"That service is nothing less than this, to add their authority and their power to the authority and force of other nations to guarantee peace and justice throughout the world. Such a settlement cannot now be long postponed. It is right that before it comes this Government should frankly formulate the conditions upon which it would feel justified in asking our people to approve its formal and solemn adherence to a League for Peace. I am here to attempt to state those conditions.

"The present war must first be ended; but we owe it to candor and to a just regard for the opinion of mankind to say that, so far as our partic.i.p.ation in guarantees of future peace is concerned, it makes a great deal of difference in what way and upon what terms it is ended. The treaties and agreements which bring it to an end must embody terms which will create a peace that is worth guaranteeing and preserving, a peace that will win the approval of mankind, not merely a peace that will serve the several interests and immediate aims of the nations engaged. We shall have no voice in determining what those terms shall be, but we shall, I feel sure, have a voice in determining whether they shall be made lasting or not by the guarantees of a universal covenant; and our judgment upon what is fundamental and essential as a condition precedent to permanency should be spoken now, not afterwards when it may be too late.

"No covenant of co-operative peace that does not include the peoples of the New World can suffice to keep the future safe against war; and yet there is only one sort of peace that the peoples of America could join in guaranteeing. The elements of that peace must be elements that engage the confidence and satisfy the principles of the American governments, elements consistent with their political faith and with the practical convictions which the peoples of America have once for all embraced and undertake to defend.

"I do not mean to say that any American government would throw any obstacle in the way of any terms of peace the governments now at war might agree upon, or seek to upset them when made, whatever they might be. I only take it for granted that mere terms of peace between the belligerents will not satisfy even the belligerents themselves. Mere agreements may not make peace secure. It will be absolutely necessary that a force be created as a guarantor of the permanency of the settlement so much greater than the force of any nation now engaged or any alliance hitherto formed or projected that no nation, no probable combination of nations could face or withstand it. If the peace presently to be made is to endure, it must be a peace made secure by the organized major force of mankind!

"The terms of the immediate peace agreed upon will determine whether it is a peace for which such a guarantee can be secured. The question upon which the whole future peace and policy of the world depends is this: Is the present war a struggle for a just and secure peace, or only for a new balance of power? If it be only a struggle for a new balance of power, who will guarantee, who can guarantee, the stable equilibrium of the new arrangement? Only a tranquil Europe can be a stable Europe. There must be, not a balance of power, but a community of power; not organized rivalries, but an organized common peace.

"Fortunately we have received very explicit a.s.surances on this point.

The statesmen of both of the groups of nations now arrayed against one another have said, in terms that could not be misinterpreted, that it was no part of the purpose they had in mind to crush their antagonists. But the implications of these a.s.surances may not be equally clear to all,--may not be the same on both sides of the water. I think it will be serviceable if I attempt to set forth what we understand them to be.

"They imply, first of all, that it must be a peace without victory.

It is not pleasant to say this. I beg that I may be permitted to put my own interpretation upon it and that it may be understood that no other interpretation was in my thought. I am seeking only to face realities and to face them without soft concealments. Victory would mean peace forced upon the loser, a victor's terms imposed upon the vanquished. It would be accepted in humiliation, under duress, at an intolerable sacrifice, and would leave a sting, a resentment, a bitter memory upon which terms of peace would rest, not permanently, but only as upon quicksand. Only a peace between equals can last. Only a peace the very principle of which is equality and a common partic.i.p.ation in a common benefit. The right state of mind, the right feeling between nations, is as necessary for a lasting peace as is the just settlement of vexed questions of territory or of racial and national allegiance.

"The equality of nations upon which peace must be founded if it is to last must be an equality of rights; the guarantees exchanged must neither recognize nor imply a difference between big nations and small, between those that are powerful and those that are weak.

Right must be based upon the common strength, not upon the individual strength, of the nations upon whose concert peace will depend.

Equality of territory or of resources there of course cannot be; nor any other sort of equality not gained in the ordinary peaceful and legitimate development of the peoples themselves. But no one asks or expects anything more than an equality of rights. Mankind is looking now for freedom of life, not for equipoises of power.

