Subsequently the President instructed me to have a treaty drafted in accordance with a memorandum which he sent me. This was done by Dr.

James Brown Scott and the draft was approved and prepared for signature.

On the morning of June 28, the same day on which the Treaty of Versailles was signed, the protective treaty with France was signed at the President's residence in the Place des Etats Unis by M. Clemenceau and M. Pichon for the French Republic and by President Wilson and myself for the United States, Mr. Lloyd George and Mr. Balfour signing at the same time a similar treaty for Great Britain. Though disagreeing with the policy of the President in regard to this special treaty it would have been futile for me to have refused to accept the full powers issued to me on June 27 or to have declined to follow the directions to act as a plenipotentiary in signing the doc.u.ment. Such a course would not have prevented Mr. Wilson from entering into the defensive alliance with France and Great Britain and might have actually delayed the peace.

Feeling strongly the supreme necessity of ending the existing state of war as soon as possible I did not consider that I would be justified in refusing to act as the formal agent of the President or in disobeying his instructions as such agent. In view of the long delay in ratification of the Treaty of the Peace, I have since doubted whether I acted wisely. But at the time I was convinced that the right course was the one which I followed.

In spite of the fact that my judgment was contrary to the President's as to the wisdom of negotiating this treaty because I considered the policy of doing so bad from the standpoint of national interests and of doubtful expediency in view of the almost certain rejection of it by the United States Senate and of its probable effect on any plan for general disarmament, I was not entirely satisfied because I could not disregard the fact that an argument could be made in its favor which was not without force.

The United States entered the war to check the progress of the autocratic imperialism of Germany. That purpose became generally recognized before the victory was won. In making peace it was deemed, therefore, a matter of first importance to make impossible a revival of the aggressive spirit and ambitious designs of Germany. The prevailing bitterness against France because of the territorial cessions and the reparations demanded by the victor would naturally cause the German people to seek future opportunity to be revenged. With a population almost, if not quite, double that of the French Republic, Germany would be a constant menace to the nation which had suffered so terribly in the past by reason of the imperialistic spirit prevalent in the German Empire. The fear of that menace strongly influenced the French policies during the negotiations at Paris. In fact it was hard to avoid the feeling that this fear dominated the conduct of the French delegates and the att.i.tude of their Government. They demanded much, and recognizing the probable effect of their demands on the German people sought to obtain special protection in case their vanquished enemy attempted in the future to dispossess them by force of the land which he had been compelled to surrender or attempted to make them restore the indemnity paid.

Whether France could have avoided the danger of German attack in the future by lessening her demands, however just they might be, is neither here nor there. It makes little practical difference how that question is answered. The important fact is that the settlements in favor of France under the Treaty were of a nature which made the continuance of peace between the two nations doubtful if Germany possessed the ability to regain her military strength and if nothing was done to prevent her from using it. In these circ.u.mstances a special protective treaty seemed a practical way to check the conversion of the revengeful spirit of the Germans into another war of invasion.

However valid this argument in favor of the two treaties of a.s.sistance, and though my personal sympathy for France inclined me to satisfy her wishes, my judgment, as an American Commissioner, was that American interests and the traditional policies of the United States were against this alliance. Possibly the President recognized the force of the argument in favor of the treaty and valued it so highly that he considered it decisive. Knowing, however, his general att.i.tude toward French demands and his confidence in the effectiveness of the guaranty in the Covenant, I believe that the controlling reason for promising the alliance and negotiating the treaty was his conviction that it was necessary to make this concession to the French in order to secure their support for the Covenant and to check the disposition in certain quarters to make the League of Nations essentially a military coalition under a general international staff organized and controlled by the French.

There were those who favored the mutual guaranty in the Covenant, but who strongly opposed the separate treaty with France. Their objection was that, in view of the general guaranty, the treaty of a.s.sistance was superfluous, or, if it were considered necessary, then it discredited the Covenant's guaranty. The argument was logical and difficult to controvert. It was the one taken by delegates of the smaller nations who relied on the general guaranty to protect their countries from future aggressions on the part of their powerful neighbors. If the guaranty of the Covenant was sufficient protection for them, they declared that it ought to be sufficient for France. If France doubted its sufficiency, how could they be content with it?

