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installations, strategic areas, and contingents of armed forces as the Council, in consultation with the Member concerned, shall determine to be necessary. For this purpose, the Council shall be advised by a General Security and Armaments Commission whose composition and functions are set forth in a Protocol annexed to this Charter. In considering the contributions of a Member to a joint effort for the maintenance or restoration of peace, the Council shall take account of its geographical position, regional or special obligations, and relative resources. Freedom of passage shall be afforded by Members to all forces operating in behalf of The United Nations.

5. Members of The United Nations agree to cooperate in executing such economic, commercial or financial measures against a state threatening, or committing a breach of, the peace as the Council or the General Conference shall determine to be necessary. They further agree to support one another in resisting measures resulting from such action, and in equalizing excessive losses incurred thereby.

6. Members of The United Nations undertake to maintain their armaments at the lowest point consistent with their internal order and with the effective discharge of their respective obligations for maintaining international security. An appropriate system of armaments regulation shall be established by the Council, with the advice of the General Security and Armaments Commission, and in consultation with the Members of The United Nations. Account shall be taken of the special responsibilities for security assumed by Members of the Council with indeterminate tenure, and the collective responsibility assumed by all.

7. Limitations and regulations established under paragraph 6 shall be enforced by a system of inspection carried out by an Armaments Inspection Commission under the direction of the General Security and Armaments Commission. Members shall accord this Commission every facility for the effective discharge of its responsibility.

8. Any action by the Council under this Article shall require a two-thirds majority vote of the Members present and voting, including three-fourths of the Members with indeterminate tenure.

Article 9
HUMAN RIGHTS

The Members of The United Nations agree to give legislative effect to the Declaration of Human Rights annexed to this Charter. Measures of enforcement shall be applied by the administrative and judicial authorities of each Member without discrimination as to nationality, language, race, political opinion, or religious belief.

Article 10

ECONOMIC AND SOCIAL COOPERATION

1. The United Nations shall assist its Members in developing collaboration in economic and social matters. For this purpose the General Conference is authorized to establish or to bring within the framework of the United Nations appropriate technical organizations, including organizations in the fields of economics and finance, labor, food and agriculture, communications, health, social welfare, and education and culture.

2. The General Conference, taking into account the recommendations of each organization, shall determine the general policies of technical organizations of The United Nations.

3. The Council, with the advice and assistance of the Administrative Committee provided for in Article 5, shall coordinate the activities of the technical organizations.

4. Each technical organization shall have a statute which shall be consistent with this Charter.

Article 11

TERRITORIAL ADMINISTRATION

1. The Council shall establish a system of administration for territories which may be placed under the authority of The United Nations by treaty or other agreement.

2. The Council shall establish by separate instruments for each such territory the terms and conditions under which it shall be administered. All instruments shall include provisions to assure:

(a) the education and cultural advancement of the inhabitants;

(b) freedom of conscience and speech;

(c) protection of the inhabitants from exploitation;

(d) promotion of economic and social welfare;

(e) establishment and maintenance of non-discriminatory commercial treatment;

(f) promotion of equality of economic opportunity consistent with the safeguarding of the interests of the local inhabitants.

3. The Council, on behalf of The United Nations, shall administer these territories either directly or through such authorities as it may recognize or establish. 4. To assist the Council in exercising its powers of administration and supervision, commissions shall be established whose number, composition and powers shall be defined by the Council. Each commission shall have the right to conduct inspections in territories under its supervision to ensure that the policies of the Council are being carried out, and it shall make periodic reports and recommendations to the Council.

5. The Council shall be the final authority in all matters relating to modification or termination of the provisions of this Article. It shall also decide to what degree any of the provisions shall be modified for special reasons of international security.

6. Each Member of The United Nations undertakes to observe in the other non-self-governing territories under its control the same standards of administration as are required by the terms of this Article.

Article 12

REGIONAL ARRANGEMENTS

Nothing in this Charter shall affect regional arrangements, agreements, or associations, now existing or which may be entered into between Members, which are consistent with the obligations assumed under this Charter.

Article 13

FINANCIAL PROVISIONS

1. The expenses of The United Nations shall be borne by the Members on a basis of apportionment determined by the General Conference with the approval of the Council.

2. Regulations for the financial administration of The United Nations, including provision for the payment of the travel expenses of official representatives

to meetings of the General Conference and the Council, shall be approved by the General Conference.

3. A Treasurer, appointed by the Council and confirmed by the General Conference, shall receive and administer all funds of The United Nations.

Article 14

REGISTRATION OF TREATIES

Every treaty and agreement entered into by the Members of The United Nations shall be registered with the General Administrative Office for publication. The texts of the instruments so registered shall be regarded by The United Nations as authentic.

Article 15

RATIFICATION AND BINDING FORCE

1. This Charter shall be ratified, and shall come into force when ratifications have been deposited with the President of the United States of America by 25 states, including those Members of the Council with indeterminate tenure. It shall remain in force indefinitely.

2. The authorities of each Member shall take such measures as may be necessary to give full force and effect to the provisions of this Charter.

3. The Members agree to take such steps as may be required to obtain their release from any obligations inconsistent with the undertakings of this Charter; and they further agree that they will not hereafter enter into any treaty or agreement inconsistent with these undertakings.

