, 11 senible impossible que Texpos^ de Tattorney-
general pAt avoir 6t6 fait de bonne foi. En effet, comme preuve oonvaincante du gou-
traire, il fnt la personne employde pour dinger plus tard une poursuite coutro le me-
ncur do ces affaires pour conspiration et faux.

11 ni'est impossible d'expliquer cette siugnli^re conduite de Pattorney-goneral
d'uucune autre manii^re que de ceUe-ci : 11 voulait dire que, dans une |>opnlation hi
entierement sympathiqnc ti la cause insurg<^e & cette <5)KMiue, il n'y avait point de
chance, dans sou opinion, d'obtenir un verdict contrequi que ce fttt qui y <Stait engage.
Et en ceci il avait probaldement raison.

Mais cette nisniierc d'eiivisagor le sn'et no d.'cliarge pas lo gouvernement de sa

OPINIONS OF MR. ADAMS. 225

ment from the obligations towards the innocent and injured party, in-
curred by the neglect of her servants to use due diligence in their vo-
cation to protect it from wrong.

Bat I must now go back in my relation of the operations of this
map, named Captain Parker, alias Case, alia^ Locke, to the point where
I left him, having accomplished his end at Long Cay of converting into
money the plunder he had obtained from the cargo of the Hanover.

He seems to have left Long Cay in the vessel called the Two Brothers,
into which that part of the cargo was transferred which was destined
to be sold at Nassau. But this was done only to evade observation.
He stopped at a place called Bum Cay, where he landed, and not long
after the Betribution appeared, and took him off.

This must have been about the middle of February. Locke then re-
sumed his cruise, and, on the 19th, being somewhere in the neighbor-
hood of a place called Castle Island, he came across an American brig
called the Emily Fisher, on a voyage from the island of Cuba to New
York, laden with sugar. Whether intentionally or otherwise is not ab-
solutely clear, five or six British wrecking-schooners were lying at an-
chor under the land, whilst the master of another one, called the Emily
Adderle.v, which was cruising about, bethought himself of boarding
the Emily Fisher, and entering into some conversation with the captain
touching the safety of the navigation, &c. This being over, a signal ap-
pears to have been given from the Adderley, the effect of which was at
once visible by the approach of another vessel. The result was that
the Emily Fisher was seized as a prize by the confederate schooner
Betribution.

And now Captain Locke seems to have really put into execution the
scheme which he had only pretended in the case of the Hanover. He
consulted with the captains of the five British wreckers, the effect of
which was that they took the brig, and, at about 5 p. m., ran her clean
on shore. The next day the wreckers had so far unloaded the brig of
ber sugar that she was again afioat. The master of the brig, who, with

^est^ des obligations envcrs la partie inoocente et l^^e, eocoarues par la ndgligeoce
^^ ses officiers h exercer '' due diligence " dans leur mittnion de la proUSger coutre tout
Pommage.

Mais je dois maintenant revenir dans mon rdcit des operations de cot homme nomm^
^^ capit-aine Parker, aiiiu Case, alias Locke, au point oil je I'ai laiss^, apr^ avoir
^ccotnpli son desseiu ^ Long Cay de couvertir en argent le butin quUl avait obtenu de
*^ cargaisou du Hanover.

. II seinble avoir qnitt^ Long Cay snr le vaisseau appel^ les Two Brothers, dans leqael
^vait 6V6 transport^e cette partie de la cargaison qui <Stait destin^e }\ 6tre vendue ^
Hassan. Mais c'^tait seulement pour dviter les obttervations. £n eflfet il s'arrdta en
iin endroit nomiu6 Rum Cay, ou il ddbarqua, et, peu de temps apr<^s, la Retribution parut
€t le prit ji bord.

Ceci doit s'dtre pai^sd h peu pr5s au milieu de f6vrier. Locke reprit alors sa course,
et le 19, se tronvant quelque part dans le voisinage d'un eudroit*appel<$ Castle Island,
il rencontra un brick am6ricain nommd TEmily lisber, en route de Tile de Cuba pour
New York, charg^ de sucre. Soit avec intention, soit autremeut, cela n'est pas tr^s-
clair. cinq ou six schooners anglais de sauvetage^taient ^ I'ancre pr^s de terre, pendant
qne le cai>itaine d'un autre, uomm6 FEmily Adderley, qui croisait 1^ antour, imagina
d^aborder le Fisber, et d'entrer en conversation avec le capitaine au sujet de la s^curit^
de la navigation, etc. Apr^s ce bout de conversation, nu signal paralt avoir 616 donn6
dn Adderley, dont IVffet devint bientdt visible par I'approacbe d'un autre vaisseau.
Le rdsultat fut que TEmily Fisher fut saisi comme prise du schooner couf<Sder6 la Retri-
bution.

