WAR CLOUD IN CONGRESS

A confused situation prevailed in Congress on March 1, 1916, the date on which Germany decreed that her submarines would sink all armed merchantmen of the Allied Powers without warning. The promulgation of this decree had abruptly interrupted the imminent settlement of the Lusitania case, the Administration having taken a serious view of Germany's latest step, which injected new elements into the whole submarine dispute with that country. Once more the old question of the danger to Americans traveling on belligerent vessels arose in an aggravated form. The Administration was steadfast in upholding the right of Americans to travel the seas when and whither they chose, immune under international law from interference or menace on the part of any belligerent power. Strong factions in Congress, in the face of Germany's new decree, feared that the Administration's stand was driving the country into certain war with Germany. Americans were bound to be among the crews of passengers of the armed merchantmen that Germany was determined to sink on sight, and this country had already clearly indicated to Berlin what would happen if any fatality befell them.

Hence, as mentioned in the previous volume of the history, a feverish agitation developed in Congress for the passage of resolutions forbidding Americans to travel on belligerent ships at all during the war. German-American influences, especially congressional delegations from districts, chiefly in the Middle West, where the German vote was a decisive factor, assiduously fanned this movement, but there was a scattered sentiment, wholly American at heart, and unallied with pro-Germanism, which also held the view that Americans ought not to jeopardize the peace of their country by traveling in belligerent vessels. Resolutions pending in the House and Senate prohibiting them from doing so had been pigeonholed in committee. President Wilson had interposed, urging that no action be taken on them. He held that the executive and legislature ought not to be at cross-purposes on a question of foreign policy, and any antagonistic step by Congress against the Administration would weaken the United States in the sight of the world. The Congressional leaders, at heart opposed to the President, reluctantly agreed that the two branches of the Government should not be rent by divided counsels on such a dangerous issue as the country's relations with Germany.

The President faced a critical and exasperating situation. He changed his earlier view that Congress should not put itself in the position of wrangling with the executive over the armed-merchantmen issue. If divided counsels there were in Congress regarding his submarine policy, let them now declare themselves, and let the stronger prevail! Hence, instead of any longer desiring that the armed-merchantmen resolutions should remain smothered in committee, he challenged the leaders in Congress to bring them to a vote so that the world might know whether Congress was with him or against him. The President would not brook the continuation of an impasse which lent a spurious color to the manufactured impression current abroad, that he was playing a lone hand in his submarine policy, unsupported by Congress and the country. He strove to emphasize that his insistence on the right of Americans to travel on belligerent merchant ships, whether armed for defense or otherwise, would not mean war with Germany, the latter would rather surrender to the American demands to avoid war.

The immediate effect of the President's demand for a vote on the armed-merchantmen resolutions was to clear the air regarding the strength of their supporters in Congress. The overwhelming sentiment in their favor rapidly diminished—if it ever really existed—under the searchlight of careful canvassing by the Administration's supporters, until it began to be manifest that, far from Congress ranging itself against the President, the latter would carry the day. Then came a reversal of tactics by the congressional factions opposed to the President. When the belief or illusion prevailed that the armed-merchantmen resolutions would pass the House by a big majority, strident demands were heard for submitting them to a roll call and unrestrained resentment against the President was expressed for thwarting such action. But now, when national sentiment ranged itself in support of the President, and many Congressmen had heard from their constituents, there was a disposition in Congress to turn the tables on the President by preventing the resolution being put to the vote that is, by keeping them in the limbo where they had been consigned at the President's original request, since, to be sure, the vote would compel Congressmen to go on record as to their pro-German leanings, and would, moreover, be defeated. This and other influences deferred action by the House for a week.

Meantime national sentiment had rapidly crystallized to a simple viewpoint, and Congressmen could not wisely ignore it. The general view was that if Congress opposed the executive on the armed-merchantmen issue, and proscribed the present rights of American citizens to travel on the trading ships of belligerent nations, the whole diplomatic negotiations with Germany on the submarine dispute would be reduced to chaos. No president, oppressed by such a precedent, could enter with confidence on any contention with a foreign power. His most earnest representations and most solemn protestations might be rendered meaningless by the intrusion of a Congress influenced by incorrect reports or overcome by personal antagonism. Such a condition of executive impotence was viewed as endangering rather than safeguarding the country's tranquillity. The paramount need then was that Congress should support the presidency, not the temporary occupant of the White House. The country was in a controversy with a European power and the American stand had been taken on definite and well-understood principles.

In the midst of that dispute the demand had been voiced that the American attitude be radically changed and the conditions seriously altered. The inevitable effect of such a change in American policy, it was felt, would be to hearten the power that was at issue with the United States, to embarrass the President, and encourage the belief that those to whom he must look for support would withhold it from him. That injury could only be repaired by the repudiation by Congress of the influences at work within it aiming at the overthrow of the President's policy, and by a convincing exhibition of the unity of the republic.

