I need not dwell further on the difficulties of the details. Any one who reads the Disarmament Treaty drawn up at the Washington Conference will appreciate something of their nature; but, looking at the matter from the larger point of view, there is a question of real statesmanship involved. The possible field to be covered by a general conference on disarmament cannot perhaps be limited; but the extent to which the first discussion shall go will determine its success or failure. If it attempts to go too far, that will be fatal; if, on the other hand, the attempt is only to go a short distance now and to continue on the road further later on, the Conference may be a success, despite the fact that it will meet with the criticisms of those who want to do everything at once.
The question of a permanent, or rather of a recurrent, Conference on Disarmament, as proposed by the so-called American Plan,[[6]] is one that is inevitably bound to come up at any such Conference, for whatever the Conference does or whatever it tries to do, it will have to leave much undone. Many questions will remain open, many changes of the future will not be foreseen, and those who meet in the Conference will see when they end their work that they have only begun it.
It is also to be noted again that the Conference is to fix the period within which the plan of reduction which it adopts is to be carried out. If within that time the plan is not carried out, the Council is to make a declaration rendering the Protocol null and void. The Conference is also to lay down the grounds on which the Council may make such a declaration.
In other words, the Protocol itself is to depend wholly upon the work of the Conference; it is to the Conference that the whole responsibility is transferred. If the Conference does not adopt the plan, and then if that plan is not carried out[[7]] within the time and on the conditions that the Conference declares, the Protocol falls.
Never, I venture to say, has any important treaty ever been drawn up depending upon a more impressive condition subsequent.