2. For the conduct of its work the interstate conference will require a permanent secretariat. The general secretary should be appointed by the great powers, if possible choosing a national of some other country.

3. International bodies.-The secretariat would be the responsible channel of communication between the interstate conference and all international bodies functioning under treaties guaranteed by the league. These would fall into three classes:

(a) Judicial; i. e., the existing Hague organization with any additions or modifications made by the league.

(b) International administrative bodies. Such as the suggested transit commission. To these would be added bodies already formed under existing treaties (which are very numerous and deal with very important interests, e. g., postal union, international labor office, etc.).

(c) International commissions of enquiry: e. g., commission on industrial conditions (labor legislation), African commission, armaments commission.

4. In addition to the above arrangements guaranteed by or arising out of the general treaty, there would probably be a periodical congress of delegates of the parliaments of the States belonging to the league, as a development out of the existing Interparliamentary Union. A regular staple of discussion for this body would be afforded by the reports of the interstate conference and of the different international bodies. The congress would thus cover the ground that is at present occupied by the periodical Hague Conference and also the ground claimed by the Socialist International.

For the efficient conduct of all these activities it is essential that there should be a permanent central meeting-place, where the officials and officers of the league would enjoy the privileges of extraterritoriality. Geneva is suggested as the most suitable p'ace.

II.

PREVENTION of War.

The covenants for the prevention of war which would be embodied in the general treaty would be as follows:

(1) The members of the league would bind themselves not to go to war until they had submitted the questions at issue to an international conference or an arbitral court, and until the conference or court had issued a report or handed down an award. (2) The members of the league would bind themselves not to go to war with any member of the league complying with the award of a court or with the report of a conference. For the purpose of this clause, the report of the conference must be unanimous, excluding the litigants.

(3) The members of the league would undertake to regard themselves, as ipso facto, at war with any one of them acting contrary to the above covenants, and to take, jointly and severally, appropriate military, economic and other measure against the recalcitrant State.

(4) The members of the league would bind themselves to take similar action, in the sense of the above clause, against any State not being a member of the league which is involved in a dispute with a member of the league and which does not agree to adopt the procedure obligatory on members of the league. (This is a stronger provision than that proposed in the Phillimore Report.)

The above covenants mark an advance upon the practice of international relations previous to the war in two respects: (1) In insuring a necessary period of delay before war can break out (except between two States which are neither of them members of the league; (2) In securing public discussion and probably a public report upon matters in dispute.

It should be observed that even in cases where the conference report is not unanimous, and therefore in no sense binding, a majority report may be issued and that this would be likely to carry weight with the public orinion of the States in the league.

Senator KNOX. What other plan do you know of besides Lord Robert Cecil's plan, which you have just produced?

Mr. BULLITT. There were, of course, the President's various proposals.

Senator KNOX. Do you have a copy of the President's original proposition for a league of nations with you?

Mr. BULLITT. I have, sir.

Senator KNOX. Will you produce it?

Mr. BULLITT. I have this in two forms. I happen to have a rather curious document here, which I hope may be returned to me, inasmuch as it is a unique copy. It is the President's original proposal, written on his own typewriter, I believe, which was presented to me on January 10 by Col. House, with an inscription on the top of it. Senator KNOX. By Col. House?

Mr. BULLITT. Yes, sir.

Senator BRANDEGEE. January 10, 1919?

Mr. BULLITT. 1919; yes, sir.

Senator KNOX. Suppose you read that inscription by Col. House. Mr. BULLITT (reading). "For W. C. Bullitt, in appreciation of your help in an hour of need. E. M. House, January 10, 1919."

Senator KNOX. That is the President's original proposal, is it? Mr. BULLITT. This proposal, I believe, was presented on January 10—that is, the President used this proposal as the basis of discussion on January 10 with Mr. Clemenceau, Mr. Lloyd-George, and Lord Robert Cecil. I am not certain of that. I was informed of what it was to be used for by Col. House. I am not certain whether the President so used it or not; but this was the President's original proposition. The notes on the side of it, where you find references such as "H-21," were with reference to an earlier proposition of Col. House to the President.

