the menace of superior force was insufficient to prevent
aggressive acts.

As far as I am able to judge from subsequently acquired knowledge,
President Wilson at the time he received my letter of December 23 had a
typewritten draft of the document which after certain amendments he
later laid before the American Commissioners and which he had printed
with a few verbal changes under the title of "The Covenant." In order to
understand the two forms of guaranty which he had for consideration
after he received my letter, I quote the article relating to it, which
appears in the first printed draft of the Covenant.

III

"The Contracting Powers unite in guaranteeing to each other political
independence and territorial integrity; but it is understood between
them that such territorial readjustments, if any, as may in the
future become necessary by reasons of changes in present racial
conditions and aspirations or present social and political
relationships, pursuant to the principle of self-determination, and
also such territorial readjustments as may in the judgment of three
fourths of the Delegates be demanded by the welfare and manifest
interest of the people concerned, may be effected if agreeable to
those peoples; and that territorial changes may involve material
compensation. The Contracting Powers accept without reservation the
principle that the peace of the world is superior in importance to
every question of political jurisdiction or boundary."

It seems needless to comment upon the involved language and the
uncertainty of meaning of this article wherein it provided for