MBBâEY AECHmBS; C O M M U N IC A T E D T O A LL

S T A T E S (C O U N C IL R E S O L U T I O N O F

D E C E M B E R 1 4 t h , 1 9 2 5 ) 1

C. 2. iVL 2. 1926. II. [C. 7 6 6 (1). 1925. II.]

G e n e v a , J a n u a r y 15th, 1926.

LEAGUE OF NATIONS

INTERNATIONAL RELIEF UNION

(I. R. U .)

Chairman : Senator Giovanni C i r a o l o , D eputy Delegate for I ta ly a t the F ifth andS ix th Assemblies, form er P residen t of th e I ta lian Red Cross.

Chairman of Meetings : H. E. M. F e r n a n d e z y M e d in a , U ruguayan M inister at Madrid,R appo rteu r for th e Ciraolo Scheme to the F ifth and S ix th Assemblies.

Members : M. Georges W e r n e r , Professor of Law a t the University of Geneva, Memberof th e In te rn a tio n a l Red Cross Committee.

Sir Claude H i l l , D irector-G eneral of the League of Bed Cross Societies.Colonel R obert Edw in O ld s , Ju r is t , delegate of the Am erican Red Cross

in E urope during th e w ar; an d Colonel E rnest P. B i c k n e l l , V ice-President of th e Am erican R ed Cross and its represen ta tive in Europe during the war (w ith the r igh t to sit a lte rna tive ly on the Committee).

Mr, Algernon M a u d s l a y , C .B .E ., Member of the Council of the British Red Cross, Member of the Anglo-Belgian Refugee Commission in 1914.

Dr. A nders L i n d s t e d t , President of the S tatens L ivforsakeriuganstalt at Stockholm . S u b s titu te : M. P. G. L a u r i n , Director-General.

Baron C a r t o n d e W i a r t , D irector of La Société Générale de Belgique, dele­gate of the Belgian G overnm ent to the Commission for Relief in Belgium during the war 1914-1918. S u b stitu te : Senator F r a n ç o i s , Treasurer- in-Chief of the Belgian R ed Cross.

Lieut.-Colonel D r a i t d t , N ice-President of the G erm an Red Cross.Senator Maurice S a r r a u t , M em ber of the F rench delegation to the Fifth

Assembly. S ubstitu te : M. René C a ss in , Professor of Law at the U niversity of Lille, su b s ti tu te m em ber of th e French delegation to the F ifth and S ixth Assemblies.

Legal Adviser : M. André M a t e r , A dvocate at the Court of Appeal, Paris, Technical Adviser to th e French D elegation a t the F ifth and S ix th Assemblies.

Preparatory Committee for the Ciraolo Scheme

COM POSITION OF T H E COM MITTEE.

S. d. N, 5 5 0 + 8 5 0 !» 525 + 9 0 0 (P.' 1 2 ,Î 5 — Im prim erie i e fa “ Tribune de C e n tv e 1P u b l i c a t io n s o f t h e L e a g u e o f N a t io n s

II. E C O N O M IC A N D F IN A N C IA L

1 9 2 6 . II. 1.

OBJECTS A N D D R A F T S T A T U T E S .

CONTENTSPage

I n t r o d u c t i o n ......................................................................................................................................... 2LJNTKUi) L U J N .................................... &

I. O b j e c t s op t h e I .R .U . :D isaste rs ........................................................................................ 3B e l i e f ........................................................................................ 3Bight of Receiving A ssistance............................................... 4Economies . . . ...................................................... 4Insurance ................................................................................. 5P reventive M e a s u r e s ............................................................. 5

II. P a r t ic ipa t io n of St a t e s .......................................................... 5III . P a r t ic ip a t io n of t h e R e d Cr o s s ........................................... 6

TV. P a r t ic ipa t io n o f t h e Le a g u e of N ations . . . . . 1

V. F u n d s :P u b lic S u b s c r i p t i o n s .................................... ....... iSubscriptions of G o v e r n m e n t s ........................................ 8W orking Capital F und and Reserve F und . . . 9S ta tus ........................................................................................ 9Trustees ................................................................................. 9

VI. E x e c u t iv e Ma c h i n e r y .................................................. ....... 9VII. F u t u r e W ork o f t h e Co m m i t t e e .................................... 10

S t a tu t e s ............................................................................................................ 11

Alphabetical I n d e x .................................................................................. 17

IN TR O D U C TIO N

The d raft of S ta tu tes subm itted herew ith constitu te the “ concrete proposals” for the organisation projected by Senator G. Ciraolo under the nam e “ In te rnationa l Federation for M utual Relief to Peoples overtaken by D isaster” , which were to be draw n up by a p repara to ry com m ittee in pursuance of the resolutions adopted by the F ifth Assembly of the League of Nations on Septem ber 26th and 29th, 1924.

The Committee, which m et a t Geneva in M ay and a t Paris in June 1925, found useful m ateria l for discussion in the docum ents collected by Senator Ciraolo, in the reports of the Secretariat of the League of Nations and in th e replies received by the la tte r from the Governm ents ; in the debates of the League of N ations in Septem ber 1923 and 1924, both in the F ifth Committee and in the P lenary Assembly; and in the last three in ternational Bed Cross conferences. All of these docum ents have been published.

In Septem ber 1925, the Second Com m ittee of the S ix th Assembly of the League of N ations subjected the concrete proposals of the P repara to ry Committee to a m ost exhaus­tive exam ination ; no objection was raised to th e fundam en ta l principles of the scheme. The observations m ade in the course of this exam ination were referred back to the P re p a ­ra to ry Com m ittee by an Assembly resolution, da ted Septem ber 24th, 1925, for such a lte ra ­tions as m igh t seem useful and possible, a fter which the revised d raft was to be subm itted to the Governments. The P rep ara to ry Committee, when it m et a t Paris in Novem ber 1925, carried out this revision. The annexed S ta tu tes and the present s ta tem ent of the objects of the Union are the outcom e of its recent discussions.

The Com m ittee decided to give the new institu tion the simplified nam e of “In te r ­national Belief U nion” , or I .B .U .

I t was, however, convinced th a t the nam e of Senator G. C t b a o l o would still be a ttached to the work which he in itiated . The value of a new idea is often in direct p ro ­portion to the scepticism with which it is first greeted. M. Ciraolo can rem em ber with pride the incredulity which was m anifested tow ard his firs t steps. His indefatigable perseverance has trium phed. And afte r his m ilitan t beginning, his m oderation in the com m ittee debates perm itted free discussion of the m ost practical objections to the apparen tly m ost idealistic aspects of the project. Nevertheless, the propositions which have resulted from these debates crystallise ra th e r th an modify the first in tentions of their author.

I. — OBJECTS OF T H E IN T E R N A T IO N A L R E L IE F UN IO N

The essence of the project is described in Article 2 of th e S ta tu tes in the form of an enum eration of the objects of the T.R.U., and in the two following articles.

I t is essential to observe th a t the collection and d istribu tion of funds and relief in general are no t the sole objects of the I . R U . , and th a t its value is no t purely financial.

In certain disasters it will be called upon to d istr ibu te certain forms of relief (Articles 3 and 4). In all disasters, however, its action will take the simple form of co-ordination

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of work and the saving of tim e and m oney which such co-ordination will represent. Conse­quently, even in a case in which the T.R.U. h ad no funds a t its disposal or was for any reason unable to take action in the form of d istribu ting relief, it would always act as a co-ordinating and centralising body.

D i s a s t e r s .

0, The definition which has been given to disasters is based upon the following consi­derations :

10. U nder the nam e of “ cas fo rtu its” or “ cas de force m ajeure” in the countries which follow R o m an law, and under the nam es of “ act of G od” and “ unavoidable accident” in the countries which follow Anglo-Saxon law, the in ternal law of S tates legislates for events which m ay preven t a deb to r from discharging1 his obligations and excuse him from doing so.

11. An essential and n a tu ra l obligation rests upon Governm ents to m ake provision against disasters by which the ir peoples m ay be stricken and to repair the dam age caused by such disasters. B u t the n a tu re or the violence of the even t m ay be such th a t the Governm ent is tem porarily an d partia lly rendered im poten t to discharge its obligation. Such an event cannot be described by any te rm in legal phraseology except by th a t of “ force m ajeure” .

12. In rela tions governed by in te rna l law it has only been possible to define “ force m ajeure” by experience and practice ; and th is also applies in the relations between peoples. I t m ay be provisionally adm itted , by analogy w ith the ideas accepted in in ternal law, th a t the disaster or case of “ force m ajeu re” which creates the obligation of in te rnationa l assis­tance is an event beyond the control of the hum an will, which can neither foresee nor prevent it.

13. Such a definition does not exclude endemic disasters, such as famine, nor periodical disasters, such as flood, nor local disasters, such as the destruction of a single city. It does not exclude an y disaster which m ay render the S ta te directly stricken by it im poten t to discharge its obligations.

14. Nevertheless, u n til such tim e as the com m unity of nations has adequate resources enabling i t to take useful action in disasters of in te rnationa l im portance, an institu tion such as th e I .R .U . will be bound to m ake a selection am ong the disasters which it is to relieve. I t cannot relieve them all, and so i t m ust arrange to give preference to those which are most exceptional, m ost unavoidable an d m ost impossible to foresee. A nd as all action on the part of the I.R .U . will involve a prelim inary review of its in ternationally provided resources, followed by steps to establish contac t w ith th e stricken coun try , th e action which it takes will have to be determ ined by two necessities : first, its effort m ust not exceed its resources ; secondly, it m ust avoid tak ing any steps which m ight encroach upon the sovereignty of S tates (Article 2 , last paragraph) or contravene the rules of neu tra lity (Article 6 ).

