The New York herald., 1921-12-30

the passengers are first placed in
safety.
This is merely reaffirming interna-
tional law, which prevailed in the
European war. but was ruthlessly
violated by the German policy of un-
restricted warfare. After consider
able discussion, during which Ger
man methods Of using submarines
were extensively described, the naval
committee adopted resolution ac-
cepting Mr.. Roots proposal in spirit
and sent it to the drafting room.
The second Root proposition en-
gagged the attention of the delegates
at the afternoon session, and was
still under discussion when the COM
mittee adjourned. The opinion was
expressed by some of the participants
that the second Root proposition if
adopted would nullify the first reso-
luton by rendering 1t superfiuous.
The first resolution prescribes rules
under which submarines shall operate
against merchant ships: the second
declares that they cannot be legally
used against such ships. Under the
terms of the second Root proposal the
signatory Powers agree that the use
of the submarine against merchant
ships would be violation of the regu-
lations prescribed in the first clause.
New international Rule.
This is based on the knowledge that
the very nature of the submarine
makes it difficult to exercise the doc
trine Of visit and search and that 1t
is next to impossible to safeguard the
lives of passengers once they are re-
moved. The Root proposal declares
the prohibition of the use of subma-
rines against merchant ships shall be
universally accepted as the law of ma
tons The leaders in the present con-
terence recognize that it may reaff1rm
international law as in the first Root
proposal; but they also appreciate the
fact that they cannot enforce new
rule of international law without Sc
curing acceptance of 1t by all civilized
nations. It is therefore proposed to
adopt the first Root proposal pending
acceptance of the second clause by all
nations having navies, provided. of
course, it is approved by the present
conference.
The discussion of the second Root
proposition, prohibiting use of sub
marines as commerce destroyers, did
not proceed far enough tonight to in
dicate the exact attitude OF all the
nations. Great Britain and the United
States are agreed that the resolution
should be adopted. France, Italy and
Japan. however, withheld their de-
cision until tomorrow. when the dis
cussion will be resumed.
The antagonistic feeling between
Great Britain and France toward the
unrestricted building of submarines
for which France has declared was In
iected into the proceedings OF the
naval committee to-day. Mr.. Balfour
for England introduced an amend
ment to the second Root proposal
This amendment provides that pend
ing acceptance by civilized nations or
the new international law enunciated
the United States. Great Britain.
France, Italy and Japan shall agree
that in the event of war between any
two of them they shall agree to the
rule that the submarine Is not to be
used as a commerce destroyer.
Great Brftain's Purpose.
Mr.. Balfour's move was interpreted
70 emphasize the determination Of
Great Britain to meet the French
challenge with an unrestricted sub
marine policy, which the British dele
their country by the French position
Having failed to bring about the re-
strictiou of submarine tonnage 1t Is
obviously the purpose of Great Britain
TO use her utmost influence to bring
about an international understanding
which shall (1) first restrict the use
of submarines under prescribed rules,
violation of which shall imply piracy,
and CD to outlaw their use as COM
merce destroyers altogether.
Both the American and British dele
gates realize that rules of interna-
tional law will not necessarily prevent
nations from making Illegal use or
submarines under stress of great
actual or seeming national necessity.
They fully realize that temptation will
be there to make use of this weapon
as the Germans made use of 1t, but
they purpose to align public opinion
throughout the world against such a
doctrine.
1t is confidently believed by the
American and British delegates that
denunciation by so important an in
ternational conference as this one viii
prove a powerful deterrent upon ma
tions contemplating such practice.
That at least was the view expressed
nv the American and British delegates
in the naval committee to-day.
Depressing Eject Manifest.
That the action of France in COM
pelling the shelving Of the Limitation
of submarines exercised depressing
effect on the officials of this Govern
ment and the delegates OF several
other countries in the conference was
manifest on every hand.
The American delegates and Gov
ernment officials declined to make pub
lie comment regarding the causes
lying back of the French action. In
their comments they did not attempt
to conceal their disappointment or
fail to attribute il TO the unsatis-
factory relations between the leaders
Of European countries. What is meant