Article 16

WITHDRAWAL FROM MEMBERSHIP

1. Membership in The United Nations shall be for a period of ten years, and shall continue for successive periods of ten years unless a Member shall, not less than two years before the expiration of a ten-year period, give notice to the President of the General Conference of its intention to withdraw.

2. Withdrawal from membership shall not release a state from any obligations whatsoever which it has incurred while a Member of The United Nations, nor shall it affect the binding force of this Charter for the remaining Members.

Article 17
AMENDMENTS

Amendments to this Charter shall be adopted by the General Conference and be submitted forthwith by the [Director General] to the Members of The United Nations. They shall come into force if ratified within five years by four-fifths of the number of Members of The United Nations at the time of the adoption of the amendment, including all Members of the Council with indeterminate tenure.

TRANSITORY ARTICLE

1. The first meetings of the General Conference and of the Council of The United Nations shall be called by the President of the United States of America, within six months after this Charter enters into force, at such time and place as he may designate.

2. The Council shall determine the time and manner in which provisional agencies shall be superseded by permanent organs of The United Nations.

[EXTRACT FROM THE ACCOMPANYING COMMENTARIES] 28

INTRODUCTORY COMMENT

The Charter of the United Nations was drafted under a directive calling for a brief and simple instrument which, in the light of past experience, current discussions and political feasibility, would serve to establish the permanent international machinery necessary to perform the essential functions of international organization.

The minimum functions which it was agreed require action on an international plane, fall under seven heads: (1) security against aggression and war, (2) control of armaments, (3) political settlement of disputes, (4) judicial settlement of disputes, (5) promotion of economic and social cooperation, (6) administration of certain dependent areas, and (7) safeguarding of certain basic human rights.

Extensive studies were made of the experience of the League of Nations and of other international agencies which had the same or similar objects. Similarly the current official and unofficial views in the various countries were analyzed to find some least common denominators, and the discussions and views of the various Subcommittees were examined.

Within this frame of experience and current discussion the various views were subjected, as far as possible, to the test of practical and political feasibility. The document which emerged is not a radical departure from national and international experience. Two, and perhaps only two, alternatives in the basic form of organization were open: (1) the cooperative form, or (2) the federal form. The latter, while urged by many prominent individuals and groups, was rejected by the drafting committee as politically not feasible. The various gov.ernments and peoples are not believed to be ready for an international federal government even if it were theoretically desirable. Yet the name of the organization and the provisions of the Charter itself provide a basis for steady growth toward closer relationships and even toward more unified forms of world cooperation.

The Charter of The United Nations is, however, based on the principle of free cooperation among states. But this cooperation must be given a reasonable chance to be effective, especially in matters of security. The projected organization, accordingly, differs from the League of Nations in several basic respects: (1) it gives the great powers exceptional and immediate responsibility for security, and for this purpose gives them a permanent preponderance in the membership and vote control of the Council, (2) it enables action both in the Conference and the Council to be instituted with less than complete unanimity, (3) it provides for more effective international control of armaments, and (4) it provides for a more effective system of administration and supervision of certain dependent territories.

Like the League, it is based on the conception of universal membership, although it may be established by the United Nations and the nations presently associated with them.

This Charter differs from the plan projected in the International Organization Subcommittee in differentiating the respective powers of the Conference and the Council, and making the full representative Conference an important policy

28 The commentaries on each paragraph of the draft Charter were extensive and are not printed here. They were completed by Sept. 7, 1943, which is the date of the Introductory Comment above.

making body while providing for the necessary control in the Council. It was considered preferable to vest all powers of an executive character in a single organ, the Council, including security powers and to organize it for effective action.

Another plan, whereby only machinery would be established, without commitments or undertakings, in order to make it possible to get early and quick acceptance, was examined but felt to be inadequate for this purpose.

The Charter envisages an organization on the universal pattern but does not preclude regional developments-existing or future provided such development are consistent with the universal organization.

As to the functional organizations, the Charter is based on the principle of integrating the several technical and other bodies within its general policy and budgetary framework while leaving ample room for autonomous action by these constituent bodies. Since many of the technical bodies may be in existence before The United Nations itself it is assumed that their statutes will provide for the necessary relation with the universal body when established.

The Charter in its present form is designed for a permanent organization to be established sometime after the end of hostilities. However, with some adjustments, it could be used for an organization to begin at any time, with the wartime United Nations as a nucleus. If it were instituted before the end of hostilities, an additional transitory article would be necessary, giving priority to all war-time emergency agencies until such time as their functions were transferred to one of the organs of the permanent organization—The United Nations.

APPENDIX 24 October 25, 1943

[Research Staff Memorandum]

PS AND ES MEMBERS OF COUNTRY COMMITTEES

In the interest of escaping some minor confusions that have arisen the following should be carefully noted.

1. The name of the committees is in each case the Inter-Divisional Country Committee on (fill in the name of the country or the area concerned). Both PS and ES should be represented on all country committees. 2. The purposes of the committees are:

a. Careful study of all current developments in the country area with special attention:

(1) to the problems arising in sequence calling for policy decision by
this Government,

(2) to commitments of policy toward the country or area, and
(3) to the objectives and commitments of the country or countries

of an area.

b. Critical examination of pertinent H documents in order to make them representative of the exact thought of the experts from the divisions represented on the country committees. (H stands for our policy summary handbook, and there should be such a handbook on each country or area. The handbooks of course contain many individual documents, corresponding to the different problems concerning the country or the area. Whether or not cur

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