15. The experience of the last few years has shown th a t wrars and revolutions m ay engender famines, epidemics or forced emigrations, which become in te rnationa l disasters. Public m isfortunes of th a t kind have already given rise to in te rnationa l relief work. I t is clear th a t wars an d revolutions m ay be disasters w ith in the m eaning of the S ta tu tes , bu t only so far as they affect the non-com batan t populations or portions thereof. Iu such cases the action of the I .R .U . would be lim ited by its neu tra li ty (Article 6).

16. In an y case, no definition nor form ula can determ ine where the class of disasters calling for in te rna tiona l assistance begins and where it ends. The adoption of too precise a definition m ight lead to impossible s ituations : for example, the I .R .U . m ight find itself caught betw een an undu ly wide definition and an insufficiency of funds. I t m ight also lead to injustices, e.g. if the I .R .U . had to provide relief too often for the same type of disaster or for th e same areas.

17. The only a lte rna tive to the risks of a hard-and-fast rule is to empower the I.R .U . (Article 28) a t its own discretion to provide relief whenever it feels th a t it has b o th the m eans and th e obligation to do so. I ts com petent organs m ust judge in each case w hether th e disas­ter is a subject for m u tu a l in te rna tiona l assistance. I t is for the D irecting Board, th a t is to say for the m em bers of th e I .R .U ., to elect to the E xecutive Com m ittee m en who are capable of displaying the necessary tac t an d judgm ent in the perform ance of their difficult work and to supersede th em if they m ake m istakes. Moreover, these m en will, by definition, be in contac t w ith public opinion, since the funds of the I .R .U . will come directly or ind i­rectly from the public ; and public opinion rare ly fails to pronounce im m ediately on w hat assistance should be given as soon as i t hears of a disaster. Guided by this public opinion and tau g h t by experience, the I .R .U . will readily develop and define the jurisprudence of “ force m ajeure” in in te rnationa l affairs.

R e l i e f .

18. The na tu re of the relief to be given in case of disasters is more easily defined (Article 4 ). I t is best defined by s ta ting w hat i t does not include. I t does not, in general, include reconstruction or repairs. I t includes im m ediate assistance with a view to restric ting the proportions of th e calam ity , rescuing th e population from th e inevitable disorder which is produced, and enabling them to tide over the in terval before the life of the com m unity can be reorganised.

18- In short, the assistance m ust be in th e n a tu re of w hat we m ay te rm “emergencyrelief” or “first-a id” . The word “ rescue” is used in the d raft S ta tu tes because, in the phraseology of in te rnationa l m aritim e law, it has taken on a m eaning con tras ting with the legal m eaning of the word “repa irs” . Rescue, or assistance, according to the Brussels

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Convention of 1910, means not only any succour which m ay be received by a ship in distress : in legal systems in which assistance is no t distinguished from salvage i t also means the towing of an abandoned or disabled ship to a port a t which it can be repaired. In th e case of disasters, the sole purpose of th e I .E .U ., as expressed by the word “rescue” , will be to bring as complete relief as possible to the stricken peoples, up to the point a t which equilibrium has been sufficiently restored so th a t reconstruction may begin.

E ig h t of R e c e iv in g A ssist a n c e

20 . If it were possible in the present s ta te of in ternational law to establish in in te rnationa l relations an obligation enforcible by penalties, the right of countries stricken by disaster to in te rnationa l assistance could be proclaimed. The Com m ittee has only been able to enunciate th is r igh t in the form of a recom m endation (preamble, last, paragraph) ; and in view of the impossibility of establishing a legal obligation, th e fundam en ta l basis of the scheme is the idea th a t in ternational relief is given and received as an act not of charity b u t of justice (Article 2, parag raph 8 ).

21. This resu lt is achieved by the simple means of interposing an in te rna tiona l body between th e source of assistance an d th e recipients. Assistance then no longer assumes the aspect of an ac t of p ity creating bonds of g ra titude and liable to create obligations: it appears as an act of hum an ity , in respect of which th e recipients incur no obligation tow ards anyone except tow ards the whole com m unity of nations w ithout distinction.

22. A nother factor contribu ting to this result is the stric t n eu tra lity of the I.R.TJ. (Article 6 ). N ot only will the League of N ations and the qualified body of th e R ed Cross (Article 33) see to it th a t assistance is given with strict im partia lity , bu t the I.R.TJ. m ust give no preponderance in its councils to the countries subscribing (Article 20, para. 2 ), lest generosity should become a means of influence and be tw isted to benefit the benefactors.

E co n o m ies

23. The d raft purposely lays stress on the necessity of economising tim e, energy and the funds employed for relief (Article 2 , para . 1) before s ta ting th a t the relief of peoples overtaken by disaster is th e p rim ary object of the I.R.TJ. (Article 2 , para. 2).

24. I t m ay be th a t a t first sight th e announcem ent of th e scheme will give the impressionof being prem ature , owing to th e fact th a t the organisation of in te rnationa l life is only beginning, and th a t , even in the less complicated field of national life, relief institu tions only become p a r t of public law a t the end and no t a t th e beginning of the process of historical evolution. This first impression m ight lead to the conclusion th a t i t would be be tte r to leave i t to th e spontaneous and unregulated generosity of the public and of the various Governments to rem edy the effects of calamities. I t has also been questioned whether in ternational finance, in its present ru d im en ta ry s ta te and in the period of conser­va tism necessitated by the frequency of na tiona l financial crises, could successfully be called upon to shoulder a fresh burden which was no t the outcome of the m ost u rg en t necessity, and w hether i t would not be be tte r to leave p riva te institu tions such as the R ed Cross to pursue their work of relief on their own lines w ithout any official in terven tion or con tr ibu tion .

25. On the o ther hand, it is to be noted th a t i t is precisely during periods of economic depression th a t th e various peoples have need of in te rna tiona l assistance : and th a t , as a m a t te r of fact, in recent cases, public generosity has gone far beyond the power of p riva te organisations to adm inister relief. I t is to be rem arked also th a t such generosity is capri­cious, often delayed for lack of inform ation, and even more often wasted by the lack of co-ordination.

26. I t was not for th e Com m ittee to take a decision on this in terlocu tary question. I t could only carry on its discussions as if the creation of th e I .R .U . had been decided upon in principle, and confine itself to recom mending the best m ethod of carrying on th a t decision. Nevertheless, the Committee, while keeping m ost s trictly w ithin th e bounds of its expressed purpose, has reached a conclusion which is of sufficient im portance to be sta ted as the first of the purposes assigned to the I .R .U ., an d which a t the sam e time answers the doubts expressed above. This is th a t in te rnationa l relief work is in need less of new funds th an of a m ore economical application of the funds a lready availab le .

27. The Com m ittee has been able to take in to account the generosity and th e efforts u n s t in t in g ly laAashed both by p riva te persons and by Governm ents on relief in the exceptional and varied disasters of recent years. I ts unanim ous opinion is th a t th e same work, if carried out by a body like the I .R .U ., would have given th e same results w ith less outlay, or g rea ter results with th e same outlay. The system — or ra the r the m ultiplicity of th e systems employed— and th e lack of co-ordination am ong them results in waste, duplication, increase in overhead charges, delays, and sometimes abuses, which might in th e end discourage philan thropy.

28. The Committee did not feel called upon to draw up a detailed account of these draw backs. I t did, however, th ink it advisable to ind icate them , in order to allay the app re ­hension th a t the work of the I.R .U . would duplicate th a t of existing bodies" and would increase the cost of in ternational charity w ithout increasing its value. The Committee th inks, on the o ther hand, th a t the new organisation, by co-ordinating efforts which are often too sporadic and badly arranged, will considerably reduce the adm inistra tive expenses of m utua l in te rnationa l assistance, and will set free fresh resources simply by effecting these economies. I t m ustbe repeated th a t these economies are one of th e essential aims of the

L E .tr . (Article 2, parag raph 1) , quite a p a r t from the ac tual d istr ibu tion of relief. Im prove­ments in relief work can and should be effected prim arily by a b e tte r u tilisation of available resources, and by their m ethodical and ordered application. Once this has been achieved, there is little doub t th a t the public will find there in not a p re tex t for lessening its genero­sity b u t an encouragem ent to increase it, know ing t h :i t it will be employed to b e tte r purpose.

I n s u r a n c e

I t is necessary to explain why insurance has been re ta ined among the possible objects of the I .E .U . (Article 2 , para . 4).

Obviously, in existing circum stances, in te rnationa l d isaster relief can hard ly take the form of insurance operations in th e s tr ic tly legal sense.

In the first place, insurance properly so called presupposes an es tim ate of th e risk. B ut the risks to be covered by th e I .E .U . are pa rticu la rly difficult to estim ate . Only in course of tim e will the I .E .U . accum ulate knowledge and experience which will render it possible to estim ate those risks with increasing accuracy.

F urtherm ore , insurance, properly so called, gives the insured a claim against the insurers and presupposes guarantees to enforce th a t claim. If, therefore, the I .E .U . acted as an insurance in stitu tion , countries th a t did no t adhere would have no claim to assistance, while, am ong the countries th a t did adhere, some, if they were m ore exposed to disaster, m ight be constan tly m aking claims a t the expense of the others. In e ither case th e principle of equa lity would be frustra ted .

W hile these considerations lead us no t to a tte m p t the im m ediate and universal app li­cation of insurance measures in the legal sense, the Com m ittee has accepted and established the possibility of irsing insurance m ethods for the reconstitu tion of the initial fund (Article12, last paragraph). In so fa r as the reserve fund is not ad equate for this purpose, the cost could be spread over the m em bers of the I .E .U . in p roportion to th e risks carried in respect of each by th e com m on fund.