"And there is a deeper thing involved than even equality of right among organized nations. No peace can last, or ought to last, which does not recognize and accept the principle that governments derive all their just powers from the consent of the governed, and that no right anywhere exists to hand peoples about from sovereignty to sovereignty as if they were property. I take it for granted, for instance, if I may venture upon a single example, that statesmen everywhere are agreed that there should be a united, independent, and autonomous Poland, and that henceforth inviolable security of life, of worship, and of industrial and social development should be guaranteed to all peoples who have lived hitherto under the power of governments devoted to a faith and purpose hostile to their own.

"I speak of this, not because of any desire to exalt an abstract political principle which has always been held very dear by those who have sought to build up liberty in America, but for the same reason that I have spoken of the other conditions of peace which seem to me clearly indispensable,--because I wish frankly to uncover realities. Any peace which does not recognize and accept this principle will inevitably be upset. It will not rest upon the affections or the convictions of mankind. The ferment of spirit of whole populations will fight subtly and constantly against it, and all the world will sympathize. The world can be at peace only if its life is stable, and there can be no stability where the will is in rebellion, where there is not tranquillity of spirit and a sense of justice, of freedom, and of right.

"So far as practicable, moreover, every great people now struggling towards a full development of its resources and of its powers should be a.s.sured a direct outlet to the great highways of the sea. Where this cannot be done by the cession of territory, it can no doubt be done by the neutralization of direct rights of way under the general guarantee which will a.s.sure the peace itself. With a right comity of arrangement no nation need be shut away from a free access to the open paths of the world's commerce.

"And the paths of the sea must alike in law and in fact be free.

The freedom of the seas is the _sine qua non_ of peace, equality, and co-operation. No doubt a somewhat radical reconsideration of many of the rules of international practice hitherto thought to be established may be necessary in order to make the seas indeed free and common in practically all circ.u.mstances for the use of mankind, but the motive for such changes is convincing and compelling. There can be no trust or intimacy between the peoples of the world without them. The free, constant, unthreatened intercourse of nations is an essential part of the process of peace and of development. It need not be difficult either to define or to secure the freedom of the seas if the governments of the world sincerely desire to come to an agreement concerning it.

"It is a problem closely connected with the limitation of naval armaments and the co-operation of the navies of the world in keeping the seas at once free and safe. And the question of limiting naval armaments opens the wider and perhaps more difficult question of the limitation of armies and of all programmes of military preparation.

Difficult and delicate as these questions are, they must be faced with the utmost candor and decided in a spirit of real accommodation if peace is to come with healing in its wings, and come to stay.

Peace cannot be had without concession and sacrifice. There can be no sense of safety and equality among the nations if great preponderating armaments are henceforth to continue here and there to be built up and maintained. The statesmen of the world must plan for peace and nations must adjust and accommodate their policy to it as they have planned for war and made ready for pitiless contest and rivalry. The question of armaments, whether on land or sea is the most immediately and intensely practical question connected with the future fortunes of nations and of mankind.

"I have spoken upon these great matters without reserve and with the utmost explicitness because it has seemed to me to be necessary if the world's yearning desire for peace was anywhere to find free voice and utterance. Perhaps I am the only person in high authority amongst all the peoples of the world who is at liberty to speak and hold nothing back. I am speaking as an individual, and yet I am speaking also, of course, as the responsible head of a great government, and I feel confident that I have said what the people of the United States would wish me to say. May I not add, that I hope and believe that I am in effect speaking for liberals and friends of humanity in every nation and of every programme of liberty?

I would fain believe that I am speaking for the silent ma.s.s of mankind everywhere who have as yet had no place or opportunity to speak their real hearts out concerning the death and ruin they see to have come already upon the persons and the homes they hold most dear.

"And in holding out the expectation that the people and Government of the United States will join the other civilized nations of the world in guaranteeing the permanence of peace upon such terms as I have named I speak with the greater boldness and confidence because it is clear to every man who can think that there is in this promise no breach in either our traditions or our policy as a nation, but a fulfilment, rather, of all that we have professed or striven for.

"I am proposing, as it were, that the nations should with one accord adopt the doctrine of President Monroe as the doctrine of the world: that no nation should seek to extend its polity over any other nation or people, but that every people should be left free to determine its own polity, its own way of development, unhindered, unthreatened, unafraid, the little along with the great and powerful.

