POSSIBLE DEVELOPMENT.

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"The maximum aeronautical industry possible for a nation to build up under ideal conditions is determined by (1) the extent to which manufacturing in general is carried on; (2) by the character of articles manufactured; (3) by the manufacturing methods in general-that is, whether articles are manufactured by machinery or by hand; (4) the supply and availability of essential raw materials. In the manufacture of many articles the raw materials used and the manufacturing methods are similar to those employed in the manufacture of aircraft and accessories. The amount of this class of manufacturing carried on in any country is an essential factor in estimating the ability of a nation to produce aircraft.

66

The ability to expand an existing aeronautical industry rapidly enough to meet war conditions is one of the most important elements of air power. This may be estimated by (1) the number of individuals skilled in the manufacture of air craft and accessories; (2) the number of individuals whose training in industries similar to the aeronautical industry forms a basis for learning readily and rapidly the special problems encountered in the manufacture of aircraft and accessories; (3) the size and condition of the existing aeronautical industries and the size and number of manufacturing concerns that can readily be converted to the manufacture of aircraft and accessories; (4) the existence of a definite program previously determined upon and the extent to which orders have been previously placed in anticipation of an emergency with a consequent perfection of plans; (5) the amount and state of availability of the essential raw materials; (6) the quantity of available jigs, tools, dies, and production drawings for going into quantity production of standard equipment.

"46. (4) The amount and character of aeronautical activity outside the military establishment has been exhaustively discussed under the limitation of civil and commercial aircraft. It has been shown that this is intimately bound up with (1) (2) and (3), as above, and that, with the exception of lighter-thanair craft of above a certain size, it is not practicable to limit it except perhaps by limiting the amount of subsidies to commercial aviation, a method which has been shown to be difficult of application and to be otherwise objectionable. It has also been shown that the limitation of lighter-than-air craft would have a disastrous effect on aviation.

"47. (5) Existing establishment of aircraft used for military purposes and the reserve.

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The size of the organized reserve will depend upon the size of the military establishment and the rate at which the members of the military establishment are trained and returned to

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FINAL CONCLUSION.

civil pursuits. Any reduction in the permanent peace-time establishment will carry with it a consequent reduction in organized and trained reserves. There is, however, a type of personnel whose civil pursuits fit them for immediate service in the air establishment. This class is made up by those engaged in commercial and civil aeronautics and industrial pursuits which require the same trades and basic knowledge and experience as is required in the operation and maintenance of military aircraft. This class will not be seriously affected by any change in the military establishment.

"48. Technical considerations have led the committee to the conclusion that the limitation of the fifth element, namely, the size and efficiency of peace-time air establishments for military purposes (including the active establishment and the organized reserve), although theoretically possible, is not practicable. The committee also desires to lay stress on the fact that, even if such limitation was practicable, it would not prevent the use of air power in war, but would only operate to give greater comparative importance to the other elements of air power which can not be limited for the reasons given in the report.

66 FINAL CONCLUSION.

"Number and character.-The committee is of the opinion that it is not practicable to impose any effective limitations upon the numbers or characteristics of aircraft, either commercial or military, excepting in the single case of lighter-than-air craft.

"Use. The committee is of the opinion that the use of aircraft in war should be governed by the rules of warfare as adapted to aircraft by a further conference which should be held at a later date.

Respectfully submitted by committee on aircraft.

"For the United States of America:

CONSIDERATION OF REPORT.

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"NOTE.-The Italian representative believes and desires to place on record that one way in which it would be possible to limit the air power of a nation would be by placing a limit upon the number of pilots in the permanent military establishment and consequently agrees with the general reasoning of the report in so far as is not contrary to this opinion.

The chairman said that the report was now before the committee for such action as might be deemed advisable.

Mr. Sarraut said that the report would have to be translated, and the reading of it alone would take some time; the subject was not on the agenda. He believed that he voiced the opinion of his colleagues on the committee as well as his own in saying that under the conditions it would be advisable to afford time for the necessary examination of the contents of the report.

The chairman said that, in view of the very short time there had been for the examination of the voluminous report, he thought that abundant time should be given for its consideration; he had taken it up that morning merely because other subjects had been disposed of, and he thought that even a general statement might aid the committee in making progress with its work. He was not aware that the committee was prepared to take up another matter at that time, and he therefore suggested that, if that was agreeable to the committee, adjournment be taken until Monday.

Lord Lee asked whether the chairman would give some indication of what subject would be discussed after the report on aircraft; from present indications the consideration of this report would take only a short time, and the British delegation would like to be prepared for what was to follow.