P r e v e n t iv e Me a s u r e s

Am ong the objects of th e I .E .U ., the Com m ittee has placed the encouragem ent of preventive m easures (Article 2, para . 7). B y the ir very na tu re , of course, the m ajo rity of calamities evade all an tic ipation and all precautions. B u t o thers—for example, certain epidemics— m ay be circumscribed, a t least in their effects, by m eans of appropria te p recau­tions. A relief society would not be qualified to tak e measures which are the concern of national or in te rna tiona l authorities. B u t, w ithou t overstepping its legitim ate bounds, it might, for exam ple, encourage learned bodies to pursue researches which m ight resu lt in circumscribing the ravages of certain catastrophes. A reasonable outlay on scientific research would be an a c t of wise adm in is tra tion in cases where it m ight lead to forecasts which would minimise th e effects of a disaster. I t would economise in advance the cost of in tervention in th a t pa rticu la r disaster and would render it possible to provide assistance on a larger scale in some o ther calam ity .

II. — P A E T IC IP A T IO N OF STA TES

The question of the partic ipa tion of S ta tes in the I .E .U . dem ands consideration from the double point of view of their partic ipa tion in creating the Union and of the ir partic ipa­tion in its governm ent and in its expenses.

In the p rom oter’s revised d raft d a ted J u n e 23rd, 1923, it is provided th a t the “ S tates Members of th e League of N ations shall form an in te rnationa l federation . . — i.e.it appeared to envisage an association having only States as m em bers. Moreover, the federation was to be represented in principle by the League of N ations, and it was provided that th e “ Council shall a t all tim es act as a co-ordinative organ betw een th e S ta tes Members of the F edera tion and the Central D irective and Technical A u thority for in te rnationa l relief” — i.e. the in stitu tion was to be subord inate to the League of Nations.

These two initial conceptions m et w ith opposition, which has led th e Com m ittee to express m ore clearly th e conceptions of the prom oter.

In the first place, while all the G overnm ents were unanim ous in approving th e m otives of the plan, several m ade reservations regard ing the advisability of adhering to it. Some of them s ta te d th a t th ey would leave their N ational E e d Cross Societies to deal w ith it.

In the second place, the legal basis of th e pro ject is Article 25 of the Covenant of the League of N ations, which lays down th e obligation to encourage th e co-operation of the Red Cross Organisations. Several of these organisations, however— and those no t the least active— showed some reluctance to com m it them selves to a system which would transform them in to departm en ts of a S ta te or of a Federa tion of S tates.

L astly , as several im p o rtan t countries are still outside the League, th e question arose how th ey and the ir E e d Cross Organisations could be adm itted in to an organisation represented by th e League.

These th ree difficulties nevertheless contained the germ of their own solution. As the scheme was no t conceivable w ithout th e co-operation of the E ed Cross ; as certain S ta tes preferred to partic ipa te th rough their N a tion a l E ed Cross Organisations; and as certain National E e d Cross Societies were apprehensive of entering an in s ti tu tio n m anaged by Governments, could no t th e organisation be devised as a federation, no t exclusively of

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States and not exclusively of E ed Cross Societies, b u t of bo th —-or ra th e r of either the one or the o ther— according to the ind iv idual preferences of each country !

42. The Com m ittee has pronounced in favour of this system . I t has p lanned the I .E .U . asa federation of S tates, in which each coun try m ay tak e a place if it wishes and may occupy th a t place either th rough its Governm ent or th rough its N ational E ed Cross O rganisation . In o ther words, if a S ta te considers th a t it should figure as a member of the Federation , i t does so ; if not, it delegates its N ational E ed Cross Organisation to represent it. The choice is in the hands of each ind iv idual G overnm ent (Article 7).

43 . The collaboration of public and p riva te bodies in one and the same association, either for gain or not for gain, is no innovation. I t occurs in every country . Several legislations have provisions determ ining the position of the S ta te considered as a shareholder. States have been know n to be shareholders in m aritim e canal companies, in banking companies, in m ining and oil companies, in hydraulic power and railway companies, etc.

44. The system adopted leaves the grea test possible freedom in all respects.4 5 . In the first place, it goes w ithout saying th a t no S ta te is obliged to sign the Convention

establishing th e I . E . U . as a corporate body. Even a S ta te Member of the League may postpone or reserve its adhesion, no tw ithstand ing th e League’s partic ipa tion in the p repa­ra to ry enquiries, in the formalities of constitu tion and in the control of the I .E .U .

40. W ithou t doubt, a S ta te which signs the constituent Convention becomes au to m a­tically a m em ber of the I . E . U . (Article 7, para. 1). A nd in consequence the Government engages itself not only to partic ipa te in the form ation of the initial fund and to give the facilities which are fu rther indicated (Article 9) bu t also to fulfil the o ther obligations which, in this instance — as in the case of all corporate bodies — are the observance of the s ta tu tes vo luntarily accepted, and all the stipulations arising thereunder (Article 35.)

47. Nevertheless, these obligations do not include any perm anen t financial contribution. Moreover, each S ta te re ta ins the r igh t to w ithdraw if it wishes. I t m ay delegate in its place the N ationa l E ed Cross Society (Article 7, para . 2). In order to conserve definitely the liberty of the various S ta tes , the Com m ittee did no t use the term “ m an d a te” , or “ agency” , which m ight have im plied th a t the S ta te was bound by the actions of the designated E ed Cross Society. The use of th e word “ delegate” in the te x t of the S ta tu tes , and therefore in the articles of incorporation, m eans th a t the Governm ent is not to be held answerable for the E ed Cross, nor, under the arrangem ent, the Eed Cross for its Government.

48. If a S ta te wishes to arrange w ith its E ed Cross to have a jo in t representative in the I .E .U . or to undertake jo int obligations therein, it m ay, of course, do so; b u t such arrange­m ents are no t taken in to account by th e I .E .U . I t recognises only one m em ber for each country , and th a t m em ber is th e S ta te acting either th rough its Governm ent or its accredited E ed Cross. A rrangem ents betw een th e two cannot be invoked either against or by other parties, including th e I . E . U .

49. The Com m ittee is confident th a t this m achinery, which is free from useless complica­tions, will enable the G overnm ents and the E ed Cross Societies to determ ine w ithout res tra in t their relative spheres of action, in conform ity with the particu lar views of eacli country.

I I I . — P A E T IC IP A T IO N OF T H E B E D CEOSS50. I t is superfluous to justify the rôle assigned to the E e d Cross Organisations or to demon

s tra te the ir com m anding qualifications in the field of in te rnationa l relief work. The Eed Cross is the result, in particu lar, of two diplom atic instrum ents. The Geneva Convention of 1864 recognised the rights of the E ed Cross in connection with war relief work. In 1919, the Covenant of the League of N ations (Article 25) recognised them in connection with peace relief work. The I .E .U . is noth ing more th an a first application of the la tte r in strum en t (Articles 2 , 28 and 29).

51. The w ar of 1914-1918 so enorm ously developed the work of the E ed Cross, and the civil calamities which followed th a t m ilitary calam ity dem anded so g rea t an effort on its pa rt , th a t its na tional organisations have adap ted themselves to this new task , which has become more im p ortan t now th a n it was when the E ed Cross was first founded. Thus grouped, and in co-operation with the old-established organ of the E ed Cross, they will provide the technical services of the I . E . U . (Article 27) w ithout affecting the arbitra l functions which the In te rna tiona l Com m ittee of the E ed Cross will continue to exercise according to long-standing trad ition (Articles 6 and 33). B oth these organisations have announced their readiness to give all necessary assistance in th e work of the I . E . U . They will combine their respective activities should this be desirable.

52. A t the same time, the N ational E ed Cross organisations will p lay two quite distinct pa rts in the I . E . U . In the first place, as we have already seen, they will be members of the I . E . U . not in their own righ t, b u t as the accredited representatives of their State, when so accredited by their Governm ent (Article 7, para . 2 ) ; they will not, however, exercise any powers which belong exclusively to the S tate . Secondly, in each zone th ey will be the executive agents of the I . E . U . (Article 28) in v irtue of Article 25 of the Covenant of the League of Nations, which is the basis of the scheme, and which recognises the E ed Cross only in the form of its na tiona l organisations. This will not entail any encroachm ent on the ir independence. Indeed, the s ta tu te s (Article 2, last paragraph) explicitly lay down the necessity of Governm ent approval for all action on the p a r t of the I .E .U . in any country , which means th a t every Governm ent can always safeguard the freedom of its na tional E ed Cross. Again, the I .E .U . will no t control the

national organisations, except in cases of u rgen t relief (Article 4), and. is no t called upon to interfere w ith the ir o ther activities. Lastly , in order to preserve their individuality , special publicity will be given to th e p a r t p layed by each of them in the operations of the I .R .U . (Article 28).

The E e d Cross, however, has not the m onopoly of partic ipa ting in the executive work of relief. I t m erely forms th e essential fram ew ork. All o ther relief associations, which are so specialised as to be of service, m ay bring the ir assistance and co-operate by every means in their power (Articles 7, 16 and 28). Such, for exam ple, are the Sovereign Order of Malta, the In te rn a tio n a l “Save th e C hildren” F und , th e societies organised in recent years under the p ro tec tion of d ip lom atic missions for the relief of suffering populations in China and in Eussia, etc. E ach of these institu tions , and each organisation of the Red Cross itself, will not merely be unham pered in its work by the centralising body, the I .E .U ., b u t will indeed receive a new im petus from it, since the I .E .U . will enable them to take p a r t in collective work where individual efforts would be of no avail.