Et maintenant le capitaine Locke semble avoir rdellemcnt mis ^ execution le plan
qu*il avait seulement feint dans le cas du Hanover. II tint conseil avec les capitaines
des cinq schooners anglais, et le r^sultat fut qu'ils prirent le brick et que, vers cinn
heures apres-midi, ils le jet.tt^rent ^ la c6te. Le lendemain les sauvoteurs avaieutassez
d^charge le brick de son sucre pour qu'il fQt remis fi flot. Le capitaine du brick, qui,

15 B

226 ARBITRATION AT GENEVA.

his crew, had beet) put ashore close by, seeing these operations going
on, made some effort to reclaim the property. He applied to the au>
thorities for assistance, but they declined to give him any prior to hi%
securing a release from the claims of the wreckers for salvage. Th^
consequence was that, by paying one-half of the value of the cargo
and one-third of that of the vessel, she was finally returned, divested^
of almost everything movable on and under de^k. All this time the
brig was lying under the guns of the Eetribution, and the authorities
to whom he appealed declared themselves wholly unable to protect hiin.

From this narrative, it seems tolerably plain that the master of the Ret-
ribution, after seizing this vessel, entered into an agreement with these
wreckers to cause her to be driven ashore, and then to divide the proceeds
which might be collected in one way or another from false claims of 8ah-
age ; and inasmuch as the master offered more money than they could reas-
onably expect to realize by any other disposition they could make o( it,
with less trouble to themselves, thoy accepted the terms. The authori-
ties at Long Cay, fully aware of the transaction, the nature of which
they could not misconceive, gave it their sanction. Neither does the
collector appear to have ever given any report of the transaction.

A more thorough prostitution of the powers of the Government to
the most flagrant purposes of plunder, under pretenses which could de-
ceive no one, it has not been my lot to witness, even in the long record
of frauds submitted in the volumes before us.

It may be alleged, on the part of Her Majesty's government, that
these were the results of the offenses of irresponsible parties, for which
it is not the custom of governments to be held liable to other nations.

The answer to this is, that when the Retribution made her appearance
in the port of Nassau, after having executed the outrages described,
the collector declares that she did not enter as a trader; she was treated
as a confederate vessel of war.

avec son (^((nipage avait 6t4 mis h terre tout pr^s, voyant ces op^^rations en train, fit
quelque tentative pour r<^clamer sa propricte. II demanda du secours anx autorit^
mais elles refnserent de lui en donner aiicnn, avant qn'il eftt obtenu un acquittement
des deniandes des saiiveteurs pour sanvetage. La consequence fut, qu'en payant la
moiti(^ de la -valenr de la cargaison et le tiers de cclle du vaisseau, il lui hit rendu
d6pouill6 de presque tout ce qu'on put emporter sur le pont et au-dessons. Pendant
tout ce temps ]e brick <Stait sous les canons de la Retribution, et lea autorit^s auxqueUes
il en appela se d-^clarerent tout-^fait inipuissantes h le prot^ger.

Par ce r^cit il semble assez clatr que le capitaine de la Retribution, apres avoir saisi
ce vaisseau, entra en arrangement avec ces sanveteurs-pour qu'il fftt jet^S & la c6te, et
ponr partager ensuite les b^m^tices qui pourraient 6tre retire, de maui^re on d'autre,
de fausses demandes de sanvetage. £t, vu que le capitaine ofirit pins d'arg^nt qu^ik
ue ponvaient raisonuablement esp^rer en rdaliser, par n'importe quelle fayon d'eu dis-
poser avec moins de peine pour eux, ils accept^rent les conditions. Et les autorit6i
de Long Cay, bicn jenseigu^es k l'<^gard de 1 affaire, sur la nature de laqnelle elles ne
ponvaient pas se tromper, y donn^reut leur sanction. Le receveur non plus ne semble
avoir fait aucun rapport sur cette transaction.

Uue plus complete prostitution des pouvoirs du gouvernement pour les desseins les
pins flagrants de pillage, sons des pr^^texfes qui ne pouvaient tromper personne, il ne
m'est pas arrivd d'en rencontrer, m^uie dans de long recueil dea frandes rassembl^es
dans les volumes devant nous.

