"However, giving this character to the League may save it from being merely an agreeable dream. As the repository of international controversies requiring long and careful consideration it may live and be useful.

"My impression is that the princ.i.p.al sponsors for the League are searching through the numerous disputes which are clogging the wheels of the Conference, seizing upon every one which can possibly be referred, and heaping them on the League of Nations to give it standing as a useful and necessary adjunct to the Treaty.

"At least that is an interesting view of what is taking place and opens a wide field for speculation as to the future of the League and the verdict which history will render as to its origin, its nature, and its real value."

I quote this memorandum because it gives my thoughts at the time concerning the process of weaving the League into the terms of peace as the President had threatened to do. I thought then that it had a double purpose, to give a practical reason for the existence of the League and to make certain the ratification of the Covenant by the Senate. No fact has since developed which has induced me to change my opinion.

In consequence of the functions which were added to the League, the character of the League itself underwent a change. Instead of an agency created solely for the prevention of international wars, it was converted into an agency to carry out the terms of peace. Its idealistic conception was subordinated to the materialistic purpose of confirming to the victorious nations the rewards of victory. It is true that during the long struggle between the President and the Senate on the question of ratification there was in the debates a general return to the original purpose of the League by both the proponents and opponents of the Covenant, but that fact in no way affects the truth of the a.s.sertion that, in order to save the League of Nations, its character was changed by extending its powers and duties as a common agent of the nations which had triumphed over the Central Alliance.

The day before the Treaty of Peace was delivered to the German plenipotentiaries (May 6) its terms induced me to write a note ent.i.tled "The Greatest Loss Caused by the War," referring to the loss of idealism to the world. In that note I wrote of the League of Nations as follows:

"Even the measure of idealism, with which the League of Nations was at the first impregnated, has, under the influence and intrigue of ambitious statesmen of the Old World, been supplanted by an open recognition that force and selfishness are primary elements in international co-operation. The League has succ.u.mbed to this reversion to a cynical materialism. It is no longer a creature of idealism. Its very source and reason have been dried up and have almost disappeared. The danger is that it will become a bulwark of the old order, a check upon all efforts to bring man again under the influence which he has lost."

The President, in the addresses which he afterward made in advocacy of the Covenant and of ratification of the Treaty, indicated clearly the wide divergence of opinion between us as to the character of the League provided for in the Treaty. I do not remember that the subject was directly discussed by us, but I certainly took no pains to hide my misgivings as to the place it would have in the international relations of the future. However, as Mr. Wilson knew that I disapproved of the theory and basic principles of the organization, especially the recognition of the oligarchy of the Five Powers, he could not but realize that I considered that idealism had given place to political expediency in order to secure for the Covenant the support of the powerful nations represented at the Conference. This was my belief as to our relations when the Treaty of Peace containing the Covenant was laid before the Germans at the Hotel des Reservoirs in Versailles.

CHAPTER XIII

THE SYSTEM OF MANDATES

In the foregoing review of the opposite views held by the President and by me in regard to the plan for a League of Nations and specifically in regard to the Covenant as originally drawn and as revised, mention was made of the proposed mandatory system as one of the subjects concerning which we were not in agreement. My objections to the system were advanced chiefly on the ground of the legal difficulties which it presented because it seemed probable that the President would give more weight to my opinion on that ground than on one which concerned the policy of adopting the system. Viewed from the latter standpoint it appeared to me most unwise for the President to propose a plan, in which the United States would be expected to partic.i.p.ate and which, if it did partic.i.p.ate, would involve it in the political quarrels of the Old World. To do so would manifestly require a departure from the traditional American policy of keeping aloof from the political jealousies and broils of Europe. Without denying that present conditions have, of necessity, modified the old policy of isolation and without minimizing the influence of that fact on the conduct of American foreign affairs, it did not seem essential for the United States to become the guardian of any of the peoples of the Near East, who were aspiring to become independent nationalities, a guardianship which the President held to be a duty that the United States was bound to perform as its share of the burden imposed by the international cooperation which he considered vital to the new world order.