IV . — P A E T IC IP A T IO N O F T H E L E A G U E OF N A TION S

H ow ever careful the League of N ations m ay be no t to widen its sphere of action by ill-considered in itiatives ; to defer to ra th e r th a n to an tic ipate public opinion or the wishes of th e various S ta tes ; and to seek neither praise nor applause, even for the rendering of undoubted services ; it can hard ly refuse th e I .E .U . the advantages of its patronage, advice and supervision.

I t is so m uch the less able to do so inasm uch as the I .E .U ., as conceived by its founder, is solely and directly the outcom e of the C ovenant of the League of N ations (Article 25), and since th e p lan , as we have seen above, carefully respects the sovereignty of States.

The pa tronage of th e League of N ations has a lready been m anifested in the reception given to the scheme, in its inclusion in the Assem bly’s agenda, and in the decisions taken in 1923, 1924 and 1925. I t is fu rth e r m anifested b y the fact th a t it would be the League’s business to determ ine the procedure for founding the I .E .U ., and particu larly for convening the first m eeting of the General Council which would confirm its creation (Article 18) and make it definitive (Article 34).

The advice of th e League of N ations would be given in the two deliberative bodies of the I .E .IJ . A place in these bodies would always be reserved for its representatives, who, without tak ing an active and responsible p a r t , could always be consulted (Article 15).

The m ost im p o rtan t function of th e League of N ations would be its financial supervision (Article 32). The Com m ittee considers th a t by exercising th is supervision the League would render a signal service to the work of in te rna tiona l relief. The principal obstacle to the developm ent of public charity in the last few years has been th e ill-founded b u t general impression th a t funds en tru s ted to irresponsible bodies are spent w ithout sufficient supervision ; th a t leakage m ay possibly resu lt ; an d th a t in all cases, ou t of consideration for bo th the recipients and the donors, detailed and public accounts should be rendered in order th a t relief m ay be t re a te d as an ac t of open justice and no t of furtive charity .

The supervision of th e League of N ations should be exercised, in the opinion of the Committee, according to th e stric test principles bo th of governm ental and of commercial accountancy. I t should ex tend no t only to the correctness of the entries as com pared with the expenses b u t to the regu larity of the expenditure.

This supervision would not be m erely form al. I t would be guaran teed by th e righ t of the League of N ations of refusing to approve the accounts.

The League of N ations would m ake know n the results of its supervision to the public, and no t to the G overnm ents alone. The Com m ittee has no doub t th a t such a guarantee of scrupulous aud iting by an un im peachable a u th o r ity will m ateria lly encourage bo th private and public liberality .

V. — FU N D S

P u b l i c S u b s c r i p t i o n s

The replies of several G overnm ents to th e League of N ations questionnaire on the original p lan show th a t , in some quarters , the p rom oter’s in ten tions were m isunderstood. I t was th o u g h t th a t he proposed to subs titu te G overnm ent contribu tions for public contri­butions as th e principal and regular, if no t the only, source of funds for in te rnationa l relief.

He had no in ten tion of m aking any such change.The Com m ittee is unanim ously of opinion th a t , if it appealed to Governm ents for the

main p a r t of its funds, the I .E .U . would run the risk of drying up th e springs of generosity in the people a t large and in p riva te individuals, who would lose in terest in an alm ost purely adm in is tra tive work. A fter all, G overnm ents owe the possibility of being generous to the tax p ay e r, and it is therefore probable th a t th e tax p ay e r would give m ore readily and freely in th e accustom ed direct form , which respects his freedom of choice, th an would States on the ta x p a y e r’s behalf, in the form of an appropria tion from funds raised by taxa tion .

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65. The public, individuals and the people a t large will therefore continue to be the essential contribu tors to the funds of the I .E .U . Their contributions, w hatever name m ay be a ttach ed to them , have th e legal s ta tu s of gifts and donations. And, since an association cannot acquire and adm inister an es ta te unless i t has a corporate s ta tus , it was essential th a t th e corporate s ta tu s of th e I .E .U . should be explicitly recognised, for it will have to receive donations in the m ost varied forms and from the m ost miscella­neous sources (Articles 8 , 10 and 11).

Su b s c r ip t io n s of G o v e r n m e n t s

66 . Subject, however, to th e single reservation p u t forw ard above, it can hardly be supposed th a t a society for m u tua l assistance betw een S ta tes could be formed w ithout substan tia l contributions from the nations themselves, as represented by their Governm ents. I t is their d u ty to set an example. They m ust m ake th a t contribution which is expected of the founders of any society, even if form ed for gain ; and th ey m ust, in addition, provide these facilities, which can only be given by the holders of public au thority .

67. In connection w ith the first point, the Com m ittee has tried to devise a p lan which would give Governments th e u tm ost possible freedom. I t began by discarding their obligation to m ake an annual contribu tion and only m ain tain ing the obligation to con tribu te a t the outset.

68 . I t would be wrong to conclude from th is th a t the Com m ittee thinks annual con tribu ­tions from Governm ents would be superfluous. On th e contrary , it regards these con tri­butions as essential, bu t sees no point in m aking them compulsory by s ta tu tes . The Com m ittee is confident th a t more will be gained from freedom th an from obligation. I t anticipates th a t the in te rnationa l relief organisation established on the basis of the I .E .U . will perform such valuable services as to encourage Governments, as well as the public, to m ake of their own free will g reater sacrifices th a n any s ta tu to ry obligation could secure. The Committee therefore provided for vo lun tary grants from the Governments (Article 10, para. 1 ).

69. The Com m ittee expressly states th a t the Governm ents m ay— not m u st— m ake such grants. There is thus no justification for th e apprehension expressed by certain delegates a t th e S ixth Assembly, who seemed to th ink th a t if the in itia l fund proved insufficient the Governments would be a t least m orally bound to m ake good the annual deficit. There is no passage in the s ta tu te s establishing such an obligation, nor is it in the C om m ittee’s in te n ­tions. M oreover, the obligations which can be established by s ta tu te are legal and not moral.

70. Again, while the d raft provides for the possible paym en t of prem ium s, according to the usual practice of insurance, to reconstitu te the in itia l fund (Article 12, last paragraph) it expressly lays down th a t a decision to this effect will no t be binding on any m em ber of the I .E .U . unless it accepts th a t decision.

71. The initial contribu tion would be valuable in th ree ways : first, i t would have the symbolic value of an example set b y the Governm ents ; nex t, i t would give th e I .E .U . funds to establish its organisation and tim e to collect fu rthe r resources ; lastly , and most im portan t, it would provide a fund for im m ediate action in the event of any disaster in the near fu ture.

72. The experience of the members of the Com m ittee shows th a t , even in a great disaster, the relief workers have to do two separate things, which are not of equal im portance. The m om ent the disaster is reported , they m ust have a fund available for im m ediate use, though small in comparison w ith subsequent needs ; and the value of this fund depends upon its being b rought in to action a t once. This is the principal use to which th e I .E .U . would pu t the in itia l fund con tribu ted by the Governments. The fu rthe r needs, of course, v a ry in different catastrophes and are not im m ediately known. As th ey become known, public generosity responds. A t th a t po in t all t h a t is necessary is to receive and centralise these vo lun tary contributions.

73. For this reason, and because the Com m ittee regards public generosity as the essential source of the I .E .U .’s funds, it merely suggests 625,000 Swiss francs, or £25,000 sterling, as the figure for the in itia l fund. This contribu tion would be allocated am ong th e States signatory to the constituent Convention in th e same proportions as the contribu tions to the League of N ations (Article 9, parag raph 1).

74. The Com m ittee th inks it bo th possible and desirable th a t Governments should consider the extension of th e m ethods which, in recent years, have been experim entally employed in certain countries to stim ula te public generosity. One of th e most ingenious system s is the “ pound for pound” scheme, whereby the Governm ent promises to con tribu te one pound for every pound con tribu ted by the public. The system is capable of alm ost infinite varia tion . The Com m ittee m entions i t merely as an illustration.

75. W ith reference to the facilities which can be given by the public au thorities, the scheme requires Governm ents to make certain indirect contributions (Article 9, para . 2 ). I t is obvious th a t exemptions from taxa tion are equivalent to cash contributions, and the same applies to t ran sp o rt facilities. In this connection th e Com m ittee hopes th a t Governments will agree to exem pt relief traffic in fu tu re from Customs formalities, transh ipm ents, miscellaneous charges, and to provide for reduced rates on S ta te railways and regular rates on p riva te railways. These and o ther similar difficulties cost the relief organisations both tim e and money and often involve irreparable losses to the victims.

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jg An initial request to this effect was laid before the Council of the League of Nations a tits session in D ecem ber 1924.

W o r k in g Ca p it a l F u n d a n d R e s e r v e F unjd

77, Since, am ong the effects of its co-ordinative action, the I .R .U . proposes (Article 2,paragraph 1 ) to reduce the adm in istra tive expenditure by which in te rnationa l relief opera­tions are too often burdened , it has been th ough t p ruden t to m ake provision for this in the Statutes.

The overhead expenses of the cen tra l services m ust be borne in the first place by the In ternational Red Cross (Article 27), so fa r as its resources perm it. Should they prove inadequate , the income from th e in itial fund and the reserve would be used. To meet the eventuality of fu r th e r supp lem entary funds being required , the S ta tu tes provide for a levy on the funds placed a t the disposal of the I .R .U . (Article 12, parag raph 1 ). This levy m ust in no case, however, exceed 1 pe r cent — a very m uch smaller proportion of expenditure than th a t generally borne by relief funds, which often am ounts to 20 or even 30 per cent.

j9, I t is only comm on sense th a t the I .R .U ., like any o ther organisation which has to m eetunforeseen calls, should have a reserve fund (Article 12). Among the suggested sources for this, th e Com m ittee has prov ided for one, from m otives of justice no less th a n of finance.

