Enough has already been said upon the conditions of international trade which are requisite to the project of a League of Peoples. Invidious protective tariffs, “favoured nation” clauses, preferential arrangements of any kind must work injuriously to the process of integration. That these devices are also injurious to the nations which utilise them is of less moment to us at this point than their effect in creating rivalry and antagonism. To secure a genuine and universal reciprocity in trade should be one of the aims of the league, as it will also be one of the primary conditions of its consolidation and growth.
VIII
But may not this concentration of authority in the hands of an international body create a kind of super-state? In any case this danger is very remote at the present time; but it is no less necessary that at its inception conditions should be agreed upon which will safeguard it from such a tendency. This might be done in one of two ways. It might, for instance, be ordained that the machinery of the League should not be unitary, but that the commissions requisite for various purposes should be independently appointed by the contracting nations and derive their mandate directly from them; and in the event of overlapping, the commissions concerned might adjust the matter by joint session. The other alternative is that there should be a supreme international authority, but that it should be subject to a “Barrier Act.”[[52]] This would provide that the power and the enactments of the authority should be perpetually subject to the revision of the contracting parties; and it would be impossible for the international body to take any material step outside the limits of its mandate and consequently to extend its sphere of authority without the general consent of the nations concerned. Perhaps both these conditions are necessary—the direct appointment of commissions and the Barrier Act; and in any case a general agreement should be reached beforehand as to the limits and nature of the functions to be vested in the international body. It is plain, of course, that in any event the League must stand upon consent. It will be a voluntary association of free peoples; and its maintenance will depend upon the impossibility of its ever accruing any authority sufficient to prevent the withdrawal of any nation which might be so minded. It is questionable whether once the League had come into operation, any nation could afford to withdraw; but no power should be veiled in it to coerce a nation to remain in the League against its will. The basis of free and voluntary association is the only guarantee of genuine and fruitful solidarity.
[52]. The Barrier Act was a Presbyterian device against hasty innovation. “Every proposal which contemplates a material change in the constitution of the Church or in its laws respecting doctrine, discipline, government, or worship, after being considered and accepted by the Synod, must be sent down to Presbyteries for their approval or disapproval, before it can become the law of the Church.” (The Book of Order of the Presbyterian Church of England, p. 50.) Just so, the Federal Amendment to the Constitution of the United States relative to prohibition had to be referred to the several states for endorsement before final ratification.
This, however, raises the question of whether the League should be armed with powers to enforce its decisions. That it should be endowed with a definite judicial authority goes without saying; but is it to be supported by a police organisation? In the present state of opinion it appears likely that some kind of international police force will be attached to the League; but there are some reasons for doubting whether such a provision is necessary or likely to be useful. In this connection the interesting point has been raised that the Constitution of the United States established a court to adjudicate upon disputes between the States, with no provision of force to compel a State to accept the Court’s decision, but depending upon public opinion alone to validate the judgment. Had there been any attempt on the part of those who framed the Constitution to invest the federal authority with power to coerce a recalcitrant state, it is likely that the Union would never have come into existence; but the Union was founded and survived despite the absence of coercive sanctions, and the venture of faith has been vindicated by the growth and unity of the American people.[[53]] There is a real danger lest the institution of a police force at the disposal of the League might prove a disruptive factor; and the question should be carefully canvassed before a decision is reached. In any case it is safe to say that it should be the business of the League to work towards the ultimate elimination of coercive sanctions.
[53]. Technically, in the Civil War, force was used to prevent the secession of the South; but what the North really fought for was the abolition of slavery.
But meantime is there any method by which the League could effectually deal with recalcitrant nations other than direct physical compulsion? A good deal has been said about the use of economic boycott; but it requires some casuistry to distinguish successfully between military coercion and economic boycott. Certainly in intention both devices come within the same category, and in result they may work out in curiously identical fashion. Constraint by starvation bears in effect a strong family resemblance to constraint by destructive force majeure. At the same time it is evident that a nation which chooses to put itself “in contumaciam” must in some way or another pay the penalty of its offence. The Bank Clearing House deals with an offending and impenitent member by the simple process of exclusion. In the League of Nations, a nation in the same position should be dealt with in the same fashion; it should understand that its persistency in the offending attitude carries with it exclusion from the comity of nations. It should, that is, be compelled to accept the responsibility of imposing the punishment upon itself. It has put itself outside the pale; and no injustice is involved in accepting its deed at its obvious face value and letting it remain where it has chosen to place itself until such time as it elects to think better of its action. It is doubtful whether any constituent nation would think it worth while to indulge in a contumacy which automatically led to excommunication.
It would take us too far afield from our purpose to discuss the details of the organisation required by a League of Nations. Questions of constitution and representation, the problems involved in the adhesion to the League of vast composite aggregates like the British Empire, and of the place of some of the minute independent states that still remain in the world,—these and many more matters will have to be faced in the institution of the League. Here, however, it has been our business merely to point out that some such device as a League of Peoples is entirely necessary to the further development of the democratic principle, and to pass in brief review certain of the conditions which the League must satisfy, and certain of the functions it must assume, if it is to be consistent with and helpful to the realisation of the ideal of democracy. A League to enforce peace may be no more than the Holy Alliance redivivus, an unholy alliance in defence of the status quo.[[54]] What is needed is a League to guarantee freedom and to promote fellowship, and given such a League peace will largely look after itself. It is not sufficiently recognised that to make peace an object in itself is to condemn the world to virtual stagnation. The only peace, like the only happiness which is permanent, is that which is a bye-product. Permanent peace will come from a voluntary association of peoples co-operating on a basis of reciprocity; and such a consummation is not so far off as it would at fist sight appear. The reciprocity which has been established between the Allied peoples in the war will have to be continued long after the war. Their needs are so vast that they will only escape death and want by close co-operation. Moreover, the agreement of the Allies reported in the press as these pages are written to send food to their late enemies, is an asset of the utmost importance to the creation of the League. And once the League is properly afoot, we may live in the hope of the day which William Blake foretold:
“In my exchanges, every land shall walk,
And mine in every land;