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. 17

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.

at the conference of Brussels, New Zealand, Queenstown and Victoria took part in addition to their sovereign, Great Britain. Again in 1890 Great Britain was represented not only by her own delegates but also by those of Canada, British India, Australia, Cape of Good Hope, Natal, Newfoundland and New South Wales. At the International Sanitary conference of Paris in 1903 Egypt was represented, although the fact that she is next door to independent, in theory, and is bound by special sanitary rules, makes her appearance less remarkable.

The two conference series considered may be defined as semi-diplomatic at the very least. The other six international organs are more clearly technical, but of them only the Universal Postal Union is absolutely so. It is not the governments themselves but their postal administrations which constitute it, as is instanced in the case of the United States by the fact that the Postmaster General accredits to its conferences. Adequately to discuss non-sovereign membership in those organizations 19 is too great a task for the present purpose, but the following summary will show their status:

UNIVERSAL POSTAL BUREAU. The general convention of Rome says:

Art. 27. The following, for the application of Articles 22 (Bureau maintenance), 25 and 26 (conferences and intercommunication between members), are considered as forming a single country or a single administration: 1. The German protectorates in Africa; 2. The German protectorates in Asia and Australasia; 3. The Empire of British India; 4. The Dominion of Canada; 5. The Commonwealth of Australia with British New Guinea; 6. All the British colonies and protectorates in South Africa; 7. All the other British colonies together; 8. All the insular possessions of the United States of America, comprising specifically the Hawaiian Islands, the Philippine Islands and the islands of Porto Rico and Guam; 9. All the Danish colonies; 10. All the Spanish colonies; 11. Algeria; 12. The French colonies and protectorates in Indo-China; 13. All the other French colonies; 14. All the Italian colonies; 15. All the Dutch colonies; 16. The Portuguese colonies in Africa; 17. All the other Portuguese colonies. 20

19 See "Non-Sovereign Representation in Public International Organs" by Denys P. Myers, Deuxième Congrés mondial des Associations internationales, 753-802.

20 Forty separate colonies or combinations of colonies are members of the Universal Postal Union, according to the last available annual report. This would indicate considerable change in the list, though another and probable explanation is furnished by Art. 18 of the réglement which provides for dependencies which are considered as forming part of their métropoles.

Art. 18 of the convention says: "Each country has one vote" in the triennial congress. Presumably the choice of the word country (pays) instead of state (état) in this connection is deliberate.

UNIVERSAL TELEGRAPHIC BUREAU. Australia, South African Union and British India, each, class 1, 25 units; Dutch Indies, class 3, 15 units; Egypt, French Indo-China, Morocco, and New Zealand, each, class 4, 10 units; Bosnia-Herzegovina, Madagascar, Portuguese colonies, Senegal and Tunisia, each, class 5, 5 units; Belgian Kongo, Ceylon, Crete, Eritrea, Iceland, New Caledonia, class 6, 3 units.

Art. 16 of the convention says: "In the deliberations (of the conference), each administration has the right to one vote, under reserve, if it acts for different administrations of the same government, that the request has been made by the diplomatic channel of the government of the country where the conference is to assemble, before the date fixed for its opening, and that each of them has a special and separate representation."

WEIGHTS AND MEASURES. In this union Austria and Hungary are separately represented, as were Sweden and Norway before their formal separation. British India and Tunisia participate in the conferences, in which Baron von Wrede was an honorary member in 1883 and Prof. A. A. Michelson of Chicago in 1905. It is also customary to issue invitations to the conferences in the case of experts designated by their fitness to advise.

As to the bureau of the union, Art. 20 of the regulations says in part:

If a state which has adhered to the convention declares its desire to extend the benefit to one or more of its colonies which are not autonomous, the figure of the population of the said colonies will be added to that of the state for the calculation of the scale of contributions.

When an autonomous colony desires to adhere to the convention, it will be considered, so far as concerns its entry into this convention, following the decision of the mother country, either as a dependent thereof or as a contracting state. 21

INTERNATIONAL INSTITUTE OF AGRICULTURE. At the Rome conference in 1905 which resulted in the formation of this organization, Egypt was represented by its own delegate, while an Italian delegate repre

21 Annuaire de la Vie internationale, 1908–1909, 320.