On peut all<^guer de la part du gouvernement de sa Majesty que celles-ci furent le
r^sultat des ottenses de parties irresponsables, pour lesquelles ce n'e«t pas I'habitude
des gouvernemeuts d'etre tenus pour respousables envers les antres nations.

La r6pou8e h ceci est que qnaud la Retribution fit sa premiere apparition dans le
port de Nassau, apr^8 avoir commis les outrages d6crit8 plus haut, le receveur declare
qu'elle nVntra pas conime vaisseau de commerce. £lle fut traitt^e comma vaisseau de
guerre confdd^r^. Cepeudant ancune application ne semble lui avoir 6t6 faite des
rC'gk'S prescrites par le gouvernement de sa Majesty le 31 Janvier 1862, excluant des
ports, des rades et des eanx des lies Bahamas tout vaisstau semblable sans permissioii
bp6cia\e.

OPINIONS OF MR.- ADAMS. 227

Ou the 3d of March this vessel had been dismantled, and her hull was
sold at public auction by Messrs. Adderley & Co. She brought the sum
of £250. But it nowhere appears to whom the proceeds were credited.
Messrs. Adderley & Co., who probably knew the whole story of this
vessel from its origin to its sale, were never called upon to disclose it.
Neither does it appear that the governor took the smallest notice of
80 material a transaction.

Nor yet is it likely that anj^ more inquiries would have been made in
any quarter had it not been for a reminder which the authorities were
not at liberty to neglect. On the 4th of April Mr. Seward, the Secre-
tary of State of the United States, addressed a note to Lord Lyons,
then the British minister at Washington, stating the facts attending
the capture of the Hanover in British Waters, and demanding repara-
tion. Lord Lyons sent a copy of this note not oul^^ to Earl Bussell but
directly to the governor of Nassau.

The governor, on receipt of this dispatch, addressed a reply directly
to Lord Lyons, transmitting the report received from Mr. Burnside,
when expressly called upon the 20th April previous, which is found
among the papers before us, and concluding with the following para-
graph :

Whatever the character uf the Retrihution, or whoever the ostensible master may
bave been, I am convinced that no suspicions of either were entertained by any offi-
cials of this government until it was too late to act ou them.

I liave directed further inquiries to be made.

I cannot suppress my surprise at the calmness of such an affirmation,
vhen the report which he sent, and to which he alludes, seems to my
eyes distinctly to admit the fact that all three persons, the collector,
Mr. Farrington, and himself, entertained so great doubts of the truth of
the statements made to them by Locke, that it seems to me to have been
a positive duty in the two officers, at least, to have pursued an investi-
gation certiiinly so far as to penetrate the reasons for the falsehood, the
fraud, and the forgery by which the business was accompanied.

The unsatisfactory nature of this report was plainly intimated by Mr.

Le 3 mars, ce vaisseau avait 6t6 ddmantel6, et sa coque fut vendue en vente publiqae
par Messieurs Heury Adderley et C'^. EUe rapporta la somrae de £250. Mais ou ne
troave nuUe part qui fut cr6dit4 de ce bdiiddco. Messieurs Adderley et C'«, qui proba-
blement connaissaient toute Thistoire do ce vaisseau, depuis son origine iusqu'4 sa ,
vente, ue furent jamais appel<Ss k la mettre an jour. Le gouvernenr ne semble pas noa
plus av^oir fait la moindre remarque sur une transaction aussi grave.

II n'est pas probable non plus qu^aucune enquSte eftt 6t6 faite nolle part, s'il u'y
avait pas eu un rappel que les antorit^ n'avaient pas la liberty de n^gliger. Le 4 avril,
M. Seward, Secretaire d'etat des ^tats-Unis, adressa une note k Lord Lyons, al(»rs mi-
nistred^Angleterre k Washington, exposant les faits coucernant la capture du Hanover
dans les eaux anglaises, et demandant reparation. Lord Lyons envoya une copie de
cett« note, uon-seulement au Comte Russell, mais directement au gonvernenr de Nassau

Le gouverneur, ^ la reception de cette d^p^che, r^pondit directement k Lord Lyons,
en lui transmettant le rapport re^ u de M. Burnside, quand il y fut express^ment invite,
le ^0 a vri I precedent, qui so trouve parmi les documents devant nous et so termiuant
par le paragrapbe suivant:

** Quel qu'ait pu Hre le caractt're de 1^ Retribution, on son capitaine ostensible, jesois
convaincu qu'aucun soup^on k Tegard de I'un on de I'autre n'a ete con^u par aticuu
officier de ce gouvernement jn8qif:\ ce qa*il ait 6t6 trop tard pour agir contre eux.

