ignored communications from the League, or tried to bypass it through direct contacts with member nations. By 1922, though, the U.S., through its consul in Geneva, was dealing with the League, and though the U.S. refused to participate in any meeting with political implications, it sent observers to sessions on technical and humanitarian matters. By the time Harding took office, there were calls from foreign governments for reduction of the massive war debt owed to the United States, and the German government sought to reduce the reparations that it was required to pay. The U.S. refused to consider any multilateral settlement. Harding sought passage of a plan proposed by Mellon to give the administration broad authority to reduce war debts in negotiation, but Congress, in 1922, passed a more restrictive bill. Hughes negotiated an agreement for Britain to pay off its war debt over 62 years at low interest, reducing the present value of the obligations. This agreement, approved by Congress in 1923, served as a model for negotiations with other nations. Talks with Germany on reduction of reparations payments resulted in the Dawes Plan of 1924. A pressing issue not resolved by Wilson was U.S. policy towards Bolshevik Russia. The U.S. had been among the nations that sent troops there after the Russian Revolution. Afterwards, Wilson refused to recognize the Russian SFSR. Harding's Commerce Secretary Hoover, with considerable experience in Russian affairs, took the lead on policy. When famine struck Russia in 1921, Hoover had the American Relief Administration, which he had headed, negotiate with the Russians to provide aid. Leaders of the U.S.S.R. (established in 1922) hoped in vain that the agreement would lead to recognition. Hoover supported trade with the Soviets, fearing U.S. companies would be frozen out of the Soviet market, but Hughes opposed this, and the matter was not resolved under Harding's presidency. Disarmament Harding urged disarmament and lower defense costs during the campaign, but it had not been a major issue. He gave a speech to a joint session of Congress in April 1921, setting out his legislative priorities. Among the few foreign policy matters he mentioned was disarmament; he said the government could not "be unmindful of the call for reduced expenditure" on defense. Idaho Senator William Borah had proposed a conference at which the major naval powers, the U.S., Britain, and Japan, would agree to cuts in their fleets. Harding concurred, and