My Three Years in America

"Bethmann-Hollweg."

To this inquiry I replied as follows:

Telegram in Cipher No. 101

"Rye, 8th September, 1916.

"In reply to Telegram No. 74.

"Your question answered in substance by my telegram No. 100. I take it then that your Excellency intends yourself to invite Wilson's mediation. In so far as the United States of America concerns itself with territorial questions – which hitherto I have always categorically opposed – restoration of Belgium should constitute America's principal interest, since public opinion is almost exclusively favorable to this.

"If Wilson is re-elected, I think there is good prospect of his mediation before the end of the year.

"From this point of view the attainment of peace through unrestricted submarine war seems hopeless, since the United States would inevitably be drawn into the war – no matter what may be the result of the election – and consequently the war would be prolonged."

I should like particularly to draw the reader's attention to this telegram, because it expresses definitely my opinion that the submarine campaign could not bring us peace.

Soon afterwards I was again instructed by the Chancellor to hasten Mr. Wilson's peace movement. His telegram is here reproduced:

Telegram in Cipher

"Berlin, 26th September, 1916.

"For Your Excellency's personal information.

"The enemy's intention of breaking through our fronts has not, so far, succeeded, and will not succeed, any more than his Salonika and Dobrudja offensives. On the other hand, the operations of the Central Powers against Rumania are making encouraging progress. Whether we shall succeed this year in gaining a victory there that will bring the war to an end is still doubtful; therefore, for the present we must be prepared for a further prolonging of the war. Meanwhile, the Imperial navy is confident that by the unrestricted employment of large numbers of submarines they could in view of England's economic position, meet with a success which would in a few months make our principal enemy, England, more disposed to entertain thoughts of peace. It is therefore essential that G.H.Q. should include a submarine campaign among their other measures to relieve the situation on the Somme Front, by impeding the transport of munitions, and so making clear to the Entente the futility of their efforts in this area.

"The whole situation would change if President Wilson, following out the plans he has already indicated, were to make an offer of mediation to the Powers. This would, of course, not have to include any definite proposals of a territorial nature, as these questions should form part of the agenda of the peace negotiations. Such a move, however, would have to be made soon, as otherwise we could not continue to stand calmly aside and watch England, realizing as she does the many difficulties to be reckoned with, exert with impunity increasingly strong pressure on the neutrals, with a view to improving her military and economic position at our expense, and we should have to claim the renewed liberty of action for which we stipulated in the Note of the 4th of May of this year. Should Mr. Wilson insist on waiting until immediately before or after the election, he would lose the opportunity for such a step. Also the negotiations should not at first aim at the conclusion of an armistice, but should be carried on solely by the combatant parties, and within a short period directly bring about the preliminary peace. A further prolongation would be unfavorable to Germany's military situation, and would result in further preparations being made by the Powers for the continuance of the war into next year, so that there would be no further prospect of peace within a reasonable time.

"Your Excellency should discuss the position cautiously with Colonel House, and find out the intentions of Mr. Wilson. A peace movement on the part of the President which bore the outward appearance of spontaneity would be seriously considered by us, and this would also mean success for Mr. Wilson's election campaign.

"Gerard has applied for leave, as the result of a private letter from Colonel House, but he has received no reply from the State Department.

"Bethmann-Hollweg."

The explanation of the final sentence of the above telegram is as follows. I have already mentioned that Mr. Gerard was not popular in Berlin, owing to his very highly-strung temperament, his impetuosity and his want of tact. His recall was eagerly desired. Consequently, I had received instructions to arrange, if possible, for the replacement of Mr. Gerard, and in any case that the Ambassador should be recalled for a time to Washington, so that his nerves might have a chance to rest. As always, in strictly confidential matters, I referred this to Colonel House, who told me that in view of the existing political situation there could be no question of a recall of Gerard. He would, however, arrange for the Ambassador to be summoned at once to Washington for fresh instructions. If once Mr. Gerard learned that the President now had the definite intention of mediating with a view of peace, Colonel House thought he would be received in a more friendly manner in Berlin.