" J'ai donne des instnictions pour quo Ton fit des euqndtes uUerieures."

Je ne puis taire ma surprise du ci^lme d*uue telle affirmation, quand le rapport quMl
envoyait, et auquel il est fait allusion, semble k mes yeux a<lmettre distinctement le fait
que tons les trois, le receveur, M. Farrington et lui, con^uvent de si grands doiites snr
\a vdrite des exposes que leur fit Locke, quMl me semble avoir 6t6 un devoir positif
ponr les deux otliciers an moins de faire uno enqndte, assez loin certainement pour
p^netrer les motifs dn mensonge, de la fraude et du faux dont ils etaient accompagqes.

M. Seward fit assez clairemeut entrevoir la nature peu satisfaisante de ce rapport

228 ARBITRATION AT GENEVA.

Seward when he received it, and was also signified to the governor bj tbe
Diike of Newcastle, on behalf of the government at home. This stim
nlated the anthorities to efforts to seize and to prosecute the chief
offenders still hanging about the place. It was clear they were British
subjects, guilty of something very like piracy, as well as of forgery and
fraud. Of the judicial proceedings that followed I desire to speak
with the moderation due to the courts of a foreign nation. But I coald
only repeat the remarks which I made in regard to this matter in my
review of the case of the Florida. The arbitrators appear to me at
least to have a duty to the parties before the tribun«al to state their
convictions of the exact truth, without fear or favor. In the perform-
ance of my share of it, I cannot omit to point out — (1,) the evasion of
the important witnesses when they were wanted, and their re appear-
ance in perfect security afterward ; (2,) the refusal of the collector at
Long Cay, the most important and responsible agent of the govern-
ment in the transaction, to appear at first ; and (3,) the absence of all
testimony as to the facts within his knowledge when he actually ap-
peared ; (4,) the avoidance of all testimony of the same kind on the
part of Burnside, the magistrate of Inagua, whose first report, made to
the governor, showing his knowledge of them, is among the papers be-
fore us; (5,) the straw-bail required of the principal culprit bytlie
court, and his rejidy forfeiture of it when he pleased ; (6,) the intima-
tion of Governor Rawson, that if it had been £1,000 instead of £100,
it would have been equally supplied to him, if required to save him;
and, lastly, the acquittal of the criminal by reason of the disappear-
ance of the most important witness for his condemnation ; all together
present a more melancholy and scandalous spectacle of the paralysis of
a judicial tribunal than has ever before been met with, at least in my
experience.

The fact is too plain that the population of Nassau and its vicinity

qnand il le re^ut, et le due de Newcastle donna h entendre la mdme chose an gonver-
neur de la part du gouvernement de FAngleterre. Ceci poussa les auto^itej» ^ faire
leura etforts pour saisir et pour poursuivre les priucipaux coupables qui rAdaieut tou-
Jours autonr de IMle. II ^tait clair quMls <^taient sujets anglais, coupables de quelque
cbose qui resseuiblait beaucoup h de la piraterie, aussi bien que do faux et de frande.
Je desire parler des poursuites jndiciaires qui suivirent avec la moderation dde aux
cours d'une nation dtraug^re. Mais jo ne pourrais que r6p6teT les reinarques que j'ai
fait^s^ IV.gard de cette niati^re dans ma revue du cas du Florida. Les arbitres me
Bemblent avoir, envers les parties qui sont devant ce tribunal, an moins le devoir d'ex-
poser leurs convictions de Pexacte vdritd sans peur ni partiality. Dans raccomplisse-
ment de ma tA>che, je ne puis omettre dMudiqner :

1. L'^vasion des t^moius importants quand on eut besoin d^eux, et leur r^^apparition
en pariaite s^curitd plus tard.

2. Le refus du receveur do Long Cay, Tageut le plus important et le plus responsa-
ble du gouvernement dans cette transaction, de paraitre d'abord.

3. L'absonce de tout t<^moignage, quant aux faits ii sa connaissance, lorsqu'il parut
eifectivement.

4. Le silence de Bamsido, le magistrat d'Inagua, sur tout t^moignage de la mdme
nature, et pourtant son premier rapport au gouverneur, attestant sa counaissance des
faits, est parmi les documents devant nous.

5. La caution insignitiante exig6e du principal coupable par la cour, et la facility
avec laquelle il y mauqua qnand il le jugea bon.

