Their ideas affect action through the same process of "filtration" by which the government digests the ideas of other groups. "We don't have a raw general will which simply makes itself felt," Chayes noted. "Ideas must make their way through a complicated system of institutions."

Turning to his work on United Nations financial problems, Chayes said that the brief which his office submitted last week to the International Court of Justice contends that the Charter binds members to pay special assessments including those for the Congo operation. The brief also maintains that failure to pay special assessments for two years should cause the loss of a nation's vote in the General Assembly under Article 19 of the Charter.

Besides helping the United Nations financially, a favorable decision by the Court would have "great constitutional and structural significance for the Court itself," Chayes asserted.

He compared the Court's present condition with that of the United States Supreme Court during its first 15 years and maintained that, like the Supreme Court, it will grow in stature and support only by dealing with fundamental constitutional issues.

Fears of Court

When the Court does this, Chayes said he believes the "abstract fears" which preserve the Connally Amendment will disappear. Chayes maintained that allowing the Court to show its competence is a more hopeful way of getting the Amendment repealed than a direct assault.

Chayes declared that the United Nations bond plan is a way of reducing the proportion of the financial burden for the Congo operation assumed by the United States. Including assessments and voluntary contributions, the United States has paid about 45 per cent of the U.N.'s Congo expenses so far, he pointed out.

"Repayment of the principle and interest on the bonds," he explained, "will be assessed according to the ordinary scale of contributions of which we pay only about one-third. Although the United States will buy about half of the bond issue, it is obviously better to be a 50 per cent creditor than an almost 50 per cent contributor."