I answered the Chancellor's last telegram as follows:

Telegram in Cipher

"Washington, 5th October, 1916.

"No. 121.

"Telegram No. 89 discussed according to instructions.

"No change here in the situation reported in telegrams Nos. 100 and 101.

"In view of possibility of surprises in war and election, Wilson, for reasons already stated, refuses to attempt mediation until re-elected. Result of election, which is being fought exclusively on foreign politics, uncertain. President showing surprising firmness. If unrestricted submarine campaign unavoidable, advise emphatically, postpone at least until after election. Now, immediate rupture with United States would be certain; after election Wilson's mediation probable on the one hand; on the other hand at least slight possibility of finding modus vivendi by negotiation with United States."

The instructions from Berlin gave me occasion for repeated conversations with Colonel House. The Imperial Government were now ready to accept Mr. Wilson's League of Nations programme, which provided for general disarmament, freedom of the seas, and compulsory arbitration. My reports to Berlin on this question had the result that on 9th November the Chancellor in a speech publicly espoused this programme, and that I, at my own suggestion, received permission to communicate officially the Chancellor's speech to the American Peace League, which published my communication.

On the other hand, the Imperial Government desired that the territorial questions should be regulated by direct negotiations between the combatant Powers. Mr. Wilson, as Colonel House told me, was in agreement with this. Mr. Wilson had already expressed himself to this effect in the above mentioned speech of the 27th May, and in general adopted the point of view that the United States had no interest in the details of territorial adjustment; but that it was of equally fundamental importance for America as for Europe that in future wars should be avoided. The President was only willing to intervene in so far as he was certain of having American public opinion behind him. In my conversations with Colonel House we never spoke of the evacuation of any German territory. We always confined ourselves exclusively to a real peace by negotiation on the basis of the status quo ante. With such a peace Germany's position in the world would have remained unimpaired. The freedom of the seas, a principal point in the Wilson programme, could not but be welcome to us. The President and Colonel House have been the sponsors of this idea in America. Both were indefatigable in their efforts to materialize this idea in such a way that war on commerce should be abolished and that all commerce, even in war-time, should be declared free. As a necessary result of this development of the laws of naval warfare Mr. Wilson hoped to bring about general naval disarmament, since navies would lose their raison d'être if they could only be used against each other and no longer against commerce and for purposes of blockade. It is a regrettable fact that at the Hague Conference we accepted the English standpoint on the question of war on commerce, and not the American.

In October I was again instructed from Berlin to speed up Mr. Wilson's peace movement. With regard to this new urgency Herr von Jagow, on the 14th April, 1919, granted an interview to the Berlin representative of the New York Sun, the substance of which was as follows:

"In the autumn of 1916 the Emperor, Count Bernstorff and I opposed the resumption of unrestricted submarine warfare, which was urged with increasing vigor by our military and naval departments, as being the only means of bringing the war to an early conclusion. Week after week we watched for the hoped-for peace move of President Wilson, which, however, did not come. At last, in October, the Emperor, upon whom increasing pressure was being brought to bear to give his consent to the unrestricted submarine campaign, sent a memorandum to the American Government, reminding them or certain mediation promises which had been made at the time of the Sussex crisis.

"When this memorandum, addressed to Mr. Gerard, reached Berlin Mr. Gerard had already left for America. I, therefore, cabled the text to Washington and instructed Count Bernstorff to hand the memorandum to Mr. Gerard on his arrival in New York. Count Bernstorff, who had been made fully aware that the Emperor wished to avert the submarine campaign and a rupture with the United States, was also informed by me that the memorandum had been written by the Emperor in person. For reasons which there is no need for me to mention here, Count Bernstorff handed the memorandum, not to Mr. Gerard, but to Colonel House, who certainly communicated it to the President."