6. Le sentiment du gouverneur Kawson que, s'il s'^tait agi de £1,000 au lieu de
£100. on les lui aurait dgalemeiit accord^es, si cela avait 6t6 udcessaire pour le sauver
et eniiu, racquittemeut du criminel k cause de la disparition du t^moin le plus impor>
taut pour sa condamnation.

Le tout ensemble pr^sente un spectacle plus triste et plus scandaleux de la paralysio
d^in tribunal judiciaire qu'aucun de ceux qui se soient jamais pr^seut^, au moins k
uia counaissance.

Le fait est clair que la population de Nassau et de son voisinage, <^tait de venue si

OPINIONS OF MR. ADAMS. 229

bad become so completely deraomlized by familiarity with the fraudulent
traosactious constantly passing before their eyes, as well as the unu-
sual profits accruing therefrom to themselves, that they were neither
in a condition nor in a disposition to visit with harshness any crime,
however fla^rrant, that could be associated, however remotely, with the
operations of the insurgents in their waters.

It appears to me to be clear that the collector of the port of Long
Cay failed in due diligence when he omitted to give any report whatever
to the governor of the flagrant acts committed by Locke in forging the
signature and attempting to represent the person of another man, as
well as in conspiring, in defiance of the authorities, to obtain false sal-
vaije, by force of arms, of an innocent party.

It appears to methat the magistrate of luagua failed in due diligence
when he omitted to give immediate notice to the governor of the facts
which he only reported when specially called upon by him three weeks
afterward.

It appears to me that the gov^ernor failed in due diligence when he
omitted to take notice of the presence of a vessel of the insurgents, in
the port, which was expressly prohibited to enter it by the instructions
of the government at home.

By reason of that failure, he further failed in due diligence in inform-
ing himself of the reasons which had brought that vessel, as well as its
prize, the Hanover, into the port — facts which could not have failed to
become known to him had he instituted a faithful investigation.

It appears to me that the attorney-general failed in due diligence
when he gave his first opinion, declining to act against the men whom
he bad reason to believe, criminals, as well as in all the subsequent pro-
ceedings which he instituted against them in the court.

For these acts of omission and commission, the nation injured can look
for reparation only to the government holding the supreme authority
over the territory wherein they happened. It clearly appears that no
energy existed in any official quarter to maintain neutrality.

conipl^tement (l<5morali84:5e par Vhabitude dos transactions fraadulenses qui se passaieat
sans cesse devant ses yenx, etpar lea bdn^tices innsit^s qu'elle en retirait, qn*elle n'^tait
ni en 6tat ni en disposition d'agir avec s6v6r\t6 contre toat crimo, qiielque Aagrant qii'il
f(^t, que I'on pouvait rattacher, meuie dHme maaii^re dloign^e, aux operations des in-
surgd^ dans ses eaux.

II me paralt clair que le receveur du port de Long Cay a manqu<§ aux "dues dili-
fpenccs" en omettant do donner au gouverneur aucune nou voile quelconque des actes
fia^rant« commis par Locke, en cotitret'aisant la signature et en essayant de jouer le
r6le d'une autre porsouuo, aussi bien que du complot eu d6Q des autoritds pour obtenir
d'ane parlie iunoceute du faux droits de sauvetage par les armos.

II mesemblequole uiagistratd'Inaguaa uianqud aux "dues diligences" en n<^gligeant
de donner imniddiatonient connaissanco au gouveruour des faits qu'il ne rapporta que
lorstfu'il y fut spdcialeinent mv\t6 par lui, trois semaines plus tard.

II nie senible que le gouverneur a mauqu^ aux "dues diligences" en ndgligejvnt de
remarquer la pr^^euce dans le port d*un vaisseau des iusurg^s, auquel il 6tait expresscS-
meiit d<^feudu d'entrer par les instructions du gouvernement de I'Augleterre.

En suite decette negligence, il uianqua plus tard aux "dues diligences" en s'informant
des raisons qui avaieut arnen6 ce vai.sseau, aussi bien que sa prise, le Hanover, dans ce
port, fait qui n'aurait pas iuanqu<^ d*arriver ^ sa connaissauce, s'il avait fait uue iavea-
tigation coosciencieuso.

11 me senible que I'attorney-general a manqu6 aux "dues diligences" en donnant
aon premier avis, refusant d'agir contre les homnios qu'il avait des raisons de croire
criminels, aussi bien que dans to.ites les meoures subs^quentes qu'il prit contre eux dang
leM cours.

