The implementation of policy, even if it is initiated by the President and carried out by his diplomats and generals, can only be put into effect with the co-operation of Congress, if for no other reason than its cost in dollars which only the legislators are in a position to provide. Members lose elections and are replaced by new legislators who must learn it all for themselves. Members die. Their parties decline. They are "gerrymandered" out of their districts. With the Versailles Treaty failing to muster a two-thirds' majority of the Senate, the United States declined to become one of the founding members of the new League of Nations. Many Members of Congress harboured doubts about the validity of the 1975 Helsinki Declaration which, as it did not constitute a treaty, was not submitted to the Senate for ratification.