INTERNATIONAL RELATIONS. 109 



not only to exchange ideas, but to lay the foundation for an actual 

 treaty. Since 1865 there has been a TelegrajDhic Union. Why not 

 also have a Postal Union ? As a consequence of these negotiations, 

 which were interrupted by the Franco-Prussian War, and subsequently 

 resumed, Switzerland convoked at Berne the delegates of the European 

 Governments and of the United States on the 1st of September, 1873. 

 Different powers, principal among which were France and Russia, 

 having manifested an intention to abstain from the conference, it was 

 adjourned. It reconvened September 15, 1874 ; and included dele- 

 gates from all the European powders, from Egypt, and the United 

 States. Notwithstanding the numerous difficulties met with, among 

 which may be mentioned the differences resulting from the wide sepa- 

 ration of some of the countries, the enormous inequality of their terri- 

 tories, a great diversity of views on economic and financial points, and, 

 finally, the power, always strong, of existing arrangements, a Postal 

 Union was finally formed, after fifteen sessions of the convention. 



The delegates were many of them general directors of the postal 

 departments of their respective countries. Those of Germany played a 

 preponderating role in the Congress, because it was from them came 

 the initiative of the reunion, and the discussion bore largely on their 

 project ; the Belgian delegates also took an active part. The delegates 

 of France and Great Britain were, on the contrary, not very active in 

 the formation of the Union. France, for divers reasons, could not view 

 the project with favor ; she was principally kept back by fear of the 

 consequences to her finances that would follow the signing of the 

 treaty, so terrible was the strain on her exchequer of the trying events 

 of 1870-'71. Her delegates took no part in the discussions, nor in the 

 voting on the different provisions of the treaty ; but the pressure of 

 public opinion compelled her to sign the treaty which was concluded 

 between the powers on the 9th of October, 1874. 



Besides the treaty, the delegates also signed a detailed regulation 

 for the execution of the treaty. There is this difference between the 

 two acts : the first can not be modified or amended but by the action 

 of representatives fortified with the full powers of their Governments ; 

 while the other can be agreed upon between the administrators of the 

 various postal departments. The first is a diplomatic act, the second 

 an administrative arrangement. The same course was followed at St. 

 Petersburg, in 1875, in establishing the Telegraphic Union. 



The Union is not limited to the countries signing the Berne treaty. 

 That treaty provided for the accession of new members ; and since 

 1874 other nations than the original contracting parties have joined it, 

 and in the near future we may see a universal postal association, em- 

 bracing the entire world. 



Turkey, on account of its peculiar international situation, is distin- 

 guished in this treaty from the other contracting parties, inasmuch 

 as its foreign correspondence is made through foreign offices. Thus 



