28 September 1939

MEETINGS OF THE LEAGUE OF NATIONS COUNCIL AND ASSEMBLY

1. On 4th September, 1939, the Secretary General of the League of
Nations [1] informed the Commonwealth Government that the United
Kingdom Government had notified him it would be impossible in
existing circumstances for a British Delegation to reach Geneva
for Council and Assembly meetings called for 8th and 11th
September respectively, and had suggested that the meetings should
be postponed. [2] The Commonwealth Government thereupon informed
the Secretary General through the Australian High Commissioner in
London [3] that it agreed to postponement, and on 7th September
the Commonwealth Government was advised that adjournment of the
meetings had been agreed to by majorities of the Members of the
Council and the Assembly. [4] 2. The United Kingdom Government has
now telegraphed to the Commonwealth Government [5] concerning the
adjourned meetings of the Council and the Assembly and setting out
the following 'considered views' on this subject:

(a) Although it is impracticable to hold meetings at the moment,
they should be held at the latest by the end of this year;

otherwise the League Budget will not be passed and the League's
Organisation, including the International Labour Organisation,
will collapse. Moreover, certain important matters require
consideration, viz., the election of judges of the Permanent Court
of International justice, the election to certain vacancies on the
League Council, and the Report of the Committee on collaboration
with non-Member States.

(b) Serious difficulties will arise if political questions such as
the position in China or Czechoslovakia are discussed.

(c) Discussion by the Council of the Report of the Permanent
Mandates Commission (including the Report on Palestine) would be
highly embarrassing, but there will probably be no effective
opposition to a suggestion that the Council, and consequently the
Assembly, should suspend consideration of the Report until a
suitable opportunity occurs.

(d) Speeches concerning the present conflict with Germany are not
likely to be useful or effective and may be considered by the
Swiss Government prejudicial to Swiss neutrality. If, after
consultation with the Swiss Government, any such statement is
made, it should be in general terms and confined to the main
facts.

(e) The United Kingdom Government is of opinion that the agenda of
the Council and Assembly should be 'confined to the minimum
indispensable items necessary to maintain in existence the
essential shape of the League'. A final decision as to actual
agenda items can be postponed until the Report of the League
Supervisory Commission, which will shortly be available, has been
considered.

The United Kingdom Government adds that it is anxious not to take
action counter to the wishes of the Dominions, and would be
grateful for any observations at the earliest possible
opportunity.

3. Apart from the immediate question raised, the above telegram by
implication necessitates an examination of the future of the
League as at present constituted, and the attitude of the
Commonwealth Government towards it. At the moment the cost of the
League contribution by the Commonwealth Government is A.45,000 per
annum. It is generally accepted that the work of the auxiliary
organization, the International Labour Office, and of the social
and humanitarian organizations of the League are of permanent
value to all nations. States which have withdrawn from the League,
and States which have never acceded to it, such as Germany, Italy
Japan and the United States of America, still co-operate in the
humanitarian activities of the League. Certain of its technical
work in connection with such matters as nutrition, health, and the
Singapore Epidemiological Bureau, are of definite value to
Australia. It is felt that all these functions should continue.

The League is the only organization in being which has the
recognized machinery for international collaboration, and if the
League were to disappear, some other organization would have to be
established for the purposes mentioned.

On the other hand, the League as a political organization, has
lost any prestige and authority it had. [6] Built on the
aspirations and circumstances arising out of the last war, it is
doubtful if its covenant could be used as a basis for a new world
order at the end of the present war. A new political statute to
which all nations could adhere seems a desirable objective towards
which present efforts might be directed.

In the meantime, it is not unreasonable to suggest that all the
political activities of the present League might be suspended. As
a consequence steps should be taken at the earliest possible
opportunity to ensure that the budgetary requirements of the
League are so reduced as to allow of substantial reduction of
contributions by States Members to be made. During the last year
there has been approximately a 20 per cent. reduction in staff. No
undue hardship would be caused by a further reduction, as the
League has large reserve funds and the members of the Secretariat
by the terms of their contracts are entitled to good pensions.

Since, however, it is desirable to investigate possible reactions
of other members of the British Commonwealth of Nations and of
other countries to any proposal that the League's political
activities should be suspended or abandoned, it may be thought
desirable to consult with the High Commissioner in London on this
point before placing the views of the Commonwealth Government
formally before the United Kingdom Government.

Two draft telegrams, therefore, are submitted herewith for
consideration, viz.-
(a) Reply to the Secretary of State for Dominion Affairs [7]
stating that the Commonwealth Government is in general agreement
with the views expressed in his telegram and intimating that the
Commonwealth Government is giving further consideration to the
question of the future functions and activities of the League of
Nations, and
(b) A telegram to Mr Bruce [8] setting out the above-mentioned
views of the Commonwealth Government on the future political
activities of the League and inviting his comments. [9]