Since my own judgment was against any form of guaranty imposing upon the United States either a legal or a moral obligation to employ coercive measures under certain conditions arising in international affairs, I could not conscientiously support the idea of the French treaty. This further departure from America's historic policy caused me to accept President Wilson's "guidance and direction ... with increasing reluctance," as he aptly expressed it in his letter of February 11, 1920. We did not agree, we could not agree, since our points of view were so much at variance.

Yet, in spite of the divergence of our views as to the negotiations which constantly increased and became more and more p.r.o.nounced during the six months at Paris, our personal relations continued unchanged; at least there was no outward evidence of the actual breach which existed.

As there never had been the personal intimacy between the President and myself, such as existed in the case of Colonel House and a few others of his advisers, and as our intercourse had always been more or less formal in character, it was easier to continue the official relations that had previously prevailed. I presume that Mr. Wilson felt, as I did, that it would create an embarra.s.sing situation in the negotiations if there was an open rupture between us or if my commission was withdrawn or surrendered and I returned to the United States before the Treaty of Peace was signed. The effect, too, upon the situation in the Senate would be to strengthen the opposition to the President's purposes and furnish his personal, as well as his political, enemies with new grounds for attacking him.

I think, however, that our reasons for avoiding a public break in our official relations were different. The President undoubtedly believed that such an event would jeopardize the acceptance of the Covenant by the United States Senate in view of the hostility to it which had already developed and which was supplemented by the bitter animosity to him personally which was undisguised. On my part, the chief reason for leaving the situation undisturbed was that I was fully convinced that my withdrawal from the American Commission would seriously delay the restoration of peace, possibly in the signature of the Treaty at Paris and certainly in its ratification at Washington. Considering that the time had pa.s.sed to make an attempt to change Mr. Wilson's views on any fundamental principle, and believing it a duty to place no obstacle in the way of the signature and ratification of the Treaty of Peace with Germany, I felt that there was no course for me as a representative of the United States other than to obey the President's orders however strong my personal inclination might be to refuse to follow a line of action which seemed to me wrong in principle and unwise in policy.

In view of the subsequent contest between the President and the opposition Senators over the Treaty of Versailles, resulting in its non-ratification and the consequent delay in the restoration of a state of peace between the United States and Germany, my failure at Paris to decline to follow the President may be open to criticism, if not to censure. But it can hardly be considered just to pa.s.s judgment on my conduct by what occurred after the signature of the Treaty unless what would occur was a foregone conclusion, and at that time it was not even suggested that the Treaty would fail of ratification. The decision had to be made under the conditions and expectations which then prevailed.

Unquestionably there was on June 28, 1919, a common belief that the President would compose his differences with a sufficient number of the Republican Senators to obtain the necessary consent of two thirds of the Senate to the ratification of the Treaty, and that the delay in senatorial action would be brief. I personally believed that that would be the result, although Mr. Wilson's experience in Washington in February and the rigid att.i.tude, which he then a.s.sumed, might have been a warning as to the future. Seeing the situation as I did, no man would have been willing to imperil immediate ratification by resigning as Commissioner on the ground that he was opposed to the President's policies. A return to peace was at stake, and peace was the supreme need of the world, the universal appeal of all peoples. I could not conscientiously a.s.sume the responsibility of placing any obstacle in the way of a return to peace at the earliest possible moment. It would have been to do the very thing which I condemned in the President when he prevented an early signing of the peace by insisting on the acceptance of the Covenant of the League of Nations as a condition precedent.

Whatever the consequence of my action would have been, whether it resulted in delay or in defeat of ratification, I should have felt guilty of having prevented an immediate peace which from the first seemed to me vitally important to all nations. Personal feelings and even personal beliefs were insufficient to excuse such action.

CHAPTER XVI

LACK OF AN AMERICAN PROGRAMME

Having reviewed the radical differences between the President and myself in regard to the League of Nations and the inclusion of the Covenant in the Treaty of Peace with Germany, it is necessary to revert to the early days of the negotiations at Paris in order to explain the divergence of our views as to the necessity of a definite programme for the American Commission to direct it in its work and to guide its members in their intercourse with the delegates of other countries.

