My Three Years in America

This line of argument is yet another proof that the Germans in question had no idea of the situation in America. They kept exclusively to themselves in the Deutscher Verein, and scarcely ever saw a real, true-bred American. To begin with, it is difficult to see why the Germans in the West should obey the alleged order from me if the Germans in the East did not do so. But the important thing is that Wilson had firmly made up his mind, in case Mr. Hughes was elected, to appoint him Secretary of State immediately and, after Hughes had informed himself on the political position in this office, to hand over the presidency and himself retire. Mr. Wilson considered it impossible to leave the country without firm leadership at such a dangerous moment.

Immediately after the official announcement of his reelection, Mr. Wilson wrote a Peace-Note, but unfortunately kept it in his desk, because, unhappily, just at that time a new anti-German wave swept over the country on account of the Belgian deportations. Mr. Wilson was at that time in the habit of typing the drafts of his Notes and speeches himself, and only submitting them to his advisers on points of law or other technicalities. Whether he still works in this way I do not know. If the unhappy measure of the Belgian deportations had not been adopted, and particularly just as we had informed the President that we did not want to annex Belgium, the history of the world would probably have taken a different course. The American mediation would have anticipated our peace offer and, therefore, would probably have succeeded, because we could not then have reopened the unrestricted submarine campaign without letting the mediation run its course.

In November several submarine incidents occurred in which there was a doubt as to whether the rules of cruiser warfare had been followed. The ships Marina and Arabia came under particular consideration. I will not go into these cases as they had no political importance. President Wilson caused the investigations to be carried on in a dilatory fashion because he did not want to see his peace move disturbed by controversies.

Of greater importance was the wish that was again cropping up in Berlin to open the so-called "intensified submarine campaign." I learned this in the following from Secretary of State von Jagow:

Cipher Telegram No. 112.

"Berlin, 8th November, 1916.

"Navy wishes at least torpedo armed enemy cargo-vessels without warning. Does Your Excellency consider this dangerous, apart from probable mistakes, particularly in view of fact that now many Americans are lured to travel on such steamers!

"Von Jagow."

As the "intensified submarine campaign" would have destroyed all prospect of American intervention, I advised strongly against it in the two following telegrams:

(1) Cipher Telegram No. 152

"Washington, 17th November, 1916.

"It is urgently desirable not to reopen disputes about armed merchantmen, especially in view of Wilson's peace plan."

(2) Cipher Telegram

"Washington, 20th November, 1916.

"In reply to telegram No. 112 which was delayed.

"Pursuant to Telegram No. 152.

"Urge no change in submarine war, until decided whether Wilson will open mediation. I consider this imminent."

At the same time I received the first news of the intended peace offer of the German Government. To begin with, the following telegram arrived from Secretary of State von Jagow:

Cipher Telegram

"Berlin, 16th November, 1916.

"Desirable to know whether President willing to take steps towards mediation, and if so, which and when? Question important for decision of possible steps in same direction elsewhere.

"How does Mexican question stand?

"Von Jagow."

Then followed a further telegram which read as follows:

Cipher Telegram

"Berlin, 22nd November, 1916.

"Strictly confidential.

"For Your Excellency's strictly personal information. So far as favorable military position permits we intend, in conjunction with our Allies, immediately to announce our readiness to enter into peace negotiations.

"Von Jagow."

To the first of these two telegrams I sent the following reply:

Cipher Telegram

"Washington, 21st November, 1916.

"Wilson spontaneously commissioned House to tell me in strict confidence that he is anxious to take steps towards mediation as soon as possible, probably between now and the New Year. He makes it a condition, however, that until then, mediation should be spoken and written of as little as possible, and further, that we should conduct the submarine war strictly according to our promises and not allow any fresh controversies to arise.

"Wilson's reasons for the above conditions are as follows: He believes that he can only resort to mediation provided that public opinion over here remains as favorable to us as it has been during the last few months. On this account he deplores the so-called Belgian deportations. Any new submarine controversy would again affect public feeling adversely for us, whereas if this question can be eliminated the tension with regard to England will increase. The British reply on the subject of the black lists and the English Press utterances on Wilson's election have created a bad impression in Government circles over here. The submarine question, however, will always divert this resentment against us again.

"Wilson still hesitates to intervene because the State Department expects a refusal on the part of our enemies, while House urges it strongly and is very hopeful. I have, according to instructions, encouraged him as much as possible, by telling him, that in my opinion, our enemies would be quite unable to refuse to enter into negotiations, and that is all that Wilson has in view. House seemed very much impressed when I reminded him how, throughout the whole war, the English Government had tried by lying and diplomatic trickery to bring public opinion on to their side. This house of cards, built on lies and deception, would immediately collapse if our enemies were now to refuse negotiations and thus would have to admit openly their desire for conquest. I am rather afraid that England may make a pretense of entering into negotiations and then try to put us in the wrong.

