Pacific bases can mask auxiliary gaps

If Article 19 of the Washington Naval Treaty had not existed, would the United States have built a strong base in Guam or the Philippines?

Probably yes, although the base might have become a political substitute for funding auxiliaries and fast tankers.

A strong base in Guam or the Philippines would have been attractive because it looked active and was comparatively cheap. It could also give policymakers a reason to avoid funding a less visible auxiliary fleet, including fast tankers and mobile supply ships. The fixed base would extend American reach in one place. It would still leave a gap in the logistics needed to move and sustain the fleet elsewhere.