"I am proposing that all nations henceforth avoid entangling alliances which would draw them into compet.i.tions of power, catch them in a net of intrigue and selfish rivalry, and disturb their own affairs with influences intruded from without. There is no entangling alliance in a concert of power. When all unite to act in the same sense and with the same purpose all act in the common interest and are free to live their own lives under a common protection.

"I am proposing government by the consent of the governed; that freedom of the seas which in international conference after conference representatives of the United States have urged with the eloquence of those who are the convinced disciples of liberty; and that moderation of armaments which makes of armies and navies a power for order merely, not an instrument of aggression or of selfish violence.

"These are American principles, American policies. We could stand for no others. And they are also the principles and policies of forward looking men and women everywhere, of every modern nation, of every enlightened community. They are the principles of mankind and must prevail."

In Helfferich's account of these matters, the author charges this appeal of Mr. Wilson's with having favored the Entente side, because in it the conditions laid down are regarded as an acceptable basis for peace. When I returned to Germany the Imperial Chancellor advanced the same argument in my presence; I have heard it repeated again and again at home, and among other places, before the Examination Committee of the National a.s.sembly. It seems to me that this view is rather a Berlin _fable convenue_. There is no word in the doc.u.ment which would justify one in drawing such a conclusion. The President stated simply that he had invited both belligerent parties to define the conditions under which they would make peace, and that the Entente had replied fully to the invitation, whereas the Central Powers had not submitted their terms. He then proceeded to say that in so far as the conditions insisted upon by one side had become known, we had advanced a step nearer to the discussion of peace. If we read the wording of the doc.u.ment without prejudice, and in connection with the views expressed by American statesmen, it becomes abundantly clear that the President regarded the terms laid down by our enemies as maximum conditions, and further, that he believed that we also would submit our maximum terms, and finally come to an agreement by adopting a middle course.

Herr Helfferich makes a similar charge against Wilson's Note of the 18th December, owing to the threats that it contained. But this charge strikes me as being just as gratuitous as the first.

The threats were uttered in London quite as plainly as they were in Berlin. The charge of partiality would have been justified only if the threats had been contained simply in the version of the Note which was sent to Berlin.

Besides, in all Entente countries, it was maintained that both the Note of the 18th December and the appeal of the 22nd January revealed partiality for the Central Powers. The diplomats of the Entente in Washington were quite beside themselves with anger, and plainly revealed their displeasure to Mr. Wilson. I am not concerned now with criticizing the President's efforts for peace in retrospect. The fact that Mr. Wilson became our personal enemy after the 31st January, 1917, and that he consented to the Peace of Versailles, is no proof of the contention that, before the 31st January, 1917, he would have proved a similar failure as a peacemaker.

The President's spiteful censure and treatment of us, both during the war and at Versailles, may be explained psychologically, by the fact that we rejected his efforts as a mediator, and declared the U-boat war.

Mr. Wilson's personal sensitiveness and egocentric nature played an essential part in all the negotiations. When the French and English Press derided the President, in November, 1916, after the first cables had announced the election of Mr. Hughes, Mr. Wilson was deeply mortified. A further improvement in his att.i.tude towards us followed, when we showed that we were favorably disposed to his mediation for peace. The fact that Germany relied on him, stimulated his self-esteem to such an extent that he became, to a certain degree, interested in bringing about a peace that would be satisfactory to Germany. Nor should the interest he showed in this matter be underrated. I openly confess that it was also my ambition to a.s.sist in restoring peace, in order to save our country from the catastrophe that threatened to overtake it, and to spare the world any further suffering. To this day I am still convinced that, had the Germans skilfully conducted their share in these peace negotiations, we should have achieved all we wanted to achieve. The happy personal relations which, in that case, would have prevailed between Mr.

Wilson and the German representatives at the Peace Conference, would, in view of the element of chance, which is so conspicuous at such congresses, have turned the scales in our favor to a surprising extent. On the other hand, I was, and am still, of the opinion that the peace which would have been settled at that time, would not have satisfied the public opinion of the moment in Germany.

But I attached no importance whatever to this consideration. He who practises politics in the interests of his native country, must be ready at any moment to plunge like Curtius into the abyss, in order to save his nation. This, however, is what made Curtius immortal. Besides, in a few years, if not sooner, the German people would surely have realized that "Peace without Victory" const.i.tuted a victory for Germany.

After the 31st January, 1917, Mr. Wilson was incapable of an impartial att.i.tude towards Germany. He saw red whenever he thought of the Imperial Government, and his repugnance against it knew no bounds.