The telegram in which the Emperor's memorandum was communicated to me read as follows:

Telegram in Cipher

"Berlin, 9th October, 1916.

"His Majesty the Emperor desires that the following memorandum should be handed to Ambassador Gerard on the latter's arrival.

"Your Excellency should do this in strict confidence and say that the memoir is not intended to convey a threat of submarine warfare. I should only like you to remind the Ambassador before his interview with the President of the expectations we based in the spring on Wilson and to call his attention to the increasing ruthlessness with which the enemy is carrying on the war. I take it for granted that Gerard will treat my memoir as strictly confidential and will not publish it.

"Should Your Excellency, however, regard the delivery of the memorandum as indiscreet, I request that it may be deferred.

"For Your Excellency's information (strictly confidential):

"1. The memorandum is written personally by His Majesty.

"2. Unrestricted submarine warfare is for the present deferred.

"Memorandum

"Your Excellency hinted to His Majesty in your last conversation at Charleville in April that President Wilson possibly would try towards the end of summer to offer his good services to the belligerents for the promotion of peace. The German Government has no information as to whether the President adheres to this idea, and as to the eventual date at which his step would take place. Meanwhile the constellation of war has taken such a form, that the German Government foresees the time at which it will be forced to regain the freedom of action that it has reserved to itself in the Note of May 4th last, and thus the President's steps may be jeopardized."

Mr. Gerard arrived in New York a few days after I had received the Emperor's memorandum. He was accompanied by the American journalist, Herbert Swope, a correspondent of The World, who had spent a considerable time in Berlin. This gentleman professed to be Mr. Gerard's confidant, and even from the ship sent wireless messages to his paper in which he reported that the unrestricted submarine campaign was imminent. The Ambassador also, after landing in New York, expressed himself, as I at once learned, to the same effect, and Mr. Swope continued his open Press-campaign in this direction.

Under these circumstances I considered it inopportune to give Mr. Gerard the Emperor's memorandum, as I assumed that he would read into it merely a confirmation of his view, and would discuss it in that light. If, however, the idea spread abroad that we were about to begin the unrestricted submarine campaign all prospect of success for peace mediation was lost. It was indeed clear that the Entente would not accept American mediation if they could hope for the submarine campaign and consequent declaration of war by the United States. It must continually be repeated that mediation could only succeed if the Entente had already abandoned all hope of American assistance. On these considerations I handed the memorandum to Colonel House, of whose discretion I had two years' experience. In this way it came into the hands of the equally unusually discreet President, without anyone else learning anything about it. The memorandum at once produced a great effect, as now the American authorities had no further doubt that the Imperial Government would accept the intended mediation. This could, however, not be speeded up because Mr. Wilson did not want to undertake a great political movement so shortly before the election.

At this time I sent the following report to the Chancellor:

Telegram in Cipher

"Washington, 17th October, 1916.

"For a week there has again been some excitement here about foreign policy. This is due to a variety of causes. At first the rumor was that Ambassador Gerard was bringing with him a peace proposal from the German Government. In spite of all denials this rumor was believed for a time, because it was started by one of the first bankers of New York. Unfortunately Mr. Gerard heard of this canard while he was still on the ship, and as he was travelling with Herbert Swope a denial, sent by wireless, appeared in The World, which was worse than the rumor itself. In this Swope reported that Mr. Gerard was coming over to announce the approaching beginning of ruthless submarine war. Just at this moment the U53 appeared at Newport, and two days later I had an audience of the President, which had been arranged a long time before, that I might hand to Mr. Wilson the reply of His Majesty the Emperor and King on the question of Polish relief.

