purposes of the foregoing paragraph [which reads: "In the deliberations, each country shall have one vote only "]. But the number of votes which one government, including its colonies, possessions or protectorates, may exercise can not exceed six.

Art. 1. [Final Protocol]. The high contracting parties agree that at the next conference the number of votes which each country shall have shall have been determined at the outset of the deliberations, so that the colonies, possessions or protectorates admitted to the enjoyment of votes may be able to exercise their right of voting throughout all the proceedings of that conference.14

These articles were decided on at the second conference in 1906, when the question of representation arose first at the fourth session, October 6, 1906, Art. 15 of the German project being under discussion, and, after an extended argument started by the British delegate, the principle of colonial, or non-sovereign, representation was admitted. The discussion continued at the fifth session, October 8 and at the seventh session, October 25, when the first reading of the revised article embodying the idea was passed. It received its second, or final, reading at the eleventh session, November 1, and passed the comité de rédaction without any difficulty. The article as finally accepted became Art. 12 of the convention, certain proposals in the form of amendments being incorporated into Art. 1 of the protocole final.

The convention enrolls among its adherents the following, the Roman numerals referring to the bureau classes 15 elected:

Germany, I; Germany, for its protectorates; United States, I; Argentina, I; Australia, I; Austria, I; Belgium, III; Brazil, VI; Bulgaria, V; Chile, III; Cape Colony, Natal and Transvaal, joint, I; Denmark, IV; Spain, II; France, I; Great Britain, I; Great Britain for Canada, Australia, Cape Colony, Natal, Transvaal, British India and its other colonies and protectorates except Newfoundland and Orange River; Greece,—; Hungary, I; British India, I; Italy, I; Japan, I; Mexico, IV; Monaco, VI; Norway, III; New Zealand, IV; Netherlands, III; Persia,—; Portugal, VI; Roumania, III; Russia, I; Sweden, III; Turkey, I; Uruguay, IV. The countries listed, although several were not represented at the sessions of the conference, assented to the convention within the stipu14 SUPPLEMENT, 3:330, Foreign Relations, 1906, 1519, and Annuaire de la Vie internationale, 1908-1909, 275.

15 Rapport de Gestion, 1909, 2.

lated period and thus became ratifying Powers. In addition, 16 France adhered for all her colonies; Great Britain for the new South African Union; the Netherlands for the Dutch Indies and Curaçao, AustriaHungary for Bosnia and Herzegovina; Belgium for the Kongo; Japan for Korea, Formosa, Kwangtung and Sakhalin; Spain for Guinea; and Egypt, Morocco, San Marino, Siam, and Zanzibar in their own right.

As a result of experience in the use of radiotelegraphy at sea, it was found desirable to revise the work of the 1906 conference at a series of meetings held at London June 4-July 5, 1912. The question of colonial representation had been in a measure left open for the decision of this second conference by the provisions of Art. 12 of the 1906 convention and the first article of the final protocol, the last paragraph of which reads:

So far as the next conference is concerned, proposals for the admission of new votes in favor of colonies, possessions, or protectorates which may have adhered to the convention shall be addressed to the international bureau six months at least before the date of meeting of that conference.

Germany, Belgium, France, Great Britain, Japan, the Netherlands and Portugal had complied with this provision and their claims to votes for their colonies were accepted on presentation. Italy, the United States and Russia presented claims to multiple representation, the first two presenting the fact that as they had ratified the convention within less than six months of the beginning of the London Conference, it had been impossible for them to comply with the provision relative to délai. The conference rejected this claim. Since, however, the procedure had been adopted in the first place as a transitory scheme, the conference decided to follow the practice of other unions and to write into the convention a statement naming the non-sovereign entities which were entitled to vote. This list was incorporated into Art. 12 and is as follows:

The following shall be considered as forming a single country for the application of the present article:

German East Africa; German Southwest Africa; Kamerun; Togo Land; German Protectorates in the Pacific; Alaska, Hawaii and the other American possessions in Polynesia; the Philippine Islands; Porto

16 5 JOURNAL, 482; 6 ibid, 216, 739, 990; 7 ibid, 612.

Rico and the American possessions in the Antilles; the Panama Canal Zone; the Belgian Kongo; the Spanish Colony of the Gulf of Guinea; French East Africa; French Equatorial Africa; Indo-China; Madagascar; Tunis; the Union of South Africa; the Australian Federation; Canada; British India; New Zealand; Eritrea; Italian Somaliland; Chosen, Formosa, Japanese Sakhalin and the leased territory of Kwantung; the Dutch Indies; the Colony of Curaçao; Portuguese West Africa; Portuguese East Africa and the Portuguese possessions in Asia; Russian Central Asia (littoral of the Caspian Sea); Bokhara; Khiva; Western Siberia (littoral of the Arctic Ocean); Eastern Siberia (littoral of the Pacific Ocean).

It is interesting to note in this connection that Germany, France, Great Britain, the United States and Russia each has five colonial votes, bringing the métropole's representation up to the limit of six. Great Britain's relations with her self-governing colonies fixed her multiple representation, and it may be surmised that the other four Powers sought to gain equality of voting strength with her. The non-sovereign participants in the next conference will number 34, whereas the number of metropolitan contractants in 1912 was 26 only. Eleven métropoles out of these 26 are granted multiple representation.

