nature of things it could not, given conditions as they are not what they might be, secure an agreement of the Powers or of any of them to check the growth of armaments or to cut down military and naval budgets. It did, however, something greater. It showed that the nations of the world might meet in conference in times of profound peace to discuss questions of peace and the means by which it might be restored if broken, and maintained if it existed; and it rendered perhaps even a greater service than this by showing that the development of a system of international law, fitted to meet the needs of the nations and to regulate their conduct upon principles of law and justice, was possible.

As a matter of fact, but without going into details, it regulated the conduct of war which it could not abolish by a convention on the laws and customs of war on land. It adapted the Red Cross Convention, more accurately termed the Geneva Convention, for the care of sick and wounded to maritime warfare. It devised a Convention for the Pacific Settlement of International Disputes, providing for temporary tribunals with an easy method of selecting their personnel from a permanent panel of judges, and it supplied a course of arbitral procedure, which it was hoped would be of great service to the nations and which in practice has rendered the services expected. In view of these circumstances it is unnecessary to discuss the question whether the Conference idea and the Conference of 1899 were justified. The first Russian delegate, who was also president of the First Conference, believed that another would be called in the succeeding year and stated his belief to Mr. Andrew D. White, chairman of the American delegation to the Conference. Years slipped by without a call. Russia became engaged in a war with Japan, so that it could not properly take the initiative. In this state of affairs President Roosevelt, at the request of the Interparliamentary Union, which met at St. Louis in connection with the Exposition, sounded the Powers as to their willingness to participate in a Second Conference, in a note bearing the honored signature of John Hay as Secretary of State, and dated October 21, 1904. The replies were favorable, and the Powers were so informed by Mr. Hay in a second note, dated December 16, 1904. The termination of the Russo-Japanese War by the treaty of peace signed at Portsmouth on September 5, 1905, made it possible for the Czar and his advisers to turn their thoughts to peace. President Roosevelt generously relinquished his initiative, and Russia issued a call for a Second Conference.

The First Conference was international in the sense that it deliberated

upon matters of international importance and in the fact that a good many nations-twenty-six in all-took part in its proceedings. It was not international in the sense that all nations recognizing and applying international law in their foreign affairs were invited to participate. The United States and Mexico were the only American nations taking part in it, although it is understood that Brazil was invited also. Another Secretary of State, the Hon. Elihu Root, was unwilling that the nations should go into conference without an invitation addressed to the other republics of America and without their participation. He therefore took steps to secure, and did actually secure, an invitation to every American state, with the result that forty-four nations answered to the roll-call at the opening of the Second Conference at The Hague on June 15, 1907. It is not necessary to enumerate the conventions and declarations negotiated or agreed upon by it, as they are common knowledge and have already entered into the practice of nations. The results of the First Conference were briefly chronicled in order to justify its call, and a statement of the actual results of the Second Conference would serve only to justify the intuition or foresight of its generous initiator. It may be said, however, that it unanimously adopted the principle of compulsory arbitration; that it agreed upon an International Court of Prize, which has unfortunately not yet been established; and that it drafted a Convention for a Permanent International Court, the so-called Court of Arbitral Justice, to be composed of permanent judges, for the . trial and judicial determination of controversies between nations with the same ease and certainty as disputes between individuals. This latter court has not been called into being owing to the difficulty of hitting upon a method of appointing the judges, generally acceptable to the Powers represented at the Conference, but the Conference recommended that the court be established through diplomatic channels.

We are not required, however, to commend either the First or the Second Conference, as the latter body declared itself squarely in favor of a Third Conference, to be held approximately in the year 1915, as appears from the text of this important action, which is quoted in full:

Finally, the conference recommends to the Powers the assembly of a Third Peace Conference, which might be held within a period corresponding to that which has elapsed since the preceding conference, at a date to be fixed by common agreement between the Powers, and it calls their attention to the necessity of preparing the programme of this Third Conference a sufficient time in advance to ensure its deliberations being conducted with the necessary authority and expedition.

In order to attain this object the conference considers that it would be very desirable that, some two years before the probable date of the meeting, a preparatory committee should be charged by the governments with the task of collecting the various proposals to be submitted to the conference, of ascertaining what subjects are ripe for embodiment in an international regulation, and of preparing a programme, which the governments should decide upon in sufficient time to enable it to be carefully examined by the countries interested. This committee should further be intrusted with the task of proposing a system of organization and procedure for the conference itself.

