"territorial readjustments" of which there appeared to be two classes,
one dependent on "self-determination," the other on the judgment of the
Body of Delegates of the League. In view of the possible reasons which
might be advanced for changes in territory and allegiance, justification
for an appeal to the guarantors was by no means certain. If this article
had been before me when the letter of December 23 was written, I might
have gone much further in opposition to the President's plan for
stabilizing peace in the world on the ground that a guaranty so
conditioned would cause rather than prevent international discord.

Though without knowledge of the exact terms of the President's proposed
guaranty, I did not feel for the reason stated that I could delay longer
in submitting my views to the President. There was not time to work out
a complete and well-digested plan for a League, but I had prepared in
the rough several articles for discussion which related to the
organization, and which might be incorporated in the organic agreement
which I then assumed would be a separate document from the treaty
restoring peace. While unwilling to lay these articles before the
President until they were more carefully drafted, I enclosed in my
letter the following as indicative of the character of the organization
which it seemed to me would form a simple and practical agency common to
all nations:

"_Suggestions as to an International Council For Discussion_

"_December_ 21, 1918

"An International Council of the League of Nations is hereby
constituted, which shall be the channel for communication between the
members of the League, and the agent for common action.