"I chose this line of argument because Wilson fears above all things the humiliation of a refusal. If it does come to negotiations, even unsuccessful, Wilson will have scored a great success. Whether the negotiations will lead to a definite result I cannot judge from here. In any case, if it should come to negotiations, strong pressure will be exerted by the Government over here in the direction of peace.

"The Mexican question is still in a state of stagnation as a result of diplomatic negotiations. This affair interests practically no one any more and proved to have no influence on the election.

"If Your Excellency still desires Wilson to intervene it is necessary, in view of the above, to get rid as soon as possible of the Marina and Arabia incidents without further controversy and not to allow any fresh controversies to arise. I think that, with the help of House, I can bury these two incidents without attracting much attention, as this is the wish of Wilson himself. As House said, the President takes a tragic view of these incidents, because, after the Sussex Note, he could not possibly write another Note, and therefore, there is nothing left but to break off diplomatic negotiations, should it be impossible to dispose of the matter privately and confidentially with me.

"Next week Gerard will be in Washington for a day or two: he will lunch with me and dine with Lansing. House keeps him in strict control. In case Gerard's return to Berlin is not desired, please send me instructions. Otherwise he should be there again at the end of the year."

To this telegram, which announced very definitely the American mediation, I received from the Foreign Office the following reply:

Cipher Telegram No. 121

"Berlin, 26th November, 1916.

"Replacement, or at least further retention, of Gerard in America desired in Berlin, provided that it is possible without wounding his vanity and sensitiveness to our disadvantage, that it is certain that this hint from our side will not become known in America and that a suitable successor is available.

"We should prefer Wilson's peace move to the step on our part mentioned in our telegram No. 116 of the 22nd November. For this reason it is eminently desirable that Wilson should make up his mind for immediate action if possible at the opening of congress or immediately afterwards. If it is put off until the New Year or later, the lull in military operations during the winter campaign would moderate the desire of public opinion for peace, and on the other hand would make preparations for the spring offensive necessary which would probably strengthen the military opposition of a peace movement. Please place this point of view cautiously and without empressement before House as your personal opinion and keep me closely instructed by telegram as to the position.

"Zimmermann."

To this telegram I sent the following replies:

Cipher Telegram No. 164

Reply to Telegram No. 121

"Washington, 1st December, 1916.

"To-morrow I shall see House in New York and will try to arrange that Gerard, who is to sail on 5th December, is kept back.

"Lansing expressed himself very strongly to me on the subject of the American protest with regard to the Belgian deportations. These have endangered the whole Belgian relief movement; in addition, feeling here has been poisoned against us, and that just at a moment when it looked as though peace negotiations might be begun. Lansing expressed the view that, if the Imperial Government could find a way of yielding to the protests of the neutrals, this would make a strong impression in our favor and that it would probably be possible immediately afterwards to propose the opening of peace negotiations. Hitherto, unfortunately, something has always intervened.

"The Federal Reserve Board's warning to the banks against unsecured promissory notes of foreign States is the first sign that the Government here wishes to put pressure on our enemies."

Cipher Telegram

"Washington, 4th December, 1916.

"Pursuant to Telegram No. 164 of the 1st inst.

"House told me in strict confidence question of Mr. Gerard's return has been thoroughly discussed by him with Mr. Wilson and Mr. Lansing. Mr. Gerard's unpopularity in Berlin and his unfriendly manner were well known here. However, no satisfactory successor was available, and Mr. Gerard is at least straightforward and does exactly what he is told. He has received very detailed instructions here, and is even quite enthusiastic over the idea of assisting in bringing about peace. In addition, Mr. Gerard was so pleased at the appointment of the Secretary of State that he is sure to adopt a more friendly attitude in future.

"As a matter of fact, Mr. Gerard has everywhere described the changes in the personnel at the Foreign Office as extraordinarily favorable for German-American relations, and laid particular stress on his personal friendship with the Secretary of State.

"Everything is prepared for a peace move, but with Mr. Wilson still hesitating, it is still doubtful when he will take action. All the authorities here have now been won over to favor such a step. This may then come at any time, especially if it is possible for us to adopt a conciliatory attitude on the Belgian question. Mr. Wilson believes that he is so hated in England that he won't be listened to. This train of thought largely explains his eagerness in the Belgian question. In any case, so much is certain, that House is continually urging Mr. Wilson to take action; moreover, peace propaganda here is steadily increasing, notwithstanding that it is for the moment very seriously hampered by the Belgian question. If Mr. Wilson – as is to be expected – finds a strong feeling for peace in Congress, he should at last make up his mind."

