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I want to emphasise one point about these two cases. It is not so much that the coercive powers provided in the Covenant were effectively used. In Sweden and Finland they never came into the question at all, and in the other case there was merely a suggestion of their operation. What really brought about a settlement of these two disputes was that the countries concerned really desired peace, and were really anxious to comply with their obligations as members of the League of Nations. That is the essential thing—the League spirit. And if you want to see how essential it is you have to compare another international incident: the dispute between Poland and Lithuania, where the League spirit was conspicuous by its absence. There you had a dispute of the same character. But ultimately you did secure this: that from the date of the intervention of the League till the present day—about two years—there has been no fighting; actual hostilities were put an end to. Though that is in itself an immensely satisfactory result, and an essential preliminary for all future international progress, yet one must add that the dispute still continues, and there is much recrimination and bitterness between the two countries. The reason why only partial success has been attained is because one must say Poland has shown a miserable lack of the true spirit of the League.

Let me turn to the other parts of the Covenant—those which aim directly at building up international co-operation. I am not sure that it is always sufficiently realised that that is not only an implicit but also an explicit object of the Covenant—that it is the main purpose for which the League exists. International co-operation are the very first words of the preamble to the Covenant. This is the fundamental idea I cannot insist on too strongly, because it does really go down to the very foundations of my whole creed in political matters. International co-operation, class co-operation, individual co-operation—that is the essential spirit if we are to solve the difficulties before us. Let me remind you of the two instances of the action of the League in dealing with the threat of epidemics to Europe. A conference was called at Washington to consider what could be done to save Europe from the danger of epidemics coming from the East. What is interesting is that in that conference you had present not only members of the League considering and devising means for the safety of Europe, but you had representatives of Germany and Russia—a splendid example of the promotion of international co-operation extending even beyond the limits of the membership of the League. Admirable work was done. All countries co-operated quite frankly and willingly under the presidency of a distinguished Polish scientist.

That is one example of what we mean by international co-operation. Perhaps an even more striking example was the great work of Dr. Nansen in liberating the prisoners of war who were in Russia. He was entrusted with the work on behalf of the League. The prisoners of war belonged to all nationalities, including our enemies in the late war. He accomplished his work because he went about it in the true spirit of the League, merely anxious to promote the welfare of all, leaving aside all prejudices whether arising from the war or from any other cause. Dr. Nansen is in my judgment the incarnation of the spirit of the League, and his work, immensely successful, restored to their homes some 350,000 persons, and he did it for less money than he originally estimated it would cost.

Do not put me down as a facile optimist in this matter. In the matter of international co-operation we have a long way to go before we reach our goal, and we can already see one or two serious failures. I deeply deplore that last year the League found itself unable, through the instructions given by the Governments which composed it, to do anything effective on behalf of the famine in Russia. It was a most deplorable failure for the League, and still more deplorable for this country. It was a great opportunity for us to show that we really did mean to be actuated by a new spirit in international affairs, and that we did recognise that the welfare of all human beings was part—if you like to put it so—of our national interests. We failed to make that recognition. We have been trying feebly and unsuccessfully to repair that great mistake ever since, and for my part I do not believe there is any hope of a solution of the Russian difficulty until we absolutely acknowledge the failure we then made, and begin even at this late hour to retrace the false step we then took.

I could give other instances of failure, but I do not wish to depress you, and there are cheering things we may look at. It is a matter of great relief and congratulation that the policy of mandates really does appear to be becoming effective, and one of the greatest activities of the League. Nothing is better than the conception which the mandate clause embodies, that the old ideas of conquest are to be put aside; that you are not to allow nations to go out and take chunks of territory for themselves; that they must hold new territory not for themselves, but on behalf of and for the benefit of mankind at large. This is at the bottom of mandates. Since I am speaking on behalf of Professor Murray, I ought to remind you of the provisions of the Covenant for the protection of racial linguistic minorities, and minorities in different countries. It has not yet become an effective part of the machinery of the League, but I look forward to the time when we shall have established the doctrine that all racial minorities are entitled to be treated on a footing absolutely equal with other nationals of the country in which they live. If that could be established, one of the great difficulties in the way of international co-operation in the spirit of peace will be removed.