Pour ces actes d'omission et de commission, la nation 16s<^o ne pent deinander
reparation qu'au gouvernement exer^ant Tautorit^ supreme sur le territoire ou ils se
•ont pass4^ II ressort claireraent qu'il u'y eut nnlle ^nergie dans aucune des r6gioua
officiellee poar maintenir la neutrality.

230 ARBITRATION AT GENEVA.

Hence roy conclasion is, that a liability is clearly imposed upon Her
Majesty's governineut, in the case of the Retribution, under the terms
of the treaty of Washington.

D^s lors ina conclusion est qn'une re8|>onsabilitd est claireroent inipos6e au goo-
vernement de sa Majesty, dans le cas de la Retribution, d'apn\s les teruios du trait^ da
Washington.

OPINIOIS^S OF SIR ALEXANDER COCKBURN.

The indirect claims at flrst insisted on by the Government of the United
States being now out of the question, we have to deal with the claims
for damages, "growing out of the acts" of certain specified vessels, as
to which it is alleged that, by reason of some default on the part of the
government of Her Majesty the Queen of England, these vessels were
enabled to take and destroy ships and cargoes belonging to citizens of
the United States.

The causes of complaint put forward by the United States Govern
c«.,-e« of com- ernmcnt may be classed under the following heads:
5ii;d^y^°h7*'Ln.ud !• That by reason of want of due diligence on the part
8ui«. Qf ^i^Q British government, vessels were allowed to be fitted

out and equipped, in ports of the United Kingdom, in order to their
being employed in making war against the United States, and, having
been so equipped, were allowed to quit such ports for that purpose.

2. That vessels fitted out and equipped for the before mentioned pur-
pose, in contravention of the foreign-enlistment act, and being therefore
liable to seizure under that act, having gone forth from British ports,
but having afterward returned to them, were not seized as they ought
to have been, but, having been allowed hospitality in such ports, were
suflfered to go forth again, to resume their warfare against the commerce
of the United States.

3. That undue favor was shown in British port^ to ships of war of the
Confederate States in respect of the tiuie these ships were permitted
to remain in such ports, or of the amount of coal with which they were
permitted to be supplied.

4. That vessels of the (confederate States were allowed to make
British ports the base of naval operations against the ships and com-
merce of the United States.

Owing to all or some one or other of these causes, vessels of the
Confederate States were enabled, it is alleged, to do damage to the com-
merce of the United States ; and compensation is claimed in respect of
the- damage so done.

The treaty of Washington, from which our authority is derived, lays

The tr».«ty of down, for our guidance in dealing with and deciding on

wi«h,,.«ton. these claims, certain rules as to the obligations of Great

Britain as a neutral state, which for the purpose of this arbitration are

to be taken to have been binding on it.

Not, indeed, that the British government admits that these rules form
part of the law before existing between nations. On the contrary, it is
expressly stated that "Her Britannic Majesty has commanded her
high commissioners and plenipotentiaries to declare that Her Majesty's
government cannot assent to the foregoing rules as a statement of prin-
ciples of international law which were in force at the time when the
claims mentioned in Article I arose, but that Her Majesty's govern-

OPINIONS OF SIR ALEXANDER COCKBURN. 231

inent, in order to evince its desire of strengthening the friendly rela-
tions between the two countries, and of making satisfactory provision
for the future, agrees that, in deciding the questions between the two
countries arising out of those claims, the arbitrators should assume that
Her Majesty's government had undertaken to act upon the principles
set forth in these rules. And the high contracting parties agree to
observe these rules as between themselves in future, and to bring them
to the knowledge of other maritime powers, and to invite them to accede
to them." 1
The rules in question are as follows :

A neutral government is bound —

First. To use due diligence to prevent the fitting out, arming, or equipping within
its jurisdiction, of any vessel which it has reasonable ground to believe is intended to
cruise or to carry on war against a power with which it is at peace ; and also to use
like diligence to prevent the departure from its jurisdiction of any vessel intended to
cruise or carry on war as above, such vessel having been specially adapted, in whole or
in part, within such jurisfliction, to warlike use.

Seci»ndly. Not to permit or suflfer either belligerent to make use of its ports or waters
as the base of naval operations against the other, or for the purpose of the renewal or
augnii'iitation of military supplies or arms, or the recruitment of men.

Thirdly. To exercise due diligence in its own ports and waters, and, as to all per-
sons within its jurisdiction, to prevent any violation of the foregoing obligations and
duties.'