If the President had a programme, other than the general principles and the few territorial settlements included in his Fourteen Points, and the generalities contained in his "subsequent addresses," he did not show a copy of the programme to the Commissioners or advise them of its contents. The natural conclusion was that he had never worked out in detail the application of his announced principles or put into concrete form the specific settlements which he had declared ought to be in the terms of peace. The definition of the principles, the interpretation of the policies, and the detailing of the provisions regarding territorial settlements were not apparently attempted by Mr. Wilson. They were in large measure left uncertain by the phrases in which they were delivered. Without authoritative explanation, interpretation, or application to actual facts they formed incomplete and inadequate instructions to Commissioners who were authorized "to negotiate peace."

An examination of the familiar Fourteen Points uttered by the President in his address of January 8, 1918, will indicate the character of the declarations, which may be, by reason of their thought and expression, termed "Wilsonian" (Appendix IV, p. 314). The first five Points are announcements of principle which should govern the peace negotiations.

The succeeding eight Points refer to territorial adjustments, but make no attempt to define actual boundaries, so essential in conducting negotiations regarding territory. The Fourteenth Point relates to the formation of "a general a.s.sociation of the nations for the purpose of affording mutual guarantees of political independence and territorial integrity to great and small nations alike."

It is hardly worth while to say that the Fourteen Points and the four principles declared in the address of February 11, 1918 (Appendix V), do not const.i.tute a sufficient programme for negotiators. Manifestly they are too indefinite in specific application. They were never intended for that purpose when they were proclaimed. They might have formed a general basis for the preparation of instructions for peace commissioners, but they omitted too many of the essentials to be considered actual instructions, while the lack of definite terms to-be included in a treaty further deprived them of that character. Such important and practical subjects as reparations, financial arrangements, the use and control of waterways, and other questions of a like nature, are not even mentioned. As a general statement of the bases of peace the Fourteen Points and subsequent declarations probably served a useful purpose, though some critics would deny it, but as a working programme for the negotiation of a treaty they were inadequate, if not wholly useless.

Believing in the autumn of 1918 that the end of the war was approaching and a.s.suming that the American plenipotentiaries to the Peace Conference would have to be furnished with detailed written instructions as to the terms of the treaty to be signed, I prepared on September 21, 1918, a memorandum of my views as to the territorial settlements which would form, not instructions, but a guide in the drafting of instructions for the American Commissioners. At the time I had no intimation that the President purposed to be present in person at the peace table and had not even thought of such a possibility. The memorandum, which follows, was written with the sole purpose of being ready to draft definite instructions which could be submitted to the President when the time came to prepare for the negotiation of the peace. The memorandum follows:

"The present Russian situation, which is unspeakably horrible and which seems beyond present hope of betterment, presents new problems to be solved at the peace table.

"The Pan-Germans now have in shattered and impotent Russia the opportunity to develop an alternative or supplemental scheme to their 'Mittel-Europa' project. German domination over Southern Russia would offer as advantageous, if not a more advantageous, route to the Persian Gulf than through the turbulent Balkans and unreliable Turkey. If both routes, north and south of the Black Sea, could be controlled, the Pan-Germans would have gained more than they dreamed of obtaining. I believe, however, that Bulgaria fears the Germans and will be disposed to resist German domination possibly to the extent of making a separate peace with the Allies. Nevertheless, if the Germans could obtain the route north of the Black Sea, they would with reason consider the war a successful venture because it would give them the opportunity to rebuild the imperial power and to carry out the Prussian ambition of world-mastery.

"The treaty of peace must not leave Germany in possession directly or indirectly of either of these routes to the Orient. There must be territorial barriers erected to prevent that Empire from ever being able by political or economic penetration to become dominant in those regions.

"With this in view I would state the essentials for a stable peace as follows, though I do so in the most tentative way because conditions may change materially. These 'essentials' relate to territory and waters, and do not deal with military protection.

"_First._ The complete abrogation or denouncement of the Brest-Litovsk Treaty and all treaties relating in any way to Russian territory or commerce; and also the same action as to the Treaty of Bucharest. This applies to all treaties made by the German Empire or Germany's allies.