Senator KNOX. Have you a copy of that?

Mr. BULLITT. I have not, sir.

Senator BRANDEGEE. Did you see it?

Mr. BULLITT. I did not, sir.

(The document last referred to was marked by the stenographer "Bullitt Exhibit No. 2," and is here printed in the record, as follows:)

BULLITT EXHIBIT NO. 2.

(Note in pencil: For W. C. Bullitt. In appreciation of your help in an hour of need. E. M. House, Jan. 10/19.)

COVENANT.

PREAMBLE.

In order to secure peace, security, and orderly government by the prescription of open, just, and honorable relations between nations, by the firm establishment of the understandings of international law as the actual rule of conduct among governments, and by the maintenance of justice and a scrupulous respect for all treaty obligations in the dealings of organized peoples with one another, the powers signatory to this covenant and agreement jointly and severally adopt this constitution of the league of nations.

ARTICLE I.

The action of the signatory powers under the terms of this agreement shall be effected through the instrumentality of a body of delegates which shall consist of the ambassadors and ministers of the contracting powers accredited to H. and the minister for foreign affairs of H. The meetings of the body of delegates shall be held at the seat of government of H. and the minister for foreign affairs of H. shall be the presiding officer of the body.

Whenever the delegates deem it necessary or advisable, they may meet temporarily at the scat of government of B. or of S., in which case the ambassador or minister to H. of the country in which the meeting is held shall be the presiding officer pro tempore. It shall be the privilege of any of the contracting powers to assist its representative in the body of delegates by any method of conference, counsel, or advice that may seem best to it, and also to substitute upon occasion a special representative for its regular diplomatic representative accredited to H.

ARTICLE II.

The body of delegates shall regulate their own procedure and shall have power to appoint such committees as they may deem necessary to inquire into and report upon any matters that lie within the field of their action.

It shall be the right of the body of delegates, upon the initiative of any member, to discuss, either publicly or privately as it may deem best, any matter lying within the jurisdiction of the league of nations as defined in this covenant, or any matter likely to affect the peace of the world; but all actions of the body of delegates taken in the exercise of the functions and powers granted to them under this covenant shall be first formulated and agreed upon by an executive council, which shall act either by reference or upon its own initiative and which shall consist of the representatives of the great powers together with representatives drawn in annual rotation from two panels, one of which shall be made up of the representatives of the States ranking next after the great powers and the other of the representatives of the minor States (a classification which the body of delegates shall itself establish and may from time to time alter), such a number being drawn from these panels as will be but one less than the representatives of the great powers; and three or more negative votes in the council shall operate as a veto upon any action or resolution proposed.

All resolutions passed or actions taken by the body of delegates upon the recommendation of the executive council, except those adopted in execution of any direct powers herein granted to the body of delegates themselves, shall have the effect of ecommendations to the several governments of the league.

The executive council shall appoint a permanent secretariat and staff and may appoint joint committees chosen from the body of delegates or consisting of specially qualified persons outside of that body, for the study and systematic consideration of the international questions with which the council may have to deal, or of questions likely to lead to international complications or disputes. It shall also take the necessary steps to establish and maintain proper liaison both with the foreign offices of the signatory powers and with any governments or agencies which may be acting as mandatories of the league of nations in any part of the world.

ARTICLE III.

The contracting powers unite in guaranteeing to each other political independence and territorial integrity; but it is understood between them that such territorial readjustments, if any, as may in the future become necessary by reason of changes in present racial conditions and aspirations or present social and political relationships, pursuant to the principle of self-determination, and also such territorial readjustments as may in the judgment of three-fourths of the delegates be demanded by the welfare and manifest interest of the peoples concerned, may be effected if agreeable to those peoples; and that territorial changes may in equity involve material compensation. The contracting powers accept without reservation the principle that the peace of the world is superior in importance to every question of polítical jurisdiction or boundary.

ARTICLE IV.