With these rules before it, the tribunal is directed to determine as to
each vessel, "whether Great Britain has, by any act or omission, failed
to fulfill any of the duties set forth in such rules, or recognized by the
principles of international law not inconsistent with such rules."

The effect of this part of the treaty is to place this tribunal in a posi-
tion of some difficulty. Every obligation for the non-ful- Difficulty arm,.,
fillment of which redress can be claimed presupi>oses a f-^"™ »»»'' ^'•'•ly
prior existing law, by which a right has been created on the one side
and a corrfesponding obligation on the other. But here we have to deal
with obligations assumed to have existed prior to the treaty, yet
arising out of a supposed law created for the first time by the treaty.
For we have the one party denying the prior existence of the rules to
which it now consents to submit as the measure of its past obligatipns,
while the other virtually admits the same thing; for it "agrees to ob-
4serve the rules as between itself and Great Britain in future, and to
bring them 'to the knowledge of other maritime powers, and invite them
to ticcede to them " — all of which would plainly be superfluous and vain
if these rules already formed part of the existing law recognized as ob-
taining among nations.

It is, I cannot but think, to be regretted that the whole subject-mat-
ter of this great contest, in respect of law as well as of fact, was not left
open to us, to be decided according to the true principles and rules of in-
ternational law in force and binding among nations, and the duties and
obligations arising out of them, at the time when these alleged causes
of complaint are said to have arisen.

From the history of the treaty of Washington we know that it was
proposed by the British commissioners to submit the entire question,
both as to law and fact, to arbitration; but the commissioners of the
United States refused to "consent to submit the question of the liability
of Great Britain to arbitration unless the principles which should gov-
ern the arbitrator in the consideration of the facts could be first agreed
upon.'' In vain the British commissioners replied that they "should be
willing to consider what principles should be adopted for observance in

Treaty of Washington, Article VL

232 ARBITRATION AT GENEVA.

fature, but that they were of opinion that the best mode ot conductin
an arbitration was to submit the facts to the arbitrator, and leave hii
free to decide upon them after hearing such arguments as might
necessary." The American commissioners replitnl that they should l:^^
willing to consider what principles should be laid down for observanc^^
in similar cases in future, but only with the understanding that ''aa^
principles which should be agreed upon should be held to be applical^le
to the facts in respect to the Alabama claims." The British commis-
sioners and government gave way, possibly without fully appreciatin g^
the extent to which the principles of which they were thus admittii
the application would be attempted to be carried in fixing them wi
liability.

How this apparent anomaly arose is plain. Her Majesty's govern-
ment, animated by a high sense of justice and by an earnest desire of"
conciliation, were anxious to remove every possible cause of complaint;
or sense of wrong which the Government and people of the United
States had, or believed themselves to have, against Great Britain as to
matters arising out of the civil war; they were willing that if, through
any errrors or shortcomings on the part of British authorities, injuiy
had been caused to American subjects, full redress should be afforded;
they were willing that the question should be determined by an inde-
pendent and impartial tribunal; and though they would naturally have
preferred that the matters in dispute between the two countries should
be decided by what they believed to be the rules of international law
governing the case, rather than that, if the decision should be in
favor of Great Britain, the American people should feel that the con-
test had not been determined according to what, in their view, were the
principles applicable to it. Her Majesty's Government gave way to the
desire of that of the United States, and consented that the rules by
which it was agreed that the duties and obligations of the two nations
should be governed in any future case should be taken to be the measure
of the past obligations and duties of Great Britain with reference to the
subject-matters of the dispute.

It was a great and generous concession, and though the effect of it
might bo a pecuniary sacrifice on tlie part of Great Britain, it was one
which was c)ieerfully made on the one side, and I trust will not fail to
be appreciated in the same generous spirit on the other.

If, however, the differences which have unhappily arisen between the
United States and Great Britain were to be determined, not according-
to the rules of international law which the arbitrators to be agreed on
should determine to be applicable to the case, but accordine: to rules to
be settled by the contending parties themselves, then I cannot but wish
that the framers of this treaty had been able to accomplish the difiiicult
task, now left to us, of defining more precisely what is meant by the
vague and uncertain term 'Uliie diligence," and had also set forth the
further "principles of international law, not inconsistent with the rules
laid down," to which reference is made as possibly affecting the liability
of Great Britain.

