Treaty limits did not prevent naval preparation

The Washington system limited particular ship categories while leaving states free to prepare for future growth. Escalator clauses and the possibility of treaty collapse gave governments reason to preserve yard capacity, mobilization plans, and supporting infrastructure. Political decisions to avoid spending, often while seeking prestige at minimum cost, created many of the later weaknesses. Different domestic pressures led several signatory states to neglect the same capabilities. The relevant question is what governments still could have funded within the treaty.