"_Second._ The Baltic Provinces of Lithuania, Latvia, and Esthonia should be autonomous states of a Russian Confederation.

"_Third_. Finland raises a different question and it should be carefully considered whether it should not be an independent state.

"_Fourth_. An independent Poland, composed of Polish provinces of Russia, Prussia, and Austria, and in possession of the port of Danzig.

"_Fifth_. An independent state, either single or federal composed of Bohemia, Slovakia, and Moravia (and possibly a portion of Silesia) and possessing an international right of way by land or water to a free port.

"_Sixth_. The Ukraine to be a state of the Russian Confederation, to which should be annexed that portion of the Austro-Hungarian Empire in which the Ruthenians predominate.

"_Seventh_. Roumania, in addition to her former territory, should ultimately be given sovereignty over Bessarabia, Transylvania, and the upper portion of the Dobrudja, leaving the central mouth of the Danube as the boundary of Bulgaria, or else the northern half. (As to the boundary there is doubt.)

"_Eighth_. The territories in which the Jugo-Slavs predominate, namely Croatia, Slavonia, Dalmatia, Bosnia, and Herzegovina, should be united with Serbia and Montenegro forming a single or a federal state. The sovereignty over Trieste or some other port should be later settled in drawing a boundary line between the new state and Italy. My present view is that there should be a good Jugo-Slav port.

"_Ninth_. Hungary should be separated from Austria and possess rights of free navigation of the Danube.

"_Tenth_. Restoration to Italy of all the Italian provinces of Austria. Italy's territory to extend along the northern Adriatic sh.o.r.e to the Jugo-Slav boundary. Certain ports on the eastern side of the Adriatic should be considered as possible naval bases of Italy.

(This last is doubtful.)

"_Eleventh._ Reduction of Austria to the ancient boundaries and t.i.tle of the Archduchy of Austria. Incorporation of Archduchy in the Imperial German Confederation. Austrian outlet to the sea would be like that of Baden and Saxony through German ports on the North Sea and the Baltic.

"_Twelfth_. The boundaries of Bulgaria, Serbia, and Greece to follow in general those established after the First Balkan War, though Bulgaria should surrender to Greece more of the Aegean coast and obtain the southern half only of the Dobrudja (or else as far as the Danube) and the Turkish territory up to the district surrounding Constantinople, to be subsequently decided upon.

"_Thirteenth_. Albania to be under Italian or Serbian sovereignty or incorporated in the Jugo-Slav Confederation.

"_Fourteenth._ Greece to obtain more of the Aegean littoral at the expense of Bulgaria, the Greek-inhabited islands adjacent to Asia Minor and possibly certain ports and adjoining territory in Asia Minor.

"_Fifteenth._ The Ottoman Empire to be reduced to Anatolia and have no possessions in Europe. (This requires consideration.)

"_Sixteenth_. Constantinople to be erected into an international protectorate surrounded by a land zone to allow for expansion of population. The form of government to be determined upon by an international commission or by one Government acting as the mandatory of the Powers. The commission or mandatory to have the regulation and control of the navigation of the Dardanelles and Bosphorus as international waterways.

"_Seventeenth._ Armenia and Syria to be erected into protectorates of such Government or Governments as seems expedient from a domestic as well as an international point of view; the guaranty being that both countries will be given self-government as soon as possible and that an 'Open-Door' policy as to commerce and industrial development will be rigidly observed.

"_Eighteenth._ Palestine to be an autonomous state under a general international protectorate or under the protectorate of a Power designated to act as the mandatory of the Powers.

"_Nineteenth._ Arabia to receive careful consideration as to the full or partial sovereignty of the state or states established.

"_Twentieth_. Great Britain to have the sovereignty of Egypt, or a full protectorate over it.

"_Twenty-first._ Persia to be freed from all treaties establishing spheres of influence. Rigid application of the 'Open-Door' policy in regard to commercial and industrial development.

"_Twenty-second._ All Alsace-Lorraine to be restored to France without conditions.

"_Twenty-third._ Belgium to be restored to full sovereignty.