What is everybody's business is proverbially nobody's business, and the year 1913 has been allowed to slip by without the appointment of a preparatory committee, which should have been appointed if the Conference was to meet two years later. A second President of the United States, the Hon. Woodrow Wilson, has taken the initiative, and his Secretary of State, the Hon. William Jennings Bryan, issued on January 31, 1914, a circular letter to the diplomatic agents of the United States accredited to the governments participating in the Second Conference, in order to secure an agreement for the meeting of the Third Conference in accordance with the recommendation of the Second, in the course of the year 1915, and suggesting that the preparatory committee referred to should be composed of the Administrative Council of the Permanent Court of Arbitration at The Hague, from which a subcommittee of its members might be formed, in order to prepare the details of the Conference, to report to the full committee, which in turn would communicate directly with the home governments, thus obviating the difficulties of appointing a preparatory committee of a small number of Powers and the delays which would be necessarily incurred. It is not known what action has been taken upon this note, but the President and the Secretary of State are to be congratulated upon the stand they have taken, reasonable in itself and in accord with sound precedent. It would be interesting, but it would be futile in this part of the Journal, to enumerate the subjects which might properly form the program or to consider the organization and procedure of the Conference to be devised by the preparatory committee. It is sufficient for present purposes to show that the Secretary of State has followed in the footsteps of an illustrious predecessor by setting in motion the machinery which called into being the Second and which is calculated to bring about the meeting of the Third Conference. Initiative is the great factor in such matters and the initiative has been taken, and in view of the importance of the step and of the immense services which a Third Conference could render by the

results of its predecessors, Mr. Bryan's note is printed in full as an appendix to the present comment.

It should be said, in conclusion, that in addition to a general unwillingness of some of the great Powers to meet in conference with what they are pleased to consider their inferiors, and to discuss in their presence matters of international concern which have heretofore been determined behind closed doors by a small number of self-appointed legislators and imposed upon the world at large, there appears to be a reason why the Conference should not meet at the time appointed, which has been advanced in certain quarters; namely, the failure of some of the Powersnotably Great Britain-to ratify the actions of the Second Conference. The Prize Court Convention provided in its seventh article that the proposed court should, in default of generally recognized principles of international law, decide the cases submitted to it "in accordance with the general principles of justice and equity." Great Britain was unwilling to invest judges with what might be considered legislative functions, and a conference of ten maritime Powers, called the International Naval Conference, met at London upon the invitation of Great Britain, from December 4, 1908, to February 26, 1909. Its deliberations took the form of a Declaration, which it was hoped would supply the law to be administered by the court under Article 7 and which the Powers not invited to the Conference would gladly accept. But Great Britain itself has not ratified the Declaration, although it signed it, and the bill introduced into Parliament modifying prize court procedure in accordance with the Prize Court Convention and the Declaration of London was thrown out by the Lords on December 12, 1911. Certain Powers, it is understood, object to the meeting of a Third Conference before Great Britain shall have ratified the Declaration of London and the Prize Court shall be established. It is of course essential that the agreements of the Conferences shall be ratified and put into effect, but the lesson to be drawn from the failure to establish the Prize Court is rather that provisions should not be incorporated in international agreements which are incapable of ratification than that a subsequent Conference should not meet until they had been ratified. There is indeed merit in the contention, but it is believed that it is more specious than real. The business of the world should not be blocked because of one Power's failure to ratify a convention or two, and the good of the international body politic should not be subordinated to the ratification of a single convention, which, however important in itself, was not essential to the success of

the Second Conference and is not in fact necessary as a preliminary to the meeting of the Third.

DEPARTMENT OF STATE

WASHINGTON, January 31, 1914.

TO THE DIPLOMATIC OFFICERS OF THE UNITED STATES ACCREDITED TO THE GOVERNMENTS WHICH TOOK PART IN THE SECOND INTERNATIONAL PEACE CONFERENCE AT THE HAGUE

Gentlemen:

By the Final Act of the Second Peace Conference at The Hague in 1907 it was recommended to the Powers that a Third Peace Conference should be held within a period corresponding to that which had elapsed since the preceding Conference, at a date to be fixed by common agreement between the Powers, and attention was called to the necessity of preparing a program of the Third Conference a sufficient time in advance to ensure the conduct of the deliberations of the Conference with the necessary authority and expedition.

In order to attain this object it was by the Final Act further declared to be very desirable that, some two years before the probable date of the meeting, a preparatory committee should be charged by the Governments with the task of collecting the various proposals which might be brought forward for submission to the Conference, of ascertaining what subjects were ripe for embodiment in an international regulation, and of preparing a program for the Conference. It was also proposed that this committee should be entrusted with the task of formulating for the Conference a system of organization and procedure.

On June 10, 1912, the President of the United States appointed an advisory committee to this Government to consider proposals for a program for the next Conference. This committee has submitted an elaborate preliminary report. The necessary steps have not, however, been taken by the governments concerned for the appointment of the international preparatory committee contemplated by the Final Act of the last Conference. It having been in effect recommended to the Powers by the last Conference that the Third Conference should be held within a period of eight years, which would make the meeting fall in the year 1915, a space of a year and a half still remains within which the preparation of the program may be accomplished. This is a period much longer than that which was found to be sufficient for the preparation of the programs of the First and Second Conferences.

With a view to facilitate the consideration and preparation of the program of the next Conference, the President desires you immediately to propose to the governments to which you are respectively accredited that the duties of the international preparatory committee shall be committed to the Administrative Council of the Permanent Court of Arbitration at The Hague, this Council being composed of the Netherlands Minister of Foreign Affairs and the diplomatic representatives of the Contracting Powers accredited to The Hague. To this Council the task of preparation for the Conference may readily and appropriately be committed. The place at which the Council sits leaves nothing to be desired from the point of view of con