The question of mandates issuing from the League of Nations was discussed at length by the Council of Ten in connection with the disposition and future control of the German colonies and incidentally as to the dismemberment of the Ottoman Empire. The discussions were chiefly along the lines of practicability, of policy, and of moral obligation. The President's strong support of the mandatory system and his equally strong objection to the idea of _condominium_ showed that his mind was made up in favor of the issuance of mandates by the League.

Since it would have been highly improper for me to oppose openly a policy which the President had declared under his const.i.tutional authority, there was no proper opportunity to present the legal difficulties of the system to the Council.

However, the seriousness of these difficulties and the possible troubles and controversies which might be antic.i.p.ated from attempting to put the system into operation induced me, after one of the sessions of the Council of Ten, to state briefly to the President some of the serious objections to League mandates from the standpoint of international law and the philosophy of government. President Wilson listened with his usual attentiveness to what I had to say, though the objections evidently did not appeal to him, as he characterized them as "mere technicalities" which could be cured or disregarded. Impressed myself with the importance of these "technicalities" and their direct bearing on the policy of adopting the mandatory system, I later, on February 2, 1919, embodied them in a memorandum. At the time I hoped and believed that the negotiation of the completed Covenant might be postponed and that there would be another opportunity to raise the question. The memorandum, prepared with this end in view, is as follows:

"The system of 'mandatories under the League of Nations,' when applied to territories which were formerly colonies of Germany, the system which has been practically adopted and will be written into the plan for the League, raises some interesting and difficult questions:

"The one, which is the most prominent since it enters into nearly all of the international problems presented, is--Where does the sovereignty over these territories reside?

"Sovereignty is inherent in the very conception of government. It cannot be destroyed, though it may be absorbed by another sovereignty either by compulsion or cession. When the Germans were ousted from their colonies, the sovereignty pa.s.sed to the power or powers which took possession. The location of the sovereignty up to the present is clear, but with the introduction of the League of Nations as an international primate superior to the conquerors some rather perplexing questions will have to be answered.

"Do those who have seized the sovereignty transfer it or does Germany transfer it to the League of Nations? If so, how?

"Does the League a.s.sume possession of the sovereignty on its renunciation by Germany? If so, how?

"Does the League merely direct the disposition of the sovereignty without taking possession of it?

"a.s.suming that the latter question is answered in the affirmative, then after such disposition of the right to exercise sovereignty, which will presumably be a limited right, where does the actual sovereignty reside?

"The appointment of a mandatory to exercise sovereign rights over territory is to create an agent for the real sovereign. But who is the real sovereign?

"Is the League of Nations the sovereign, or is it a common agent of the nations composing the League, to whom is confided solely the duty of naming the mandatory and issuing the mandate?

"If the League is the sovereign, can it avoid responsibility for the misconduct of the mandatory, its agent?

"If it is not the League, who is responsible for the mandatory's conduct?

"a.s.suming that the mandatory in faithfully performing the provisions of the mandate unavoidably works an injustice upon another party, can or ought the mandatory to be held responsible? If not, how can the injured party obtain redress? Manifestly the answer is, 'From the sovereign,' but who is the sovereign?

"In the Treaty of Peace Germany will be called upon to renounce sovereignty over her colonial possessions. To whom will the sovereignty pa.s.s?

"If the reply is, 'The League of Nations,' the question is: Does the League possess the attributes of an independent state so that it can function as an owner of territory? If so, what is it? A world state?

"If the League does not const.i.tute a world state, then the sovereignty would have to pa.s.s to some national state. What national state? What would be the relation of the national state to the League?

"If the League is to receive t.i.tle to the sovereignty, what officers of the League are empowered to receive it and to transfer its exercise to a mandatory?

"What form of acceptance should be adopted?

"Would every nation which is a member of the League have to give its representatives full powers to accept the t.i.tle?

"a.s.suming that certain members decline to issue such powers or to accept t.i.tle as to one or more of the territories, what relation would those members have to the mandatory named?"

There is no attempt in the memorandum to a.n.a.lyze or cla.s.sify the queries raised, and, as I review them in the light of the terms of the Treaty of Versailles, I do not think that some of them can be asked with any helpful purpose. On the other hand, many of the questions, I believe the large majority, were as pertinent after the Treaty was completed as they were when the memorandum was made.

