f o r e i g n e r e n d e a v o u r i n g t o u n d e r s t a n d t h e t r u ec h a r a c t e r of t h e B r i t i s h E m p i r e by t h e a i d of t h i sf p r m u l a a l o n e might be tempted, t o t h i n k t h a t i t wasd e v i s e d r a t h e r t o make m u t u a l i n t e r f e r e n c e i m p o s s i b l et h a n t o make m u t u a l c o o p e r a t i o n e a s y
This paragraph explains that outsiders might see this system as preventing interference rather than encouraging cooperation. Because each Dominion is fully independent, there is no central authority forcing unity. The structure prioritizes sovereignty and equality, even if that makes cooperation less automatic.