After a stay of about two months in America, Mr. Gerard, furnished with fresh instructions, left for Berlin on the 5th December. When later the Ambassador, at the much discussed Adlon dinner, declared that the relations between the United States and Germany had never been so good as at that moment since the beginning of the war, this speech was the keynote of his instructions. If on the other hand Herr Helfferich said that the exuberance of the Ambassador astonished him, this is explained by the fact that Berlin never believed in Mr. Wilson's intention to bring about peace. Why such incredulity should persist notwithstanding that Colonel House had twice travelled to Berlin for this very purpose, and that the President's peace policy had been the burden of all my reports, I shall never be able to understand, while, on the other hand, I can quite understand that Mr. Wilson's passivity with regard to the English breaches of international law had engendered strong distrust of him in Germany.

For the rest, Mr. Gerard seemed to be imperfectly informed about the situation in Berlin. He was certainly right in his prediction of the unrestricted submarine campaign, but in this case the wish was father to the thought. It accorded with Mr. Gerard's anti-German feeling, to which he gave expression later in his gossipy literature and film production, that he should welcome the submarine campaign, and with it the rupture with the United States, as well as our defeat. But after all, the Ambassador' proved at the Adlon dinner that he could sing another tune.

When Mr. Gerard lunched with me in Washington, I had just learned by cable from Berlin that Herr von Jagow had resigned and had been replaced by Herr Zimmermann. On hearing this news, the Ambassador said that now there would be no rupture between Germany and the United States, for Herr Zimmermann was his personal friend and was opposed to war, while Herr von Jagow, as an aristocrat, did not love the Americans, and looked down on bourgeois Gerard. A grosser misreading of the actual situation in Berlin can scarcely be conceived, as the unrestricted submarine campaign was only made possible by the resignation of Herr von Jagow, who was the chief opponent in Berlin of the submarine campaign, and the pillar on which the idea of American intervention rested. As long as Herr von Jagow remained Secretary of State, a breach with the United States was regarded as impossible. One of his last official acts was to write a private letter to me on the 20th November, 1916, concluding with the following sentence:

"As you have seen from your instructions, we are thoroughly in sympathy with the peace tendencies of President Wilson. His activity in this direction is to be strongly encouraged. Naturally his mediation tendencies must not extend to concrete proposals (because these would be unfavorable to us.)"

We now come to the moment in this account when the peace offer of the Imperial Government got involved with Mr. Wilson's plans for mediation. It is not my intention to go closely into the events that occurred in Berlin or the considerations that took effect there, as I only know them through their reaction on the instructions sent to me. I will only mention briefly, that, according to the statement of Herr von Bethmann-Hollweg before the Commission of the National Assembly, the peace offer of the Imperial Government was made with a view to influencing the pacifist minorities in the Entente countries, and working, through the people, on the Governments. Beyond this there was no intention of cutting out Mr. Wilson's peace move, but the Imperial Government wanted to have "two irons in the fire." Finally, all the utterances of the Imperial Government, which do not seem to tally with these two principles of their policy, are to be regarded as based on purely tactical motives. Accordingly, the decisive turn in our policy did not occur until the 9th January, 1917, when the decision to resort to the unrestricted submarine war was taken. Until then the policy followed was that of "two irons in the fire."

This is the way in which I read the situation in Washington at the time. If I had been convinced that the resignation of Herr von Jagow and the German peace offer meant a definite departure from the policy which we had hitherto followed with regard to Mr. Wilson's peace step, I should have immediately sent in my resignation, as I was completely identified with this policy. However, I shall return to this side of the question later.

The following telegram from the Foreign Office gave me the official information of our peace offer:

Cipher Telegram No. 128

"Berlin, 9th December, 1916.

"Confidential, for your personal information.

"We have decided to make use of the favorable position created by the fall of Bukarest in order, according to telegram number 116 of the 21st November, to make a peace offer in conjunction with our Allies, probably on Thursday, the 12th December. We do not at the present moment run any risk of damaging our prestige or showing signs of weakness. Should the enemy reject the offer the odium of continuing the war will fall upon them. For reasons stated in telegram number 121 we could not wait any longer for President Wilson to make up his mind to take action.

"The American Embassy here will at the given moment receive a Note in which the American Government will be requested to communicate our peace offer to those of our enemies with whom they represent our interests. Our other enemies will be informed through the medium of Switzerland and Spain respectively. American representative in conversation with Chancellor on 5th December expressed himself, in confidence, on the President's mission, among other things, as follows: 'What the President now most earnestly desires is practical cooperation on the part of German authorities in bringing about a favorable opportunity for soon and affirmative action by the President looking to an early restoration of peace.' Chancellor replied to American representative, he was 'extremely gratified to see from the President's message that in the given moment he could count upon the sincere and practical co-operation of the President in the restoration of peace, as much as the President could count upon the practical co-operation of German authorities.' We think we may assume that our action meets the wishes of the President.

