jority of whom are not to be American citizens, would have jurisdiction to consider and report concerning any dispute arising under the Monroe Doctrine, and while the arbitration was proceeding this country would be obliged to abstain from enforcing the Doctrine, however exigent the situation might be. Under such circumstances the question whether Article XXI adequately reserves the rights of the United States under our traditional national policy loses much of its importance.

(Letter No. 23)

ARTICLES XXII-XXV

The preceding articles of the Covenant have dealt almost exclusively with the organization of the League and the prevention of war. Article XXII and the three that follow are concerned with the improvement of conditions in which the people of many countries take, or ought to take, an interest.

The first of these articles deals with races hitherto ruled by Germany and her allies and not yet qualified to govern themselves. Its object is two-fold. First, to protect and assist peoples on their way to complete independence; to guard them from dangers, and guide them while still inexperienced in the use of popular government. During that period they would be likely to make mistakes which might expose them to external and internal perils. The second object is to prevent selfish exploitation of backward peoples

and natural resources. These regions were won by all the nations that helped to win the war, and all have a right and duty to demand that the native inhabitants shall not be maltreated, and that one of the victors shall not monopolize to the exclusion of other countries any raw products essential to the industries of the world.

Such things are properly placed under the control of the League; and if so the plan of mandataries acting under contract with the League, and rendering an annual report of their stewardship to the Council, with a permanent commission to supervise the administration, seems well devised for the purpose. No nation need accept a mandate unless it pleases, but if it does so it accepts the trust under the conditions prescribed by the League. The whole plan marks a great step forward in the recognition of the common responsibility of civilized nations for the weaker peoples of the earth; in contrast with the principle of exploitation for the national benefit of those who can succeed in conquering and owning them, or who can by purchase, bargain or force of arms obtain a transfer of

them from their former masters. To establish the principle, to provide for inspection and publicity, is a long advance, and may be expected to have a moral effect upon the government of all native races whether under the control of the League or not.

Article XXIII carries the conception of responsibility, instead of exploitation, still farther, applying it to the conditions of labour, the treatment of all native races, the white slave trade, the traffic in opium and other dangerous drugs, the trade in arms in disorderly regions, fair commercial opportunity, and the prevention of disease. Everyone familiar with the difficulty of regulating these things properly under the pressure of competition will appreciate the importance of concerted action. In such matters the work of the League must be consultative and advisory, because over the legislation and administration of its members in their own countries it has no control. But the members themselves covenant to do these things, and in the case of labour to endeavour to maintain fair and humane conditions not only in their own country, but also in all others to

which their commercial and industrial relations extend. They agree further to maintain for that purpose the necessary international organizations. The publicity which will result cannot fail to be of value, and the total effect may be expected to be large and highly beneficial.

Article XXIV deals with international bureaus for the administration of matters of common interest. Few persons have any conception how many of these exist. The best known is the Universal Postal Union, but there are many others relating to telegraphs, wireless, agriculture, railroads, river navigation, industrial and literary property, sanitation, crime, scientific subjects, and other things. Some of them include all civilized countries, some only those neighbours directly concerned. There are also a number of commissions of various kinds. Some were in existence before 1914 and the war has brought in among the Allies many more in the effort to unify the conduct of military action, and the vast auxiliary supply services connected therewith. Some of these will be useful in peace as well as in war and will survive.