80. We know from experience th a t th e public in terest in d isasters varies in different cases. This u n ce rta in ty in public generosity is due not so m uch to lack of sym pathy as to lack of publicity . Some disasters seem m ore d ram atic , m ore graphic , m ore photogenic. The Press is fu ll of them , and th e public is moved. O thers, however, are regarded as of inferior journalistic value ; th e Press slurs them over, and the public pays them no a tten tion . W h a t­ever the exp lanation m ay be, some disasters are popular and some are m isapprehended.

81. The Com m ittee has re ta ined the proposal th a t a certain percentage for use in “ u n ­popular” calamities should be deducted from all funds placed a t the disposal of the I .R .U . This percentage should be sufficient to m ake it possible to take action in th e case of such unpopular calamities. I t m ay be found a t th e outset th a t the public does no t like the idea of subscribing to the relief of th e victim s of a cyclone if it is told th a t p a r t of its contribu tions will be p u t aside for epidemics. On the o ther hand, the public m ay be quick to appreciate the object of th is reserve fund. I t is the business of the I .R .U . to explain its m ethods, tes t them , and a d a p t them to their purpose.

St a tu s

82. The particu la r n a tu re of th e in s titu tion and of its activities makes it necessary th a t it should have its own corporate s ta tu s (Article 8 ), which can be conferred upon it only by a d iplom atic convention.

83. A t th e same tim e, it is necessary th a t this organisation should exercise its activities in accordance with the pa rticu la r laws of the various partic ipa ting Governments. N ot only does a general provision (Article 2 , final para .) require in principle the agreem ent of each coun try to activities subm itted by th e laws of th a t coun try to certain restrictions, but the Com m ittee has especially required the respect of national legislation in regard to the transm ission of property , particu la rly im m ovable p roperty (Articles 11 and 13). The I .R .U . m ust n o t create even a suspicion of an in te rnationa l mortmain. More especially, there m ust be no possibility of su m p tu a ry expenses.

84. The power of borrow ing (Article 14) is necessary to m ake possible, in case of need, the use of funds which have been prom ised b u t no t paid. This power has been so lim ited as to p reven t abuse.

T r u s t e e s

85. The scheme explicitly gives the I .R .U . power to undertake the duties of a tru s tee— i.e. to constitu te itself the adm in is tra to r of certain special donations on special conditions. The I .R .U . can, of course, only accept such tru s ts on condition th a t th ey do not conflict with its objects, s ta tu to ry activities a n d neu tra lity . Subject, however, to th is reservation, the Com m ittee is of opinion th a t the existence of facilities for handing over tru s ts to the I .R .U . m ay encourage large donations. The plan provides for th is by special clauses and provisions (Articles 11 , 25 an d 26).

VI. — E X E C U T IV E M A C H IN ER Y

86. T h a t p a r t of th e d ra f t which rela tes to th is subject is self-explanatory and requires no com m ent (Articles 15-29). All we need do here is to describe its in ten tion .

A General Council representing all the m em bers of th e I .R .U . will serve as the deliberative and constitu tional body. I t will divide the world in to geographical areas, corresponding as closely as possible to th e risk of specific forms of disaster and to specific conditions which would govern relief in th e even t of catastrophe.

I t is desirable th a t these geographical areas should coincide as far as possible with the territories of S tates. For this reason, Article 19 lays down th a t na tiona l zones will be the i'ule and geographical zones th e exception.

E ach area will have its experts . The experts will form together an Advisory Committee, which will be constan tly occupied in co-ordinating th e possible fu tu re operations of the I .R .U . and p reparing for them to th e best of its ability. In the event

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of a ca tas trophe , th e experts of each zone become autom atically the special advisers ofthe Execu tive Com m ittee for th e organisation of relief in their zone. The ExecutiveCom m ittee acts in th e sam e way as the Board of D irectors of a p riva te company.

90. The active forces in each area will be the national E ed Cross organisations, co-ordi­nated if necessary in regional com m ittees, either among them selves or, in certain eventuali­ties, conjointly with the o ther similar institu tions (Articles 7, paragraph 3, and 28).

91. This" m achinery, the details of which m ay be found in the tex t of the draft, has three objects :

92. In the first place, there is the necessity of avoiding needless expenditure. This is the reason w hy the General Council m eets sim ultaneously w ith the League Assembly, in order to save persons who are delegates to both from m aking two journeys; and so forth . The chief saving, however, consists in the u tilisation of the In te rn a tio n a l E ed Cross. I t is already provided w ith officers, offices and staff, and consequently there is no need for theI.E .U . to engage a duplicate staff. The Advisory and Executive Committees will, of course, be able, in exceptional cases and w ith in very narrow limits, to employ a few private assis­tan ts , b u t as a general rule th e only perm anen t staff of the I .E .U . will be the staff of the Eed Cross, which will defray the g rea ter p a r t of the expenses (Article 27) so fa r as its resources perm it, any deficit being m et ou t of the income from the initial and reserve funds, and in the last resort ou t of th e working capital fund referred to above (Article 12).

93. N ext, relief work m ust not be organised in a haphazard fashion, and i t m ust be directed by men of experience ; hence th e appo in tm ent of experts. Selected for their proved fitness for th is special work and the ir knowledge of their geographical areas, they will carry out in the even t of disaster the measures which, as members of the Advisory Com­m ittee , th ey will a lready have studied and discussed.

94. Finally , it is necessary th a t the adm inistra tion of relief should not. offend the susceptibilities of the populations affected by the calamity. F o r th a t reason, the Committee avoided on principle the system of d ic ta toria l personal m andates. Belief d icta torship has not always produced happy results, and evidently providence in the form of a com m ittee gives a m ore hum ane result than providence in the form of an individual. Furtherm ore , since a ca tas trophe in one zone often affects people of several nationalities, i t is im portan t to avoid any suspicion of preference between them , as well as any appearance of political bias in the adm in is tra tion of relief— for which reason i t has been deemed best to choose several experts ra th e r th an one for each zone, so th a t th e varied races or nationalities which m ay be m enaced by the same disaster will be assured of equal consideration in the p repara tion of measures to be taken by the I .E .U .

V II . — F U T U R E W O E K OF T H E COM M ITTEE

95. In subm itting the a ttach ed d raft, even after amending i t on the lines ind icated in thediscussions of the Second Com m ittee of the Sixth Assembly, the P repara to ry Committee has not finished the work a llo tted to it.

96. The resolution of the F if th Assembly directed th e Com m ittee to “ present concreteproposals” (Article 3 of the resolution) and did not refer to the o ther questions (Article1 , (a), [b), (c) ) of th e resolution, except as elem ents in the prepara tion of these concrete proposals. T ha t reference came, as was rem arked above, from a m isunderstanding of the in ten tions of the prom oter of the idea. I t was th o u g h t th a t , according to his plan, the U nion would have governm ental contributions as its sole or principal resources. But, since the I.R .U . counts on the various Governm ents only for its initial fund, the Committee had no fu rth e r need to m ake a special s tudy of in te rna tiona l finance.

97. B u t if certain enquiries seem to have been useless in the prepara tion of the “ concrete proposals” which were asked from the Committee, th ey still form p a r t of the work which the Com m ittee will have to carry out for the realisation of the scheme as it now stands.

98. The accom panying d raft S ta tu tes give a definition of calamities. But they provide for the division of countries in to zones, in some cases geographical, certain preventive measures to be tak en , certain possibilities of insurance or reinsurance, etc. These problems, which could not be developed fully in the S ta tu tes , should be m ade the object of a special s tudy for the p repara tion of the by-laws by which the S ta tu tes can be p u t into practice (Articles 19 and 35). The first by-laws will be adop ted by the General Council of the Union a t its first meeting. B u t, unless it prolongs its first session a t great expense, the Council can act only if it has before it projects carefully p repared and discussed in advance by the experts who have already p repared th e S ta tu tes , who have defined the spirit of the Union, and who have thus become the spokesm en bo th of the p rom oter and of the League of Nations.

99. The Com m ittee, in te rp re ting th e decisions of the Sixth Assembly, will no t feel th a t it has fulfilled its duties un til the I .R .U . has been constitu ted on a perm anen t basis, as laid down in Articles 34 and 35 of the S ta tu tes . U ntil then it will hold itself a t the disposal of the Council of the League of N ations to m ake any fu rth e r modifications which m ay still seem desirable in the draft, and to m ake p repara tions for p u ttin g it in to operation.

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INTERNATIONAL RELIEF UNION (I. R. U.)

STATUTES *

The signatory S ta tes, here inafter enum erated ;

l u accordance with the Pream ble to the Covenant of the League of N ations, which states th a t th e H igh C ontracting Parties desire “ to prom ote in ternational co-operation . . . by th e prescrip tion of . . . ju st . . . relations betw een nations . . . ” ;

A nd in accordance w ith Article 23, parag raph /, of the Covenant, which sta tes th a t the Members of the League “ will endeavour to tak e steps in m atte rs of in te rnationa l concern for the preven tion and control of disease” ;

And in accordance with Article 25 of th e Covenant, which sta tes th a t “ the Members of the League agree to encourage and p rom ote th e establishm ent and co-operation of duly authorised v o lun ta ry na tiona l E e d Cross associations, having as their purpose the im provem ent of health , the p revention of disease, and the m itigation of suffering th roughout th e w orld” :

H av ing decided to render aid to each o ther in exceptional calamities, to encourage in ternational relief by m ethodically co-ordinating th e available resources, and to advance the recognition of an in te rna tiona l r igh t to in te rna tiona l assistance ;

H ave concluded the following agreem ent :

P A E T I

F o r m a t i o n , N a m e , O b j e c t , D o m ic i l e , N e u t r a l i t y , M e m b e rs h ip

Article 1.