As Colonel House was the other member of the Commission on the League of Nations and would have to consider the practicability and expediency of including the mandatory system in the Covenant, I read the memorandum to him stating that I had orally presented most of the questions to the President who characterized them as "legal technicalities" and for that reason unimportant. I said to the Colonel that I differed with the President, as I hoped he did, not only as to the importance of considering the difficulties raised by the questions before the system of mandates was adopted, but also as to the importance of viewing from every standpoint the wisdom of the system and the difficulties that might arise in its practical operation. I stated that, in my opinion, a simpler and better plan was to transfer the sovereignty over territory to a particular nation by a treaty of cession under such terms as seemed wise and, in the case of some of the newly erected states, to have them execute treaties accepting protectorates by Powers mutually acceptable to those states and to the League of Nations.

Colonel House, though he listened attentively to the memorandum and to my suggestions, did not seem convinced of the importance of the questions or of the advantages of adopting any other plan than that of the proposed mandatory system. To abandon the system meant to abandon one of the ideas of international supervision, which the President especially cherished and strongly advocated. It meant also to surrender one of the proposed functions of the League as an agent in carrying out the peace settlements under the Treaty, functions which would form the basis of an argument in favor of the organization of the League and furnish a practical reason for its existence. Of course the presumed arguments against the abandonment of mandates may not have been considered, but at the time I believed that they were potent with Colonel House and with the President. The subsequent advocacy of the system by these two influential members of the Commission on the League of Nations, which resulted in its adoption, in no way lessened my belief as to the reasons for their support.

The mandatory system, a product of the creative mind of General s.m.u.ts, was a novelty in international relations which appealed strongly to those who preferred to adopt unusual and untried methods rather than to accept those which had been tested by experience and found practical of operation. The self-satisfaction of inventing something new or of evolving a new theory is inherent with not a few men. They are determined to try out their ideas and are impatient of opposition which seeks to prevent the experiment. In fact opposition seems sometimes to enhance the virtue of a novelty in the minds of those who propose or advocate its adoption. Many reformers suffer from this form of vanity.

In the case of the system of mandates its adoption by the Conference and the conferring on the League of Nations the power to issue mandates seemed at least to the more conservative thinkers at Paris a very doubtful venture. It appeared to possess no peculiar advantages over the old method of transferring and exercising sovereign control either in providing added protection to the inhabitants of territory subject to a mandate or greater certainty of international equality in the matter of commerce and trade, the two princ.i.p.al arguments urged in favor of the proposed system.

If the advocates of the system intended to avoid through its operation the appearance of taking enemy territory as the spoils of war, it was a subterfuge which deceived no one. It seemed obvious from the very first that the Powers, which under the old practice would have obtained sovereignty over certain conquered territories, would not be denied mandates over those territories. The League of Nations might reserve in the mandate a right of supervision of administration and even of revocation of authority, but that right would be nominal and of little, if any, real value provided the mandatory was one of the Great Powers as it undoubtedly would be. The almost irresistible conclusion is that the protagonists of the theory saw in it a means of clothing the League of Nations with an apparent usefulness which justified the League by making it the guardian of uncivilized and semi-civilized peoples and the international agent to watch over and prevent any deviation from the principle of equality in the commercial and industrial development of the mandated territories.

It may appear surprising that the Great Powers so readily gave their support to the new method of obtaining an apparently limited control over the conquered territories, and did not seek to obtain complete sovereignty over them. It is not necessary to look far for a sufficient and very practical reason. If the colonial possessions of Germany had, under the old practice, been divided among the victorious Powers and been ceded to them directly in full sovereignty, Germany might justly have asked that the value of such territorial cessions be applied on any war indemnities to which the Powers were ent.i.tled. On the other hand, the League of Nations in the distribution of mandates would presumably do so in the interests of the inhabitants of the colonies and the mandates would be accepted by the Powers as a duty and not to obtain new possessions. Thus under the mandatory system Germany lost her territorial a.s.sets, which might have greatly reduced her financial debt to the Allies, while the latter obtained the German colonial possessions without the loss of any of their claims for indemnity. In actual operation the apparent altruism of the mandatory system worked in favor of the selfish and material interests of the Powers which accepted the mandates. And the same may be said of the dismemberment of Turkey. It should not be a matter of surprise, therefore, that the President found little opposition to the adoption of his theory, or, to be more accurate, of the s.m.u.ts theory, on the part of the European statesmen.