To some of the heads of complaint hereinbefore referred to, this ob-
servation does not indeed apply. Whether vessels, which might orig-
inally have been seized, should have been so dealt with when they re-
entered British ports, or whether they were protected by the commis-
sions they had in the Inean while received from the confederate govern-
ment; whether confederate ships of war wei*e permitted to make Brit-
ish ports the base of naval operations against the United States;
whether the accommoaation afforded to them in British ports consti-

OPINIONS OF SIR ALEXANDER COCKBURN. 233

tated a violation of neutrality, for which Great Britain can be held lia-
ble, are questions which are left to be decided and must be decided ac-
cording to the rules of international law alone.

Bat when we have to deal with the far more important question of

the liability of Great Britain by reason of the omission to use "due

diligence'' to prevent the equipment of vessels of war in her ports, as

required by the treaty, we find nothing in the treaty to direct us as to

the meaning of that term, especially as regards the degree of diligence

^liich is to be understood to be required by it.

Left in this difficulty, we must endeavor to determine for ourselves

^l«e extent and meaning of the "due diligence" by which we are to

f^^st the alleged shortcomings of the government of Great Britain. For,

*t; is plain that the standard of " due diligence'' ought not to be left to

t»lie unguided discretion of each individual arbitrator. The municipal

Ihw of every country, wherever diligence is required by the law, whether

in resjiect of obligations arising out of contract, or in regard to the due

^iare which every one is bound to exercise to avoid doing harm to the

persons or property of others — ne alienum Uedat — prescribes some

standard by which the necessary' degree of diligence may be tested.

Dealing here with a matter appertaining to law, it is to juridical sci-
ence that we must look for a solution of the difficulty. And since we
have to deal with a question of international law, although, it is true,,
of an exceptional character, it seems to me that it will be highly useful
to endeavor to form a clear view of the reciprocal rights and duties
between belligerents and neutrals, created by international law gener-
ally, and of the diligence necessary to satisfy the obligations which
that law imposes, t cannot concur with M. Staempfli, that, because
the practice of nations has at times undergone great changes, and the
views of jurists on points of international law have often been and
still are conflicting, therefore there is no such thing as international
law, and that, consequently, we are to proceed independently of any
snch law — for such is the eftect of his reasoning, if I understand it
rightly — according to some intuitive perception of right and wrong,
or speculative notions of what the rules as to the duties of neutrals
ooght to be. It seems to me that when we shall have ascertained the
extent to which a neutral state is responsible, according to the general
law of nations, for breaches of neutrality committed by its subjects,
and the degree of diligence it would be called upon to exercise under
that law, in order to avoid liability, we shall be better able to solve
the question of what constitutes due diligence in the terms of the treaty
of Washington. That treaty may have admitted a liability in the
respect of the equipment of ships where none existed by international
law before, as I certainly think it has : but the degree of diligence re-
quired of a neutral government to prevent breaches of neutrality by
its subjects must be determined by the same principles, whatever may
be the nature of the particular obligation.

Besides the necessity of thus considering the relation of belligerents
and neutrals with reference to the subject of **due diligence," we have
farther, in order to satisfy the exigency of the articles of the treaty, ta
consider whether, besides in the omission of "due diligence," Great
Britain has failed to fulfill any duty imposed by any principle of inter-
national law not inconsistent with the rules laid down. It is clear also
that, with reference to the other heads of complaint, our decision must
necessarily depend entirely on the rules of international law applicable
thereto. It seems to me, therefore, desirable, in the first place, to en-
deavor to take an accurate survey of the law by which the relative

234 ARBITRATION AT GENEVA.

rights of belligereDts and neutrals are fixed and determined, as essen-
tial to the solution of the questions we are called on to decide.

I proceed, therefore, to consider the subject of neutral obligations in
time of war.

Neutrality may be said to be the status of a country relatively to two
Fi^™«.u of «^« others which are at war with one another, while it remains
^•''" at peace with both, and gives assistance to neither.

The last-mentioned condition is plainly an essential element of that
which goes before it; for, to give assistance to either of thebelligerents^
would be indirectly to take a part in the war, and would afford a suffi-
cient reason to the one whose enemy was thus assisted, for having re-
course to force to prevent such assistance from being given.

It is obvionisly immaterial in what form the assistance is rendered, so
oM^tio- of th* long as its purpose and effect is to add to the means of the
orutr*] .uu. belligerent for the purpose either of offense or defense-
Troops, men, horses, ships, arms, munitions of war of every kind, monev,
supplies — ^in short, whatever can add to the strength of the belligerent
for the purpose either of attack or defense — are t