"Colonel House, with whom, as is known, I am in constant communication, expected that on his landing Mr. Gerard would let fall some intentional or unintentional diplomatic lapsus linguœ, and therefore went in the early morning to the quarantine station in order to protect Gerard from the reporters. Mr. Gerard received a very hearty reception, which, however, had certainly been engineered for election purposes, because it is to the interest of the Democratic Administration to extol their ambassador and their foreign policy. Immediately after the reception Gerard breakfasted with House, and there everything was denied that had been actually said or implied.

"As I have known Mr. and Mrs. Gerard for many years I had a longish conversation with them on the day after their arrival. The quintessence of the ambassador's remarks was that he was completely neutral, but that Berlin expected more than that.

"Now everything has calmed down again here, and nothing is talked about except the election, which will be decided in three weeks' time. As I have several times had the honor to report, the result is most uncertain. While four months ago a Republican victory seemed certain, to-day Wilson's success is very possible. This is explained by the fact that Mr. Hughes has made no permanent impression as a speaker, whereas Roosevelt blew the war trumpet in his usual bombastic fashion. If Hughes should be defeated he can thank Roosevelt. The average American is, and remains a pacifist 'Er segnet Friede und Friedenszeiten,' and can only be drawn into war by passionate popular excitement."

With the facts contained in the above report the following telegram is also concerned, which I despatched after the visit to the President mentioned above:

Telegram in Cipher

"Washington, 11th October 1916.

"Wilson gave particular force to his remarks by pointing out that the leaders of the opposition Roosevelt, Lodge and Co., desired war with Germany, which he was quite unable to understand. His only desire was to remain neutral, and to help to bring the war to an end as a decision by force of arms seemed to him out of the question. He thought that neither of the belligerent parties would be able to gain a decisive victory. Therefore it was better to make peace to-day than to-morrow. But all prospect of ending the war would vanish if the United States were also drawn in.

"As Wilson always spoke as though he was holding himself in readiness, in case his services as mediator were required, I told him that in my opinion there was no prospect of any advances being made by the belligerent Powers.

"It was obvious that Wilson would have preferred to be directly encouraged to make peace before the election because in that case he would have been sure of being re-elected. If, however, he were re-elected without this, he would have to make up his mind to take the initiative himself. Result of the poll still very doubtful. Wilson surprisingly strong, as Hughes has little success as a speaker and Roosevelt does more harm than good."

To this I received the following reply from the Chancellor:

Cipher Telegram

"Berlin, 14th October, 1916.

"Demand for unrestricted submarine campaign increasing here with prolongation of war and improbability of decisive military blow, without, however, shaking the Government's attitude.

"Direct request for Wilson's mediation still impossible, in view of favor hitherto shown to Entente, and after last speeches of Asquith and Lloyd George. Spontaneous appeal for peace, towards which I again ask you to encourage him, would be gladly accepted by us. You should point out Wilson's power, and consequently his duty, to put a stop to slaughter. If he cannot make up his mind to act alone he should get into communication with Pope, King of Spain and European neutrals. Such joint action, since it cannot be rejected by Entente, would insure him re-election and historical fame.

"Bethmann-Hollweg."

The incident of the Emperor's memorandum closed with the following telegram sent by me:

Cipher Telegram

"Washington, 20th October, 1916.

"I thought it better to give memorandum to Gerard for House, as in this way greater discretion is assured. Latter was incautious in his utterances to Press here. House will speak with Gerard. Both gentlemen see Wilson shortly, and are accordingly in constant touch.

"It is still not to be expected that Wilson will make peace advances before the election. Nor that he will get into communication with Pope or King of Spain as hitherto every suggestion of joint action has met with immovable opposition, chiefly based on tradition. Meanwhile prospect of Wilson's re-election becomes obviously greater every day. Should this occur I believe that Wilson will very soon attempt mediation and with success, chiefly because the feeling against England has greatly increased, which England is seeking to hide. If peace is not concluded serious Anglo-American differences of opinion are to be expected. Until now every fresh dispute with Germany with regard to the submarine question has always been exploited by our enemies here to bridge the differences with England. Already the agitation in the German Press for unrestricted submarine warfare is persistently used for this purpose."