"Please interpret it in any case in this sense to the President and House.

"Von Stumm."

To this telegram I replied as follows:

Cipher Telegram

"Washington, 13th December, 1916.

"In reply to Telegram No. 128.

"Have carried out instructions with House, who is at present staying at the White House. I have not yet received answer from Wilson, but it is generally believed here that he will strongly support peace proposals.

"Mr. Gerard, in a speech at a farewell dinner given to him in New York, declared that Germany had won, and could not be robbed of her victory. Although not published, this speech attracted attention, especially as Mr. Gerard emphasized the fact that he had reported to Mr. Wilson in this sense."

Before the Commission of the National Assembly I was asked whether I had made an attempt to stand in the way of our peace offer, lest it should interfere with Mr. Wilson's action. I took no such steps, because I thought that I was faced with a firm resolve of the Imperial Government, and because I did not think that our peace offer would substantially compromise Mr. Wilson's action.

It was also stated before the commission that I might have helped my policy to prevail in Berlin if I had insisted on it more strongly. With regard to this, I must say at once, that I did not consider stronger influence on my side really called for, as my instructions had always categorically laid down that I was to encourage Mr. Wilson to take peace action. I had also been informed that the Imperial Government would prefer such action to a peace offer from our side, and that the correct moment for the latter would have to depend on the military situation. I was, therefore, until the arrival of the Berlin telegram, number 128, not clear as to which of the actions would come first, especially as, according to my instructions, I was to keep our peace offer secret and could not discuss it with Colonel House.

Under ordinary circumstances, I should have travelled to Berlin several times during the war to confer with the authorities. Unfortunately, however, that was impossible, as the English would never have allowed me to travel to and fro. If I had had the ways and means to enlighten German public opinion on the situation in America, it would certainly have done a lot of good. According to the evidence given before the Commission of the National Assembly, the chief reason for our rejection of mediation was distrust of Mr. Wilson. Nevertheless, I still believe that ignorance and undervaluation of America was a stronger influence. At least I cannot conceive that all the authorities concerned would have voted for unrestricted submarine war if they had been firmly convinced that the United States would come into the war with all her military and economic power. However that may be, I tried at least to do what I could and I made an attempt to send Herr Albert, who was completely in accord with me, to Berlin on the submarine Deutschland. The captain of the Deutschland, however, had scruples against carrying passengers, and Herr Albert's voyage had therefore to be given up. After my experience of the journeys of Herren Meyer Gerhardt and Dernburg, I certainly do not think that Herr Albert would have done very much in Berlin. Even I could hardly have hindered the opening of the unrestricted submarine campaign where Herr von Jagow, Herr von Kühlmann and others had failed, and after all, that was the main point.

Mr. Wilson's intention of bringing about peace had been reported to me so definitely and so often that I took it for granted that the President would carry through his plan in spite of our peace offer. As I had received no instructions to the contrary, I held to my previous interpretation of the situation, and assumed that, although it was true that we had ourselves made a peace offer because Wilson's action was so long in coming, we should nevertheless still be glad to avail ourselves of the President's help. In my opinion, this was the only interpretation that could be put on the Foreign Office telegram number 128, given above. The President himself, as Colonel House told me, was very disappointed when he received the news of our peace offer. Colonel House told me that he would naturally have liked to take the first step himself. Apart from this, he had always warned us against mentioning peace, because this would be interpreted by the Entente as weakness. He therefore regarded our peace offer as an obstacle to action on his part, as it was bound to diminish the enemy's readiness to enter into negotiations. On the other hand, the step of the Imperial Government exerted a favorable influence on American public opinion, and this influence would have been even more favorable if the offer had been made less in the tone of a victor. The attitude of American public opinion, and the fear lest peace negotiations might be opened without his co-operation, must have been the chief reasons that influenced Mr. Wilson publicly to support our peace offer. In connection with this I sent the following information to Berlin:

Cipher Telegram

"Washington, 16th December, 1916.

"Lansing tells me the following statement, which I could not send by wireless to-day, comes from Wilson personally.

"President Wilson has decided that the Notes of the Central Powers, proposing a discussion of peace to the Entente Allies, will be sent forward by the American Government acting as intermediary without any accompanying offer of his own. He has not determined whether any action on behalf of peace will be taken later by the United States on its own account, but is holding himself in readiness to serve in any possible way towards bringing the warring nations together."

"From Lansing's remarks I gather that he is convinced that our enemies will agree to a conference and that then the American Government will have an opportunity to speak in favor of peace. As the Press here is also in general of the opinion that our enemies cannot refuse a conference without turning public opinion against themselves, I have grounds for assuming that the American Embassy in London, in spite of the official statement mentioned above, will assert this view."