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 which was to consist of the representatives of the United States, Britain, France, Italy, and Japan, with four other members elected by the Assembly. The Council was to meet once a year; the gatherings of the Assembly were to be at "stated intervals," not stated.

Except in certain specified instances the league of this Covenant could make only unanimous decisions. One dissentient on the council could bar any proposal—on the lines of the old Polish liberum veto (chapter xxxvi, § 7). This was a quite disastrous provision. To many minds it made the Covenant League rather less desirable than no league at all. It was a complete recognition of the unalienable sovereignty of states, and a repudiation of the idea of an over-riding commonweal of mankind. This provision practically barred the way to all amendments to the league constitution in future except by the clumsy expedient of a simultaneous withdrawal of the majority of member states desiring a change, to form the league again on new lines. The covenant made inevitable such a final winding-up of the league it created, and that was perhaps the best thing about it.

The following powers, it was proposed, should be excluded from the original league: Germany, Austria, Russia, and whatever remains there were of the Turkish Empire. But any of these might subsequently be included with the assent of two thirds of the Assembly. The original membership of the league as specified in the projected Covenant was: the United States of America, Belgium, Bolivia, Brazil, the British Empire (Canada, Australia, South Africa, New Zealand, and India), China, Cuba, Ecuador, France, Greece, Guatemala, Haiti, the Hedjas, Honduras, Italy, Japan, Liberia, Nicaragua, Panama, Peru, Poland, Portugal, Rumania, the Serb-Croat-Slovene State, Siam, Czecho-Slovakia, and Uruguay. To which were to be added by invitation the following powers which had been neutral in the war: the Argentine Republic, Chile, Colombia, Denmark, Holland, Norway, Paraguay, Persia, Salvador, Spain, Sweden, Switzerland, and Venezuela.

Such being the constitution of the league, it is scarcely to be wondered at that its powers were special and limited. It was given a seat at Geneva and a secretariat. It had no powers even to inspect the military preparations of its constituent states, or to instruct