However, there is at least grave doubt as to all this. The provisions of Article 16 of the Protocol and of Article 17 of the Covenant rather indicate that a State which pays no attention to an invitation to become an _ad hoc_ Member or Signatory takes its chances as they exist _dehors_ the Covenant or the Protocol. I think myself that this is the better view. To suppose otherwise would be to suppose that States outside the League (or the Protocol) had all the advantages of States within, and none of the burdens or obligations, a difficult thing to envisage. So, on the whole, I conclude that an attack by Japan upon the United States because of a "domestic" or other question would permit the Members of the League, both under the Covenant and under the Protocol, to be interested onlookers and nothing more. [1] _Supra_, p. 13. [2] Longmans, Green & Co., 1917. [3] A subsequent treaty between Denmark and the Principal Allied Powers confirmed the cession. A. J. I. L. Supplement 1923, Vol. XVII, p. 42. [4] Article 16. [5] The discussions in the Assembly of Article 16 of the Covenant show that the word "nationals" is to be read as "residents." [6] See Moore's Digest, Vol. VII, pp. 135-142. [7] That is, in the sense that there would to some extent be known and applicable rules of conduct for all States. [8] Innumerable questions of difficulty as to private contracts might be suggested; but I am thinking here of relations between States. {97} CHAPTER XVI. THE DISARMAMENT CONFERENCE. Under Article 17 of the Protocol, a Disarmament Conference to which all States of the world are to be invited is to meet at Geneva on June 15th, 1925. It is made the duty of the Council to draw up a general programme for reduction and limitation of armaments to be laid before the Conference and to be communicated to the various Governments not later than March 15th, 1925. The provision to this effect says that the Council shall give due regard to the undertakings of the Protocol regarding sanctions, but the preparation of this general programme is in substantial accord with Article 8 of the Covenant. The Assembly adopted a quite elaborate resolution[1] regarding this Conference. This resolution makes seven or eight suggestions in general terms for the agenda of the Disarmament Conference. While the resolution was adopted, it was pointed out in the discussion that the Council has a perfectly free hand in the matter and that the requests of the Assembly regarding the agenda were nothing more than requests. There is perhaps no occasion to go over them in detail, but one or two points may be mentioned.