H. 21. The contracting powers recognize the principle that the establishment and maintenance of peace will require the reduction of national armaments to the lowest point consistent with domestic safety and the enforcement by common action of international obligations; and the delegates are directed to formulate at once plans by which such a reduction may be brought about. The plan so formulated shall be binding when, and only when, unanimously approved by the governments signatory to this covenant.

As the basis for such a reduction of armaments, all the powers subscribing to the treaty of peace of which this covenant constitutes a part hereby agree to abolish conscription and all other forms of compulsory military service, and also agree that their future forces of defence and of international action shall consist of militia or volunteers, whose numbers and methods of training shall be fixed, after expert inquiry, by the agreements with regard to the reduction of armaments referred to in the last preceding paragraph.

The body of delegates shall also determine for the consideration and action of the several governments what direct military equipment and armament is fair and reasonable in proportion to the scale of forces laid down in the programme of disarmament; and these limits, when adopted, shall not be exceeded without the permission of the body of delegates.

The contracting powers further agree that munitions and implements of war shall not be manufactured by private enterprise or for private profit, and that there shall be full and frank publicity as to all national armaments and military or naval pro

grammes.

ARTICLE V.

H. 13. The contracting powers jointly and severally agree that, should disputes or difficulties arise between or among them which can not be satisfactorily settled or adjusted by the ordinary processes of diplomacy, they will in no case resort to armed force without previously submitting the questions and matters involved either to arbitration or to inquiry by the executive council of the body of delegates or until there has been an award by the arbitrators or a decision by the executive council; and that they will not even then resort to armed force as against a member of the league of nations who complies with the award of the arbitrators or the decision of the executive council.

The powers signatory to this covenant undertake and agree that whenever any dispute or difficulty shall arise between or among them with regard to any question of the law of nations, with regard to the interpretation of a treaty, as to any fact which would, if established, constitute a breach of international obligation, or as to any alleged damage and the nature and measure of the reparation to be made therefor, if such dispute or difficulty can not be satisfactorily settled by the ordinary processes of negotiation, to submit the whole subject matter to arbitration and to carry out in full good faith any award or decision that may be rendered.

In case of arbitration, the matter or matters at issue shall be referred to three arbitrators, one of the three to be selected by each of the parties to the dispute, when there are but two such parties, and the third by the two thus selected. When there are more than two parties to the dispute, one arbitrator shall be named by each of the several parties and the arbitrators thus named shall add to their number others of their own choice, the number thus added to be limited to the number which will suffice to give a deciding voice to the arbitrators thus added in case of a tie vote among the arbitrators chosen by the contending parties. In case the arbitrators chosen by the contending parties can not agree upon an additional arbitrator or arbitrators, the additional arbitrator or arbitrators shall be chosen by the body of delegates.

On the appeal of a party to the dispute the decision of the arbitrators may be set aside by a vote of three-fourths of the delegates, in case the decision of the arbitrators was unanimous, or by a vote of two-thirds of the delegates in case the decision of the arbitrators was not unanimous, but unless thus set aside shall be finally binding and conclusive.

When any decision of arbitrators shall have been thus set aside the dispute shall again be submitted to arbitrators chosen as heretofore provided, none of whom shall, however, have previously acted as arbitrators in the dispute in question, and the decision of the arbitrators rendered in this second arbitration shall be finally binding and conclusive without right of appeal.

If for any reason it should prove impracticable to refer any matter in dispute to arbitration, the parties to the dispute shall apply to the executive council to take the matter under consideration for such mediatory action or recommendation as it may deem wise in the circumstances. The council shall immediately accept the reference and give notice to the other party or parties, and shall make the necessary arrangements for a full he ring, investigation, and consideration. It shall ascertain all the facts involved in the dispute and shall make such recommendations as it may deem wise and practicable based on the merits of the controversy and calculated to secure a just and lasting settlement. Other members of the league shall place at the disposal of the executive council any and all information that may be in their possession which in any way bears upon the facts or merits of the controversy; and the executive council shall do everything in its power by way of mediation or conciliation to bring about a peaceful settlement. The decisions of the executive council shall be addressed to the disputants, and shall not have the force of a binding verdict. Should the executive council fail to arrive at any conclusion, it shall be the privilege of the members of the executive council to publish their several conclusions or recommendations; and such publication shall not be regarded as an unfriendly act by either or any of the disputants.