The Senate was the first to act. The armed-ship resolution, forbidding Americans to travel on such craft, was introduced by Senator Gore, of Oklahoma, who thus explained his purpose in doing so:

"I introduced this resolution because I was apprehensive that we were speeding headlong upon war; perhaps, I ought to go further and say what I have hitherto avoided saying, that my action was based on a report which seemed to come from the highest and most responsible authority, that certain Senators and certain members of the House, in a conference with the President of the United States, received from the President the information, if not the declaration, that if Germany insisted upon her position the United States would insist upon her position, and that it would result probably in a breach of diplomatic relations, and that a breach of diplomatic relations would probably be followed by a state of war, and that a state of war might not be of itself and of necessity an evil to this republic, but that the United States, by entering upon war now, might be able to bring it to a conclusion by midsummer and thus render a great service to civilization.

"Mr. President," added the Senator, "I cannot say what the truth may be. I tell you the tale as it was told to me. This came to my ears in such a way, with such a concurrence of testimony, with such internal and external marks of truth, that I feared it might be the truth, and if such a thing be conceivable I did not feel that, discharging my duty as a Senator, I could withhold whatever feeble service I might render to avert the catastrophe of war."

The President immediately authorized an unqualified denial to be made that he had expressed any utterance to which such a meaning could be attached. On the contrary, the President, in his talks with members of Congress, had insisted that war was the last happening he wanted and that his and not Congress' course would best insure peace. One version of what transpired at the conference referred to by Senator Gore credited the President with making these statements to the Senators and Congressmen who consulted him: That the way to avoid war was to convince the rest of the world that the people of the United States were standing solidly behind the executive; that the course Congress was seeking to pursue would lead toward war rather than away from it, because yielding to Germany on the present issue would result in further curtailments of American rights; that the only course the United States could safely pursue now was to abide by international law; that any other course would result in making circumstances themselves the sole guide, and this policy would eventually cause the fabric of international law itself to crumble and disappear; that any concession to Germany, abridging the right of Americans to travel on the seas, would necessitate a concession to Great Britain; and that such a weakening of American policy would cause the country to drift toward war. Asked what would happen if a German submarine sank an armed merchantman with the loss of American life, the President was quoted as intimating that in that event only a break in diplomatic relations would follow; further asked as to the effect such a rupture would probably have, he carefully replied that "it had been represented that this would lead to war," and that the participation of the United States in the European upheaval might result in ending hostilities in six months.

The effect of the disputed disclosure of the President's views on the issues with Germany, coupled with his disavowal of Senator Gore's statements, was an accession of congressional support to the Administration, and the dooming of the Gore resolution to certain failure. After a couple of days' debate the resolution was put to the vote and defeated March 3, 1916, by sixty-eight to fourteen. But this only meant an overwhelming rejection of the intent of the Gore resolution, for its proposer, foreseeing that it could not pass, confused the President's supporters at the last minute by resorting to a parliamentary maneuver changing its purport. The resolution, as put before the Senate, had been reversed; instead of forbidding Americans to travel on belligerent vessels, it had become a hypothetical declaration of war against Germany—a bellicose affirmation in irreconcilable contrast with the senator's well-known pacifism. Originally the resolution read:

"Whereas a number of leading powers of the world are now engaged in a war of unexampled proportions; and

"Whereas the United States is happily at peace with all of the belligerent nations; and

"Whereas it is equally the desire and the interest of the American people to remain at peace with all nations; and

"Whereas the President has recently offered fresh and signal proofs of the superiority of diplomacy to butchery as a method of settling international disputes; and

"Whereas the right of American citizens to travel on unarmed belligerent vessels has recently received renewed guarantees of respect and inviolability; and

"Whereas the right of American citizens to travel on armed belligerent vessels rather than upon unarmed vessels is essential neither to their life, liberty, or safety; nor to the independence, dignity, or securing of the United States; and

"Whereas Congress alone has been vested with the power to declare war, which involved the obligations to prevent war by all proper means consistent with the honor and vital interest of the nation; therefore be it

"Resolved, by the Senate (the House of Representatives, concurring), That it is the sense of the Congress, vested as it is with the sole power to declare war, that all persons owing allegiance to the United States should, in behalf of their own safety and the vital interest of the United States, forbear to exercise the right of travel as passengers upon any armed vessel of any belligerent power, whether such vessel be armed for offensive or defensive purposes; and it is the further sense of the Congress that no passport should be issued or renewed by the Secretary of State, or by anyone acting under him, to be used by any person owing allegiance to the United States for purpose of travel upon any such armed vessel of a belligerent power."

As voted upon by the Senate, this resolving clause had disappeared and the following substitute with the preamble unaltered, had taken its place:

"Resolved by the Senate (the House of Representatives concurring), That the sinking by a submarine without notice or warning of an armed merchant vessel of her public enemy, resulting in the death of a citizen of the United States, would constitute a just and sufficient cause of war between the United States and the German Empire."[Back to Contents]