Even to-day the bitter feeling still rankles within him, that the German Government deprived him of the glory of being the premier political personage on the world's stage. It goes without saying, that at Versailles the Entente exploited with a vengeance both this att.i.tude on the part of the President, and his peculiar idiosyncrasies. Intercepted wireless messages from Paris had made us aware of the fact that the original American interpretation of the fourteen points entirely agreed with our own; and thus we in Berlin were filled, not without reason, with certain hopes of America's help. But Mr. Wilson, who would have acted more wisely had he never gone to Versailles, sat there alone, facing three European statesmen, for whom he was no match. They played upon his weakest point, by suggesting to him the view that, in addition to the German Government, the German people, who were guilty, too, should also be punished, and that the obligation to punish the guilty took precedence of the fourteen points. Had Mr. Wilson, after January, 1917, really come to the definite conclusion that he held the proofs of Germany's war guilt and l.u.s.t of world empire?

Whereas, theretofore he had considered the question of war guilt impartially, he now agreed that the Germans would have been able to obtain a reasonable peace through his mediation, but had rejected it and chosen to declare the U-boat war instead, in order to achieve a complete victory. Consequently, the Germans had not been concerned all this time with bringing about a reasonable peace, but with gaining the empire of the world, a conclusion from which their war guilt was also to be inferred. It was as the result of these ideas that Mr. Wilson preached the crusade against militaristic and autocratic Germany, who wanted to achieve the mastery of the world.

Only by means of the belief in a crusade could the peace-loving American people be prevailed upon to wage war.

Regarding the effect upon the Senate of the President's appeal, I sent the following telegram to the Foreign Office:

CIPHER TELEGRAM

"Washington, January 23rd, 1917.

"Wilson's appeal has met with general approval in Senate, and is regarded as a further energetic step in peace movement. Only our wildest opponents have again attacked President as a pro-German.

Almost throughout views expressed about appeal contain the wish that Central Powers will also state their peace terms now. House also begged me urgently that this might be done, either publicly or secretly. Then Wilson would immediately propose Peace Conference; President also seems inclined to conclude the Bryan Treaty with us. Time is now, alas, too short, otherwise treaty might perhaps have helped us to avert war.

"As result of proposed unrestricted U-boat war, peace movement will presumably come to an end. Nevertheless, it is possible on the other hand that Wilson will make redoubled efforts for peace, if a time-limit be allowed. I should like to leave no stone unturned in order to avert war with United States. As I understand the situation, our refusal to submit our peace terms arises out of the fear that they may appear too moderate to public opinion in Germany. Would it perhaps be possible, before opening the unrestricted U-boat war, to state the peace terms, which we should have submitted at the Peace Conference we proposed, and to add, that, in view of our enemies' insolent rejection of our scheme, we could no longer abide by these moderate terms? And then we might hint that, as victors, we should demand an independent Ireland. A declaration of this sort would win over public opinion on this side, as far as this is possible, and might perhaps also satisfy public opinion in Germany."

The day after the President had read his appeal to the Senate, I received a telegram inviting me to visit Mr. House in New York.

During the interview the Colonel read me a memorandum of Mr. Wilson's, in which the President formally offered us to act as mediator, in order to bring about a peace by arrangement. The memorandum left me in no doubt whatever that Mr. Wilson was certain of being able to achieve this end. With the utmost possible speed I sent the following telegrams about my interview with Mr. House, by three different routes to Berlin, on the a.s.sumption that it was impossible for us to abide by our former resolve:

(1) CIPHER WIRELESS TELEGRAM

(Most urgent)

"Washington, 27th January, 1917.

"After having had very important conference request most urgently postponement till my next two messages received. Suggest reply by wireless."

(2) CIPHER TELEGRAM

"Washington, 26th January, 1917.

"Wilson offered officially, but in first place privately, to mediate for peace, on basis of his appeal to Senate, that means without interference with territorial terms of peace. Wilson's simultaneous request for communication of our peace terms not to be regarded as private.

"I am wiring with full particulars through State Department. To begin U-boat war without previous negotiations regarding above proposals would among _other things_ put us seriously in the wrong, and owing to Wilson's personal sensitiveness, would make prevention of rupture quite impossible."

(3) CIPHER TELEGRAM