ARTICLE VI.

Should any contracting power break or disregard its covenants under Article V it shall thereby ipso facto become at war with all the members of the league, which shall immediately subject it to a complete economic and financial boycott, including the severance of all trade or financial relations, the prohibition of all intercourse between their subjects and the subjects of the covenant-breaking State, and the prevention, so far as possible, of all financial, commercial, or personal intercourse between the subjects of the covenant-breaking State and the subjects of any other State, whether a member of the league of nations or not.

It shall be the privilege and duty of the executive council of the body of delegates in such a case to recommend what effective military or naval force the members of the league of nations shall severally contribute, and to advise, if it should think best, that the smaller members of the league be excused from making any contribution to the armed forces to be used against the covenant-breaking State.

The covenant-breaking State shall, after the restoration of peace, be subject to perpetual disarmamemt and to the regulations with regard to a peace establishment provided for new States under the terms of supplementary Article 3.

ARTICLE VII.

If any power shall declare war or begin hostilities, or take any hostile step short of war, against another power before submitting the dispute involved to arbitrators or consideration by the executive council as herein provided, or shall declare war or begin hostilities, or take any hostile step short of war, in regard to any dispute which has been decided adversely to it by arbitrators chosen and empowered as herein provided, the contracting powers hereby bind themselves not only to cease all commerce and intercourse with that power but also to unite in blockading and closing the frontiers of that power to commerce or intercourse with any part of the world and to use any force that may be necessary to accomplish that object.

ARTICLE VIII.

H. 5,7,8. Any war or threat of war, whether immediately affecting any of the contracting powers or not, is hereby declared a matter of concern to the league of nations and to all the powers signatory hereto, and those powers hereby reserve the right to take any action that may be deemed wise and effectual to safeguard the peace of nations. It is hereby also declared and agreed to be the friendly right of each of the nations signatory or adherent to this covenant to draw the attention of the body of delegates to any circumstances anywhere which threaten to disturb international peace or the good understanding between nations upon which peace depends.

The delegates shall meet in the interest of peace whenever war is rumoured or threatened, and also whenever the delegate of any power shall inform the delegates that a meeting and conference in the interest of peace is advisable.

The delegates may also meet at such other times and upon such other occasions as they shall from time to time deem best and determine.

ARTICLE IX.

H. 16, 17. In the event of a dispute arising between one of the contracting powers and a power not a party to this covenant, the contracting power involved hereby binds itself to endeavour to obtain the submission of the dispute to judicial decision or to arbitration. If the other power will not agree to submit the dispute to judicial decision or to arbitration, the contracting power shall bring the matter to the attention of the body of delegates. The delegates shall in such case, in the name of the league of nations, invite the power not a party to this covenant to become ad hoc a party and to submit its case to judicial decision or to arbitration, and if that power consents it is hereby agreed that the provisions hereinbefore contained and applicable to the submission of disputes to arbitration or discussion shall be in all respects applicable to the dispute both in favour of and against such power as if it were a party to this covenant.

In case the power not a party to this covenant shall not accept the invitation of the delegates to become ad hoc a party, it shall be the duty of the executive council immediately to institute an inquiry into the circumstances and merits of the dispute involved and to recommend such joint action by the contracting powers as may seem best and most effectual in the circumstances disclosed.

ARTICLE X.

H. 18. If hostilities should be begun or any hostile action taken against the contracting power by the power not a party to this covenant before a decision of the dispute by arbitrators or before investigation, report, and recommendation by the executive council in regard to the dispute, or contrary to such recommendation, the contracting powers shall thereupon cease all commerce and communication with that power and shall also unite in blockading and closing the frontiers of that power to all commerce or intercourse with any part of the world. employing jointly any force that may be necessary to accomplish that object. The contracting powers shall also unite in coming to the assistance of the contracting power against which hostile action has been taken, combining their armed forces in its behalf.