An In te rn a tio n a l Belief Union, here inafter called the I .B .U ., is hereby constitu ted .

Article 2 .The objects of the I .B .U . are :

1. In th e event of any disaster or public m isfortune, to render more effective, by co-ordination of effort, the utilisation of tim e, assistance and resources ;

2. In the event of the occurrence of th e disasters defined in Article 3, to afford to the stricken populations the first aid defined in Article 4 :

3. To render th is assistance through th e national Bed Cross organisations and through the In te rn a tio n a l B ed Cross (In te rna tiona l E ed Cross Com m ittee and League of Bed Cross Societies) ;

4. To have recourse for this purpose, if necessary, to m easures based upon principles of preparedness and insurance ;

5. By giving public ity to disasters and to th e needs of the stricken peoples, to enable the public to con tr ibu te to the work of in te rna tiona l relief ;

6 . To collect for th is purpose funds, resources and assistance of all kinds ;7. To encourage the s tudy of p reventive measures against disasters ;8 . Generally, in the case of disasters, to tak e steps to induce all peoples to recognise

and carry out the obligation of m u tu a l in te rnationa l assistance.The activ ities of th e I .B .U . in each coun try shall be carried on w ith the consent of the

Governm ents concerned.

Article 3.

The disasters referred to in these S ta tu tes in respect of which first aid is to be given shall be in te rp re ted as m eaning public m isfortunes due to force majeure (an act of God), the exceptional g rav ity of which exceeds th e limits of the powers or resources of the stricken people.

Article 4.

Em ergency relief implies first aid to the population affected, b u t does not comprise repairs or reconstruction.

* The English text is the translation made by the Secretariat of the original French text drawn up by the Committee.

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Article 5.

The I .E .U . shall have its corporate domicile in the city in which the League of Nations is established.

I t m ay have all or p a r t of its adm in is tra tive services in any place selected by the E xecutive Com m ittee.

Article 6.

The I .E .U . shall not recognise in the exercise of its functions any national, poli­tical, religious, social or racial distinction.

In the event of war or the th rea t of war, or in the event of revolution, the qualified body of the In te rna tiona l E ed Cross shall, while keeping in touch w ith the Council of the League of N ations, in itia te the necessary m easures to ensure th a t relief operations shall be undertaken and carried on in conform ity with such conditions as m ay be imposed by the requirem ents of neu tra lity .

Article 7.

The m em bers of th e I .E .U . shall be the signatory States.E ach S ta te m ay, however, delegate to its national E ed Cross organisation the powers

and responsibilities resulting from its adherence to the I.E .L1., with the exception, of the obligations provided for in Article 9.

I t m ay, if necessary, delegate the same powers an d responsibilities to an organisation constitu ted for th e purpose, with the co-operation of the N ational R ed Cross Society.

A ny m em ber of the I .R .U . m ay w ithdraw on giving two years’ notice, provided th a t it shall have complied a t th a t tim e with all th e obligations arising out of its adherence, w ithout prejudice to th e exception m entioned in Article 36.

P A R T II

S t a tu s , F u n d s , D o n a t io n s , L oans

Article 8 .

The I.R .U . shall be invested with legal personality.W ith in the lim its of its objects, as defined in Articles 2 to 4, i t shall have the righ t to

sue a t law, to possess m ovable and im m ovable p ro perty and to acquire property by gift or purchase, subject to the provisions of Articles 11 and 13.

Article 9.

E ach of the signatory States to the C onstituent Convention hereby undertakes :

1. To m ake an initial paym en t to the I .R .U . not exceeding 625,000 Swiss francs for all the signatory States ; this sum shall be divided am ong the States in the same proportions as the contributions to the League of Nations ; States signing the Convention a t a la te r da te shall m ake paym ents calculated upon the same basis ;

2. To g ran t to the I.R .U ., the In te rna tiona l Red Cross and the national R ed Cross organisations, for th e purpose of this agreem ent, if necessary by special conventions, the m ost extensive im m unities, facilities and exem ptions of all kinds, for the ir establishm ents, for the m ovem ents of their staff and supplies, for the ir relief operations and for th e public ity of the ir appeals.

Article 10.

In addition to th e in itia l fund provided for in the preceding article and renew able by the means specified in Article 12, the funds of the I .R .U . shall consist of :

1. G rants which m ay be m ade by Governm ents e ither exceptionally or periodically or for special purposes :

2. Public contributions ;3. Donations and bequests as described in the following article.

Article 11.

The I .R .U . m ay receive from its m em bers, or from any o ther source, donations or bequests in the form of m ovable or im m ovable property , m ade by personal gift or otherwise.

Donations m ay be either purely general or set a p a r t b y the donor, in the form of specific charges, conditions or assignm ents, for such countries, such class of disaster or such individual d isaster as he m ay stipulate.

D onations subject to specific charges, conditions or assignments shall only be accepted in so far as th ey conform to the purposes and the principles of neu tra lity of the I .R .U ., as defined in P a r t I , and also to the legislation of the country of the donor or of the p roperty donated.

Subject to th e above reservation, the I .R .U . m ay agree to ac t as trustees.

— 13 —

Article 12 .The I .B .U . shall form :

1 . A working capital fund , m ain ta ined :

(а) B y the income from th e in itia l fund and from the reserve hereinafter provided for ;

( б ) B y re ta in ing a po rtion no t exceeding 1 per cent of all sums placed a t the disposal of the I .B .U .

This working cap ita l fund shall cover th e cost of the o rd inary and perm anen t services from the I .B .U . when, as an excep tional m easure, th ey are not paid for by the In te rn a ­tional B ed Cross.

2. A reserve, m ain ta ined :

(а) B y the surplus from a n y funds n o t wholly expended on their special purpose ;

( б ) B y a deduction from all sums placed a t th e disposal of th e I .B .U . which are no t earm arked for a n y special object. This deduction, together if necessary with the sum deducted for th e working cap ita l fund, shall not exceed 5 per cent in all.

This reserve will be used, prim arily , to reconstitu te the in itia l fund provided for in Article 9, and secondarily, to supply and supplem ent the relief given in disasters for which no special donations are received.

The G eneral Council m ay , in addition , provide for the reconstitu tion of the in itia l fund by m eans of an nua l contribu tions, to be paid by the m em bers of the I .B .U . according to th e principles of insurance, and to be calculated according to th e m ethod which is considered m ost equitab le , provided, however, th a t such decision shall no t be b inding on mem bers of th e I .B .U . o ther th a n those which accept it.

Article 13.

The I .B .U . m ay acquire and own only such im m ovable p roperty as is essential to its purposes.

Article 14.

The I .B .U . m ay con trac t loans in any form the am oun t whereof shall not exceed 50 per cent of its assets and of its m ovable and im m ovable property .

I t m ay also ob tain sho rt-te rm credits, secured by assured receipts or irrevocable guarantees.

P A B T I I I

Ge n e r a l Co u n c il a n d A d v is o r y Co m m itt e e

Article 15.

The work of th e I .B .U . shall be carried on under the direction of a General Council, an E xecu tive Com m ittee and an Advisory Committee.

In add ition to th e supervision which th e League of Nations exercises under Article 32, the League m ay always be represented by the Secretary - G eneral or his delegate a t all meetings of the General Council and th e Execu tive Committee.

Article 16.

The General Council shall consist of delegates of all the m em bers of the I.B .U .E very delegate m ay have a su b s titu te who m ay a tte n d m eetings b u t shall no t have

a consulta tive voice or a vote, except in th e absence of his principal.E very m em ber of the I .B .U . shall defray th e travelling expenses of its delegates.B epresen tatives of in te rn a tio n a l relief associations m ay be inv ited to a tte n d the

meetings of the General Council in an advisory capacity .

Article 17.

The General Council shall hold an in itia l m eeting to confirm the constitu tion of theI.B .U . Thereafter, i t shall m eet each year a t th e same tim e an d place as the Assembly of the League of N ations, unless the E xecu tive Com m ittee, for special reasons, chooses another m eeting-place.

In th e in te rval betw een two annual m eetings, it m ay m eet a t the specific request of a t least one-quarte r of th e m em bers of th e I .B .U .

— 14 —

Article 18.

The first m eeting of the General Council shall be called by the Council of the League, and subsequent m eetings by the Execu tive Com m ittee of the I .E .U .

Notices of meetings shall be sent ou t a t least th ree m onths in advance and m ust s ta te the agenda of the meeting.

The decisions of the General Council shall no t be valid unless one-half of the members are present. I ts decisions shall be taken by a m ajority of the votes cast.

W hen dealing with by-laws or am endm ents to the present S ta tu tes , three-fourths of the mem bers of the General Council m ust be present, and decisions shall be taken by a tw o-thirds m ajo rity of the votes cast.

Article 19.

The General Council shall appoint the m em bers of the E xecutive Com m ittee and the Advisory Committee.

I t shall discuss am endm ents to th e present S ta tu tes , subject to th e provisions of Article 36, m ake the necessary by-laws for the application of such am endm ents, and determ ine the geographical disaster areas in cases in which the national areas would not fulfil the object of the I .E .U .

I t shall be com petent to deal with all the affairs of the I .E .U .

