Intended Audience - Americans
Message/Meaning - image conveys other countries tying Americans "hands" with the League of Nations because America wouldn't join the League. It depicts the league isn't good for America.
Historical Context - America is seen as a strong nation. Wilson developed idea of League of Nations in 1918 to help freedom of commerce and travel, open diplomacy
Interpretation or Meaning of image - Conflicting interests of different nations; don't join the League of Nations because "we would not have our politics distracted and embittered by the diversion of other lands" - Wilson