The chairman said that three subcommittees had been appointed, one on gas, one on aircraft, and one on rules for the conduct of war. The committee had dealt with the report on gas and adopted a resolution; it had had before it the report on aircraft. He understood that the subcommittee on rules of war believed that it would be impracticable, at this conference, to do more than suggest that these should be carefully examined and made the subject of consideration at another conference. If that was the sense of the conference, and no extended examination of the question was to be made, he supposed that the next order of business would be the consideration of the report of the details of the proposed naval treaty, with respect to all the matters which were then engaging the attention of the naval experts and the legal experts. He was unable to say whether that would be ready for the next session or not. He assumed that it was the next topic

to be taken up, if it was decided not to discuss rules for the conduct of war.

Mr. Balfour said that he had listened with great satisfaction to Mr. Hughes's observations on the report. As concerned a general revision of the rules of warfare, he said he was afraid he must discourage any attempt to deal with that tremendous subject. He was in some doubt as to whether it came within the list of subjects which his Government had authorized him to discuss; but however this might be, he thought that all his colleagues would be wise to limit their ambitions in this direction as closely as he did.

Sir Robert Borden said he had been much impressed with the suggestion of Lord Lee on a previous occasion that, should another great war break out, questions raised by the illegal use of submarines might arise concerning the use of aircraft in connection with the search, seizure, and capture of merchant vessels. Sir Robert Borden merely wished to remind his colleagues of this point without even suggesting that it should be considered by this conference. But the subject was, in one sense, connected with the conditions under which merchant ships might be ordered to stop and might be searched, seized, and eventually captured. This might be done by aircraft in the next war; in the last war it had been governed by the rules as they were then understood, which had not been conformed to by one nation. If no principles were formulated, the powers might be confronted with the same problems with respect to aircraft.

Lord Lee said that he was well aware of the importance of the point raised by Sir Robert Borden and that, in fact, it was the point he himself had brought to the notice of the conference. He supposed, however, that it would be in order for it to come under the second of the final conclusions of the report on the limitation of aircraft. If this conclusion should be accepted by the committee, as Lord Lee assumed it probably would be, then the matter would go over to the further conference suggested therein—a course which he would not oppose.

Senator Schanzer said he desired to add a few words in the same connection as those of Sir Robert Borden. The conclusion reached by the subcommittee of experts was that the conference should not attempt to fix rules for aircraft, and that this question should be referred to a future conference. He had at the present time no formal proposition to present, but he thought the matter ought to be discussed. He was entirely in accord with Mr. Balfour, that the conference should not attempt to pass on the vast subject of the laws of war, as time did not permit of this; but it was impossible not to consider the fact that certain laws previously made such as those contained in Mr. Root's resolutions re

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221

garding submarines-had been reaffirmed at this conference; in the same resolutions the powers represented on the committee had stigmatized the abuses of the submarine and had establ shed sanctions. It was impossible to forget the excesses committed by military means by the bombardment of open towns in Italy during the recent war. This had been forbidden by The Hague convention and, just as the committee had thought it necessary to condemn excesses committed in connection with submarine warfare, would it not be helpful to condemn the excesses committed in connection with the bombing of open towns? He did not know whether it was proper to suggest such a proposition at that time, but he thought that there should be a discussion of the matter for the purpose of ascertaining whether a resolution forbidding the bombardment from the air of open towns and villages could not be formulated.

The chairman said that if it were proposed to discuss the question of rules of war, except possibly in a very limited sphere, the committee would enter upon a field which, he assumed, would give it a great deal of concern and would require prolonged study and discussion. He did not suggest that the committee should not enter upon that field if the delegates desired that these subjects should be taken up. He supposed that the report on aircraft could be dealt with, in its main features, in a comparatively short time. The report was voluminous, but that very fact led to an easy comprehension of the recommendations. If it was desired, in connection with the use of aircraft-for example, in relation to merchant ships and undefended towns-to bring forward specific resolutions, there would be opportunity to do so. He suggested, however, that the committee adjourn until Monday at 11 o'clock, and that it then proceed with the discussion of the aircraft report. If anything else was ready, when that had been disposed of, the committee would take it up.

The committee then adjourned until Monday, January 9, 1922, at 11 o'clck a. m.

EIGHTEENTH MEETING-MONDAY, JANUARY 9, 1922, 11 A. M.

PRESENT.

United States.-Mr. Hughes, Senator Lodge, Mr. Root, Senator Underwood, Col. Roosevelt, Admiral Coontz. Accompanied by Mr. Wright, Mr. Clark.

British Empire.-Mr. Balfour, Lord Lee, Sir Auckland Geddes, Rear Admiral Sir E. Chatfield, Sir Robert Borden (for Canada), Senator Pearce (for Australia), Mr. Sastri (for India). Accompanied by Sir Maurice Hankey, Air Marshal Higgins, Capt. Domvile, Mr. Malkin, Mr. Flint, Mr. Christie.