After a hard struggle Mr. Wilson was re-elected President. The pacifist tendency in the United States had won, for the battle was fought under the watchword that Mr. Wilson had preserved peace for the United States. "He kept us out of the war" had been the battle-cry of the Democrats. The few electioneering speeches made by the President breathed the spirit of neutrality and love of peace. It is particularly to be noticed that at that time, Mr. Wilson, in an address, dealt in a thoroughly objective way with the question of guilt for the origin of the war, which was later to be the determining factor in his attitude towards us. The way was now cleared for the opening of the peace movement. Public feeling had also become more favorable to us, inasmuch as the American war industry no longer attached so much importance to the prolongation of the war after the victorious Democratic party had drawn up an extensive armament programme and so indicated to the industry the prospect of great State contracts.

On the subject of my own attitude with regard to the election, innumerable legends have been spread through Germany. The few German-Americans who shared the views of the so-called "German-American Chamber of Commerce" have reproached me with having brought about Mr. Wilson's election by influencing the German-Americans. Anti-German-American newspapers maintained, on the other hand, that I had used every lever to bring about the election of the Republican candidate, Mr. Hughes, so as to punish Mr. Wilson for his attitude towards the submarine campaign. My position was an extraordinarily difficult one, as I could neither take part in the election nor give up the relations which naturally and in the course of my duty bound me to the German-Americans and pacifists. In general I may say that the vast majority of German-Americans had absolute confidence in me throughout. A splendid testimony of this was given at the great German bazaar which was held in New York in aid of the Red Cross. This undertaking made the astounding net profit of 800,000 dollars. At the opening nearly 30,000 people were present, who gave me an indescribably enthusiastic ovation simply because they believed that I had prevented war between Germany and the United States.

I never for a moment denied that I personally should be glad to see Mr. Wilson re-elected, as I was convinced that he had the determination and the power to bring about peace. It was at that time impossible for me to foresee that our Government would change its attitude to this question. All American pacifists belonged to the Democratic camp, all militarists belonged to the Republican party.

A change in our favor was, therefore, not to be expected from the election of Mr. Hughes. Apart from the usual relations with the pacifists and German-Americans already mentioned, which were in no way altered during the election, I held myself aloof as my position demanded. If it had been possible to accuse me of taking sides, the agents of the Entente would not have missed the opportunity of bringing me to book, as this they regarded as their object in life. I continually received letters from agents provocateurs, asking for my opinion on the elections. Of course I never replied to these. Neither were the false statements of anti-German newspapers any more successful which announced that on the day of the election I had openly shown my support of Mr. Hughes.

New York at night after the polling is one of the sights of America. All streets, squares, theatres and restaurants are filled to overflowing. The election results are displayed everywhere by electric light and cinematograph. Particularly when the result is very uncertain, as in 1916, the crowd are tremendously excited. At 11 p.m. the election of Mr. Hughes seemed certain, as the Eastern States had voted for him almost to a man, and it was said that a Democratic candidate can only gain the victory if he wins over New York State. Next day the picture changed, after the results had come gradually from the West, where the Democratic party was everywhere triumphant. The majority, however, was so slight that it was several days before Mr. Wilson's election was secure.

The malcontents among the German-Americans already mentioned maintain that if Mr. Hughes had been elected, Congress would have used the four months between the election and the 4th March, during which Mr. Wilson was powerless and Mr. Hughes had not yet got the reins into his hands, to rush through the warning of American citizens against travelling on British passenger-ships. In that case, Mr. Hughes, on assuming office, would have found himself faced with a situation which would have prevented him from entering the war, in view of the national inclination towards peace. Therefore, the German-Americans ought to have supported Hughes. This had been clear to the Germans in the East. They maintained that Wilson's re-election was due to the German votes in the Western States which had obeyed a more or less clear order from the German Embassy.