There was one case, however, in which the issuance of a mandate appeared to have a definite and practical value and to be superior to a direct transfer of complete sovereignty or of the conditional sovereignty resulting from the establishment of a protectorate. The case was that of a territory with or without a national government, which, not being self-supporting and not sufficiently strong to protect its borders from aggressive neighbors, or its people sufficiently enlightened to govern themselves properly, would be a constant source of expense instead of profit to the Power, which as its protector and tutor became its overlord. Under such conditions there was more probability of persuading a nation inspired by humanitarian and altruistic motives to a.s.sume the burden for the common good under the mandatory system than under the old method of cession or of protectorate. As to nations, however, which placed national interests first and made selfishness the standard of international policy it was to be a.s.sumed that an appeal under either system would be ineffective.

The truth of this was very apparent at Paris. In the tentative distribution of mandates among the Powers, which took place on the strong presumption that the mandatory system would be adopted, the princ.i.p.al European Powers appeared to be willing and even eager to become mandatories over territories possessing natural resources which could be profitably developed and showed an unwillingness to accept mandates for territories which, barren of mineral or agricultural wealth, would be continuing liabilities rather than a.s.sets. This is not stated by way of criticism, but only in explanation of what took place.

From the beginning to the end of the discussions on mandates and their distribution among the Powers it was repeatedly declared that the United States ought to partic.i.p.ate in the general plan for the upbuilding of the new states which under mandatories would finally become independent nationalities, but it was never, to my knowledge, proposed, except by the inhabitants of the region in question, that the United States should accept a mandate for Syria or the Asiatic coast of the Aegean Sea. Those regions were rich in natural resources and their economic future under a stable government was bright. Expenditures in their behalf and the direction of their public affairs would bring ample returns to the mandatory nations. On the other hand, there was a sustained propaganda--for it amounted to that--in favor of the United States a.s.suming mandates over Armenia and the munic.i.p.al district of Constantinople, both of which, if limited by the boundaries which it was then purposed to draw, would be a constant financial burden to the Power accepting the mandate, and, in the case of Armenia, would require that Power to furnish a military force estimated at not less than 50,000 men to prevent the aggression of warlike neighbors and to preserve domestic order and peace.

It is not too severe to say of those who engaged in this propaganda that the purpose was to take advantage of the unselfishness of the American people and of the altruism and idealism of President Wilson in order to impose on the United States the burdensome mandates and to divide those which covered desirable territories among the European Powers. I do not think that the President realized at the time that an actual propaganda was going on, and I doubt very much whether he would have believed it if he had been told. Deeply impressed with the idea that it was the moral duty of the great and enlightened nations to aid the less fortunate and especially to guard the nationalities freed from autocratic rule until they were capable of self-government and self-protection, the President apparently looked upon the appeals made to him as genuine expressions of humanitarianism and as manifestations of the opinion of mankind concerning the part that the United States ought to take in the reconstruction of the world. His high-mindedness and loftiness of thought blinded him to the sordidness of purpose which appears to have induced the general acquiescence in his desired system of mandates, and the same qualities of mind caused him to listen sympathetically to proposals, the acceptance of which would give actual proof of the unselfishness of the United States.

Reading the situation thus and convinced of the objections against the mandatory system from the point of view of international law, of policy and of American interests, I opposed the inclusion of the system in the plan for a League of Nations. In view of the att.i.tude which Mr. Wilson had taken toward my advice regarding policies I confined the objections which I presented to him, as I have stated, to those based on legal difficulties. The objections on the ground of policy were made to Colonel House in the hope that through him they might reach the President and open his eyes to the true state of affairs. Whether they ever did reach him I do not know. Nothing in his subsequent course of action indicated that they did.

But, if they did, he evidently considered them as invalid as he did the objections arising from legal difficulties. The system of mandates was written into the Treaty and a year after the Treaty was signed President Wilson asked the Congress for authority to accept for the United States a mandate over Armenia. This the Congress refused. It is needless to make further comment.

CHAPTER XIV