Judged by its inability to agree upon a convention on territorial waters, as the substance of things hoped for, the Conference for the Codification of International Law was a failure. Good may come of the Conference. It may have been a necessary preliminary stage in a very long and difficult process. Nevertheless, the fact remains that its purpose was to agree upon a convention upon territorial waters and it failed of its purpose. Usually the cause of the ill-success of a conference is lack of preparation. This failure cannot be ascribed to lack of preparation. It is unnecessary to rehearse the antecedent steps. Several years had been devoted to preparation. Governments had agreed that the subject of territorial waters was suitable and ripe for codification. In addition to the work done by the Committee of Experts and by the Preparatory Committee, the governments had answered voluminous questionnaires and had made observations upon detailed schedules of points from which had been prepared the bases of discussion. All of this work had been completed and in print months before the Conference met. Apparently nothing was left undone by the agencies of the League of Nations in order that the various governments might have ample opportunity for examination and study of the questions involved. And, it may be added, the observations of the governments were for the most part responsive and illuminating.