Article 20.

The Advisory Com m ittee shall consist of one or m ore experts for each area.E xperts shall be appoin ted by the General Council, after approval in each case by those

m em bers of the I .E .U . w ith in the a rea concerned. No na tiona lity m ay be represented in respect of the same area by m ore th a n tw o experts.

E xperts shall be appo in ted for th ree years and m ust reside within the ir area.In the event of the decease or resignation of an expert, the Execu tive Com m ittee

shall, if th e General Council is no t sitting , appo in t a su b s titu te w ith the approval of the m em bers of the I .E .U . within the area concerned. The new expert shall take up his duties w ithout delay.

Article 21.

The Chairm an of the Execu tive Com m ittee shall act as Chairm an of the Advisory Com m ittee. He shall convene meetings of the la t te r or ob tain i ts opinion by correspondence whenever circum stances m ay require. He shall decide upon the place of m eeting and the agenda.

Article 22.

The Advisory Com m ittee shall co-ordinate th e inform ation rela ting to the risks, the resources and the needs of each area considered in relation to possible disasters.

In th e event of a disaster, each expert shall ind icate to th e E xecu tive Com m ittee the m easures he deems m ost appropria te for dealing with its consequences.

P A S T IV

E x e c u t i v e A g e n c ie s

Article 23.

The E xecutive Com m ittee shall consist of seven m em bers and of seven substitu tes selected by the General Council, to hold office for two years.

The Com m ittee shall co-opt in a consulta tive capacity two representatives of the In te rn a tio n a l E ed Cross (League of the E ed Cross Societies and In te rn a tio n a l E e d Cross Committee).

I f for any reason a vacancy occurs, the Com m ittee shall fill such vacancy by designa­ting one of the substitu tes, to hold office until the expiration of the unfinished term .

The Committee shall select from its mem bers a chairm an and a secretary, to hold office for one year.

Article 24.

The E xecutive Com m ittee shall be convened by its Chairm an. I t shall m eet w h e n e v e r circum stances require and in any case not less th a n twice a year. The place of m eeting shall be fixed by th e Chairman.

-— 15 — -

Article 25.

'The E xecutive Com m ittee shall be the agent of the I .E .U . as well as the trustee of any funds con tribu ted under specific charges, conditions or assignm ents.

I t shall have full and independent powers to take , in th e nam e of th e I .E .U ., any action consistent w ith th e s ta tu to ry aims of th e la tte r .

I t shall represent th e I .E .U . in dealing w ith the League of N ations, w ith Governments, with the na tiona l and in te rnationa l E ed Cross organisations, and with all persons and corporate bodies ; it shall also represent th e I .E .U . in courts of law ; it shall have power to compromise.

I t shall collect funds, employ them , invest them , and adm inister them as trustee ; it shall open all b a n k accounts and shall con tract any insurances, as well as loans, in accordance with Article 14.

I t shall m ake and au thorise con tracts of all k inds and shall control supplies.The fotegoing list of its powers shall not be deemed to be exhaustive.

Article 26.

If a special need should arise, the E xecu tive Com m ittee m ay delegate any or all of its powers to any of its members.

N evertheless, all decisions taken by th e E xecutive Com m ittee as trustee of a donation subject to specific charges, conditions or assignments, require at least two signatures, one of which m ay be th a t of th e Secretary.

The foregoing provision shall also apply to acts of disposal.The Execu tive Com m ittee shall subm it annually to the members of the I .E .U . a

w ritten repo rt on its work. This report shall then be m ade public by the Secret arv - General of the League of N ations, in accordance w ith Article 32.

Article 27.

The cen tral perm anen t services of the I .E .U . shall be provided, under the control of the E xecu tive Com m ittee, by the In te rn a t io n a l E e d Cross (In te rna tiona l E ed Cross Com­m ittee and League of E ed Cross Societies), and a t its expense, within the limits of its resources.

Article 28.

In the even t of a disaster, the Execu tive Com m ittee shall have a u th o r ity to ac t on behalf of the I .E .U . to such ex ten t as i t deems advisable and to organise relief work, as well as appeals to the public or to the m em bers of the I .E .U .

Eelief w ork in each area shall be carried o u t, on behalf of the I .E .U ., by th e national E ed Cross organisations w ith in th e area, or, if necessary, by the organisations constitu ted in conform ity w ith Article 7, para . 3, and by specialised institu tions , working in co­operation w ith these organisations.

If there are several S ta tes in th e same area, or if in the same area several national E ed Cross organisations or o ther regional com m ittees form ed in accordance w ith Article 29 take p a rt in th e relief work, the E xecu tive Com m ittee shall take such steps as m ay be necessary to co-ordinate the various efforts an d the d istr ibu tion of relief.

The na tiona l E e d Cross organisations and all regional comm ittees which receive m oney from th e I .E .U . shall account for i t to th e Execu tive Committee. This body shall publish inform ation regard ing the share taken by each country and each organisation in any particu la r relief work.

Article 29.

Eegional com m ittees m ay be form ed to co-ordinate the work of the national E ed Cross organisations within a single area. In selecting the mem bers of these com m ittees, account shall be taken of their technical capacities and past experience and of adm in is tra ­tive requirem ents.

P A E T V

F i n a n c e a n d A c c o u n t s

Article 30.

The funds of th e I .E .U ., except such sums as m ay be required for cu rren t expenses, shall be deposited e ither in the sam e banks as the funds of th e League of N ations or in o ther banks approved by th e general Council.

Article 31.

The Execu tive Com m ittee shall draw up an annual balance-sheet for the I .R .U .The balance-sheet shall show th e assets and liabilities of the I .E .U ., as well as the

accounts of operations in the case of each disaster.

— 16 —

There shall be annexed there to an inven tory of the m ateria l in all the depots, and a retu rn showing contracts for supplies concluded by th e I.B .U .

Article 32.

The au d it of the accounts of the I .B .U . shall be m ade by the League of Nations.Auditors appointed for th a t purpose shall have the r igh t a t all times to aud it the books

and accounts of the I .B .U . They shall report annually upon their audits and upon the balance-sheet and inventory . Their report shall be annexed to the balance-sheet and inven tory and to the E xecutive C om m ittee’s report, and shall be brought by the Secretary- General of the League of N ations to the notice not only of th e m em bers of th e I.B .U . and th e Governments b u t also of the public.

P A B T VI

D is p u t e s — B r in g in g in t o F orce of t h e A g r e e m e n t

Article 33.

All disputes between any parties on any subjects arising out of th e present S ta tu tes shall be e ither subm itted to one or more a rb itra to rs or brought before the Perm anen t Court of In te rn a tio n a l Justice.

N evertheless all d isputes between two or more national B ed Cross organisations in connection with th e present S ta tu tes shall be subm itted in the first place for reconciliation to the qualified body of the In te rna tiona l B ed Cross.

Article 34.

The constitu tion of the I .B .U . shall no t be definitive un til :

1 . The present S ta tu tes have been ra tified by a m inim um of twelve States whose combined contributions, in accordance w ith Article 9, shall am ount to a t least three-fifths of the initial fund, or 60 per cent of the to ta l num ber of units ;

2. The inaugura l m eeting of the General Council has been held in accordance w ith Article 17 ;

3. The E xecutive Com m ittee has been appo in ted by the General Council.

Article 35.

The by-laws fo rm ulated by the General Council in accordance with Articles 18 an d 19 shall be b inding as betw een th e same parties. All measures arising out of the preceding articles and necessary for the ir application shall be determ ined by the aforesaid by-laws.

P A B T V II

M o d i f i c a t i o n s a n d T e m p o r a r y P r o v i s io n s

Article 36.

The present S ta tu tes m ay be modified in the m anner prescribed in Article 18. N ever­theless, in th is even t and no tw ithstand ing th e provisions of Article 7. any m em ber of theI.B .U . which does not accept the m odification which is adop ted m ay w ithdraw on giving three m on ths’ notice, p rovided th a t it shall have complied w ith all the obligations arising out of its adherence.

Article 37.

An au then tic copy of th e present agreem ent shall be draw n up in French and in English ; this copy shall be deposited a t the Secretariat of the League of Nations ; certified true copies shall be sent to all the signatory States.

The au then tic copy shall rem ain open for signature by all the o ther States, and the la t te r shall be inv ited to adhere to i t by the Council of th e League of Nations.

The instrum ents of ratification shall be deposited a t th e Secretariat.The agreem ent shall be registered by the Secretary-General of the League of N ations

in accordance w ith Article 18 of the Covenant as soon as the ratifications provided for in Article 34 have been deposited.

In d e x

Abbreviations : 0 . 4 = Objects an d D r a f t Statutes, paragraph 4 — S. 4 p. 2 = StatutesArticle 4 , paragraph 2 .

Accounts, 0 .58, 59 — S . 31.Supervision of, 0 . 6 0 ; S . 32 p . 2.

Acquisition, S . 8 p . 2.Action, immediate, 0 .71 .Activities, Statutory, of I .R.U. , 0 . 8 5 .Acts of disposal, S . 26 p . 3.Administrator. See Trustees.Advisory capacity, 0 .5 7 — S . 16 p . 4.Appeals, S . 9 p . 2, 28 p . l .Arbitrators, S . 33.Areas, 0 .5 2 , 87 seq., 93, 94, 98 — S . 19 p . 2, 28 p . 2

and 29 p . 3.Assets, S. 14 p . l .Assistance, mutual international, S . 2 p . 8. Associations, International Relief, S . 16 p . 4.

