I hold myself that peace cannot be fully assured on the earth until all the nations are not only members of the League, but are inspired in their national policy with the spirit of the Covenant. Unfortunately, at the present time the active membership of the League is by no means complete. We have to take account of the fact that, however much we may wish that a certain state of mind should be universal and a common ideal inspire all nations, it would constitute a lack of frankness to pretend that such a spirit is universal, if, in fact, it is not so. The truth is that the collective system is at present in a state of evolution and until all nations share equally a desire to cooperate in working that system those Governments who believe in it have an obligation, not only towards one another, but towards their own people, to take those elementary precautions which are the responsibility of every Government.