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Such a view would be entirely erroneous. In a matter of such importance there should be no possibility of any ambiguity or misunderstanding. It is clear that, in the event of war, the whole British Empire would be in a state of hostility against the enemy. It is quite another question as to whether the Dominions should or should not furnish naval or military contingents outside their territories. That is a matter which they can decide for themselves; but they should clearly understand that no component part of the British Empire would be considered as a neutral by the belligerent against whom we were contending. The abstention of the Dominions from furnishing naval or military assistance would not in any way safeguard them from the risks attendant upon a state of war, and would not exempt them from any hostile measures which our adversary might find it advantageous or possible to take against them. On the other hand, were any one of the Dominions to proclaim on the outbreak of a war that it desired to take no part in the war, this would be tantamount to a secession from the Empire. It would be well that the Dominions should realise the above facts,

It has been suggested that the matter might be allowed to rest, as it might alarmı or inconvenience the Dominions were the point raised at the approaching conference. Would it be prudent to leave the question in a nebulous state, and to permit erroneous impressions to prevail? The question is not au academic one, nor does it relate merely to an exposition of certain doctrines of international law. It is of practical importance. For instance, inter alia, it is proposed to seek the concurrence of the Dominion Governments with the policy to be adopted towards neutral and enemy ships in time of war. This policy requires that certain measures should be taken immediately on the outbreak of a war, and these measures would undoubtedly constitute hostile acts. Would it be prudent for us to remain in uncertainty as to whether, when the critical moment arrived, such measures would be applied by the Dominion Governments? Delay or hesitation in their application would be of great advantage to the enemy. Moreover, it is a question whether it would be wise to communicate to the Dominion Governments confidential details of these measures unless it was clearly understood that, apart from direct naval and military aid, these Governments fully recognised that on war being proclaimed they would also be automatically in a state of hostility as against the belligerent enemy, and that they were prepared to share the responsibilities necessarily arising from such a state.

Foreign Office, February 24, 1911.

A. N.

III.

MINUTE BY THE FIRST LORD OF THE ADMIRALTY.

AT the Defence Conference in 1909, the representatives of the Dominions claimed that any naval or military forces which they might maintain should not be obliged to co-operate in any war in which this country was involved unless such co-operation was approved by the respective Dominion Governments. The Conference admitted the claim, and upon the faith of this admission the Admiralty have been able to make a naval arrangement with the Commonwealth Government of great advantage to this country. The broad principles upon which the Admiralty are seeking to establish this arrangement will be found summarised in paragraph 11 of C.I.D. paper 67-C.

2. I agree with Sir Arthur Nicolson that "were any one of the Dominions to proclaim on the outbreak of a war that it desired to take no part in the be tantamount to a secession from the Empire.” We know from our experience at the this would war, Conference in 1909 that the Dominions will insist on retaining their liberty to decide whether their naval forces shall or shall not join in hostilities in any particular war, but I understand from Sir A. Nicolson's paper that he wishes that the claim of the Dominions which was allowed in 1909 should be re-discussed at the coming Conference. The object in view is to obtain a new arrangement under which the Dominions would be at liberty to withhold their naval force from co-operation with us outside their territorial waters, but would be bound to undertake warlike action within those waters.

3. An agreement upon such a basis would not be as satisfactory as that which we are endeavouring to negotiate with Australia. If a Dominion is to be at liberty, when admittedly at war, to retain its naval forces under its own command and in its own waters, the result will be neither in the true defensive interests of the Dominion, nor satisfactory to us. The objectionable nature of such an arrangement was, if I am not

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