Balance-sheets, S . 31, 32 p . 2.Banks, S . 25 p . 4. 30.Bequests, 0 . 6 1 , 6 5 — S . 10 p . 3, 11, 25 p . l , 26 p . 2. Bodies, learned. 0 . 3 4 .By-laws, 0 . 9 8 — S . 18 p . 4, 19 p . 2, 35.

Calamities. See Disasters.Chairman, S . 21, 23 p . 4, 24.Charges, specific, conditions or assignments, S. 11 p . 2,

25 p . 1, 26 p . 2.Committee, Advisory, 0 . 8 9 seq., S . 15 p . l , 19 p . l ,

20, 21 , 22 .Committee, Executive, 0 .1 7 , 89 seq. — S . 15 p . l , 17.

18 p . l , 19 p . l , 21, 22 p. 2, 23 to 29, 31 p . l , 34. convening of, S . 24. delegation of powers of, S . 26 p . l . subst itute members, S . 23 p . l .

Committee, International, of the Red Cross, 0 .51 — S . 2 p . 3, 23 p . 2, 27.

Committee, preparatory, 0 .1 ; 95 seq.Committees, regional, 0 . 9 0 — S . 28 p . 4, 29. Compromise, power to, S . 25 p . 3.Constitution of I . R . U . , 0 .45, 56 — S. 17 p . l , 34. Council, General, 0 . 56 , 87 seq., 9 8 — S . 15 p . l , 16

to 20, 23 p . l , 30, 34. convening of , S . 18. majority, S . 18. special meet ing, S . 17 p . 2.

Contracts, S . 25 p . 5, 31 p . 3.Contribution, annual, 0 . 6 7 .

financial , 0 . 4 7 . initial. See Fund Initial.

Co-ordination, 0 .8 , 25, 28, 52, 77 — S . 2 p . l , 29. Court, Permanent, of Internationa! Justice, S . 33 p. 1. Covenant of the League of Nations, 0 .39 , 52, 55 —

S. Preamble.Customs facilities, 0 . 7 5 .Cyclones, 0 . 8 1 .

Deductions, 0 .81 — S . 12 p . 2.Deficit, 0 .6 9 .Delegates of members of I. R. U ., S. 16 p . l .Disasters, 0 .9 . 51 passim — S. Preamble p . 4. 2 p . l ,

3, 28 p . l passim.for which no special donations are received 0 . 8 0 ; S . 12 p . 2. individual , S . 11 p . 2. misapprehended, 0 . 8 0 .

Disputes, S . 33.Domicile, corporate, S . 5.Donations. See Bequests.

Economy of time and funds, 0 .8 , 23 seq., 92. Emigrations, forced, 0. 15.Epidemics and disease, 0 .1 5 , 34, 81. — S. Preamble

p . 2 and 3.Execution of scheme, 0 .52, 86 seq. — S . 28. Exemptions, S . 9 p . 2.Expenditure, 0 . 5 9 — S . 30.

Expenses, administrative, 0 . 28, 77.overhead, 0 . 27, 78.

Experts, 0. 89, 93, 98 — S . 20 p . l .appointment of substitutes, S . 20 p. 4 . place of residence of, S . 20 p . 3.

Facilities, granting of, 0. 46, 75 — S . 9 p . 2.Famine, 0. 13.Fifth Committee of the League of Nations Assembly1

First Aid, 0 .19, 52 — S . 2 p . 2, 3, 4.Floods, 0 .1 3 .Force majeure, 0 .1 0 to 12 — S . 3.Fund, initial, 0. 33, 46, 67, 71, 72, 78, 92, 96 — S .12 p . l .

See also Reconstitution of initial fund, reserve, 0 . 33, 78, 92 — S . 12 p . l and 2. working capital, 0. 77 seq., 92 — S. 12 p . l .

Funds, 0 .6 2 seq. See States, participation of, Fund initial, Bequests, Public.

Funds Of I . R . U . , S . 25 p . 4, 28 p . 4, 30.

Geneva Convention, 0 . 5 0 .Gifts, personal, S . 11 p . l .Governments, 0. 35 seq., 66 seq. — S . 25 p . 3, 32 p . 2,

consent of, 0. 5 2 , 8 3 — S . 2 p . 9.Grants, voluntary. 0 .6 8 — S . 10 p . l .

Immunities, fiscal, S . 9 p . 2.Information and experience, 0. 31.Insurance, 0. 29 seq., 70, 98 — S . 2. p . 4, 12 (last

paragraph), 25 p . 4.Institutions other than the Bed Cross, 0 .5 3 , 0 .9 0 —

S . 7 p . 3, 28 p . 3.Inventory. S . 31, 32 p .2 .

League of Nations. 0. 36, 40, 45, 54 seq., 73, 76, 92, 98, 9 9 — S . 5, 6 p . 2, 9 p . l , 15 p . 2, 17 p . l , 25 p . 3. 26 p . 4, 30, 32 p . 2, 37. — See Covenant.

League of Red Cross Societies, 0.51 — S . 2 p . 3, 23 p . 2., 27.

Loans, S . 14 p . l , 25 p . 4.

Meetings of I . R . U . , S . 7, 16 p . 2.See also National Red Cross Societies. States.

Measures, preventive, 0 .3 4 , 98 — S . 2 p . 7.Misfortunes, public, S . 2 p . l , 3.Monopoly, Red Cross. See Red Cross. Monopoly of. Mortmain, international. 0 . 8 3 .

Name of organisation, 0 . 4 — S . 1.Nationality, 0 .94 — S . 6 p . l , 20 p . 2.Neutrality, 0 .14, 15, 22, 85, 94 — S . 6 p . 2, 11 p . 3 .

Objects of the I . R . U . , 0 . 6 seq., 85 — S . 2, 8 p . 2, 9 p . 2. 11 p . 3, 25 p . 2.

Obligation of assistance, 0 .12 , 20 ■ — S . 2 p . 8.Opinion, public, 0 . 1 7 .Order of Malta, 0 . 5 3 .Organisations of Red Cross, national. See Red Cross,

national organisations.

Payment, initial, S . 9 p . l .Personality, legal, 0.45, 65, 82 seq. — S .8.Political distinctions, S . 6 p . l .“ Pound for pound” scheme, 0 .74.Preparedness, S . 2 p . 4.Press, 0.80.Procedure for constituting Union. See Constitution. Proceedings, legal, S . 25 p. 3.Property, immovable, S. 8 p. 2,11 p. 1, 13, 14 p . 1.

movable, S . 8 p. 2, 11 p. 1, 14 p . l . “ Proposals, concrete” , 0.1, 96, 97.

— 38 —

Public, 0 .17 , 24, 28, 58, 61, 62 seq., 72 seq., 80 — S . 2 p . 5, 10 p . 2, 26 p . 4, 28 p . l , 32 p . 2.

Publicity, S . 2 p.ô.regarding share of each country, S .28 p . 4. of appeals, S . 9 p . 2.

Race, distinctions of, S . 6 p . l .Ratification, S . 37.Reconstitution of initial fund, 0.18 — S .4. Reconstruction, 0.18 — S . 4.Red Cross, International, 0. 51, 78, 92 — S . 2 p . 3,

6 p . 2, 9 p . 2, 1 2 p . 2, 23 p . 2, 25 p . 3, 27, 3 3 p . 2. See also International Red Cross Committee and League of Red Cross Societies.

Red Cross, national organisations, 0. 24, 38; 40 seq., 50 seq., 90 — S . 2 p . 3, 9 p . 2, 25 p . 3. 28 p . 2, 3,4, 29.co-operation of, 0. 39, 41, 43 seq. — Preamble p . 3.delegation of powers to, 0. 42, 47, 48, 52 —S . 7 p . 2.independence of, 0 .5 2 .“ mandate” , 0 . 47 .members of I .R .U. , 0 . 5 2 — S . 7 p . 2. monopoly of participation, 0 . 5 3 ; S . 7 p . 3.

Relief, 0 .1 7 , 18; 19, 20 seq., 62 — S. 4, 28. See Right to relief, obligation of assistance.

Religious distinctions, S . 6 p . l .Repairs, 0. 18 — S . 4.Report, annual, S.26 p. 4, 32 p. 2.Retaining of sums, 0. 78 — S . 12 p . l .Revolutions, 0 . 1 5 — S . 6 p . 2.Right to assistance, 0 .20. — S. Preamble p . 4.Risks, 0. 31.

“ Save the Children” Fund, 0 . 53 .Second Committee of the League of Nations Assembly,

0 .3 , 95.Secretary. 8 . 2 3 p . 4, 26 p . 2.Service,central and permanent, 0 .92 — S. 12 p . 1, 27,

technical, 0 . 5 1 .Services, administrative, S . 5 p . 2.Social distinctions, S . 6 p . l .Staff, 0 . 9 2 .States. 0 .4 2 seq., 66 seq.

See Initial contribution. Governments, Govern­ments, consent of, Grants, special

equality of, 0 .3 2 .federation of, 0 . 3 6 .freedom of, 0 .44 , 47, 48, 55, 67, 68.members of I .R.U. , 0 .4 2 seq., 46.participation of, 0 . 3 5 seq.sovereignty of, 0 . 1 4 .

Statutes, amendments to, S. 18 p . 4, 19 p . 2, 36. Study of preventive measures, S . 2 p . 7.Supervision, 0 .58 , 60 — S .32.Surplus, S . 12 p . 2.

Transport facilities, 0 . 7 5 .Trustees. 0 .8 5 — S . 11 p. 4, 25 p . 1 and 4. 26 p .2.

War of 1914, 0 . 5 1 .Wars, 0 . 15 — S . 6 p . 2. Waste of funds, 0 . 2 7 . Withdrawal, S . 7 p. 4, 36.