Another change effected was the transference to Art. 16 of a paragraph from the former final protocol which reads:

The adherence to the convention by the government of a country having colonies, possessions or protectorates shall not carry with it the adherence of its colonies, possessions or protectorates unless a declaration to that effect is made by such government. Such colonies, possessions and protectorates, as a whole or each of them, separately, may form the subject of a separate adherence or a separate denunciation within the provisions of the present article and of Article 22. "7

Probably the next most significant instance of the admission of colonies, or as I think is the better description, non-sovereign countries,— into an international organization is found in the International Convention concerning Expositions signed at Berlin October 26, 1912. The

17 La Vie internationale, II, 293–306, passim, and 7 SUPPLEMENT, 229. Signatories and adherents to the 1912 convention are noted in 7 JOURNAL, 869. See also S. Doc., 63d Cong., 1st Sess. Bosnia-Herzegovina, Kongo, Egypt, French West Africa, French Equatorial Africa, Indo-China, Madagascar, Tunis, the Union of South Africa, the Australian Federation, Canada, British India, New Zealand, Morocco, the Dutch Indies and Curaçao were separately represented, the other non-sovereigns being represented by delegations jointly with their métropoles.

multiplicity of expositions, frequent failures of them in the last decade or so and the almost inevitable conflict in dates that arises without concerted action are problems which have long been in the minds of their promoters. In public administration the tangible result of the difficulties was the calling of a conference to regulate the practice and national support of these undertakings. The procès-verbaux of the proceedings are not yet available, but it is notable that, though no union to exert the control which was agreed upon resulted, the convention consistently employs the word pays rather than Etat in referring to the contracting parties. Moreover, it specifically arranges for the adhesion of métropoles for their non-sovereign entities. And the final protocol contains two decidedly interesting articles on this matter, in one of which Russia assents to the principle of multiple representation and voting, but reserves the right to enter its subsidiary divisions in sufficient numbers to maintain its voting equality with any other Power, an attitude first taken a few months before at the Radiotelegraphic Conference at London. The applicable articles of the convention are:

Article XXX. Contracting countries have the right to accede at any time to the present convention on behalf of their colonies, possessions, dependencies or protectorates, or on behalf of certain among them.

To this end they may make a general declaration by which all their colonies, possessions, dependencies and protectorates are included in the accession, may name expressly those which are included therein, or indicate those which are excluded therefrom.

This declaration is notified through the diplomatic channel to the German Imperial Government and by it to all the others.

The contracting countries at any time and under the same conditions may denounce the convention on behalf of their colonies, possessions, dependencies and protectorates, for all together or for each one of them separately.

This denunciation is notified through the diplomatic channel to the German Imperial Government three years in advance.

Article XXXI. Each contracting country preserves the liberty of organizing participation in any exposition which takes place in its colonies, possessions, dependencies, and protectorates, whether or not conforming to the provisions of the present convention.

When a contracting country has made use of the right of accession, provided by Article XXX for one of its colonies, possessions, dependencies, or for one of its protectorates, the government of this colony, possession, dependency or this protectorate preserves the liberty of

organizing participation in any exposition which takes place in this contracting country or in its other colonies, possessions, dependencies, and protectorates, whether or not conforming to the provisions of the present convention.

In cases of participation contemplated by the preceding paragraph, the other contracting countries which may be invited to the said expositions preserve on their part every liberty of giving their adhesion thereto and of organizing participation therein under the same conditions.

But it remains understood that expositions mentioned in the present article which may be organized in the territory of the contracting country itself remain controlled by the provisions of the present convention, if they admit foreign participation.

The protocol says:

I. The convention (Article XXX) foresees the adhesion of colonies, possessions, dependencies, and protectorates, without regulating the question of right of voting of these territories in later conferences.

The high contracting parties are agreed in deciding that this question will remain pending and that in the case of such an adhesion it must be regulated through the diplomatic channel before the next conference. II. Act is taken of the following declarations:

1. The Russian delegation is of the opinion that it would be preferable for each country in later conferences to dispose of only one vote; however, in case of the application of Article I of the present protocol, the Russian Government reserves the right of asking for its protectorates and possessions the maximum of votes conceded to any other Power;

2. The delegation of Denmark in signing the convention declares nevertheless that its signature does not relate to Iceland and the Feroe Island.

3, The British Government reserves the right of adhering for the Island of Cyprus.

These clear-cut conventional provisions providing for colonial representation in conferences seem to be significant of advancing practice, even if the gatherings were made up largely of technical delegates and the subjects under consideration were scientific rather than diplomatic in character. Six other technical conferences have admitted nonsovereigns, the Rome conference on telegraphy in 1871 apparently having led the way by admitting not only colonial administrations but also private companies to membership. The Postal Union followed in 1874 respecting colonies, and the organization for the Publication of Customs Tariffs accepted them as contracting entities in 1888,18 when,

The conference in that year was a preliminary one, and perhaps for that reason colonial participation in it was significant.