The Hispanic Nations of the New World Part 7

Accordingly, backed by his political adherents, known as cientificos (doctrinaires), some of whom had acquired a sinister ascendancy over him, and also by the Church, the landed proprietors, and the foreign capitalists, Diaz centered the entire administration more and more in himself. Elections became mere farces. Not only the federal officials themselves but the state governors, the members of the state legislatures, and all others in authority during the later years of his rule owed their selection primarily to him and held their positions only if personally loyal to him. Confident of his support and certain that protests against misgovernment would be regarded by the President as seditious, many of them abused their power at will. Notable among them were the local officials, called jefes politicos, whose control of the police force enabled them to indulge in practices of intimidation and extortion which ultimately became unendurable.

Though symptoms of popular wrath against the Diaz regime, or diazpotism as the Mexicans termed it, were apparent as early as 1908, it was not until January, 1911, that the actual revolution came. It was headed by Francisco I. Madero, a member of a wealthy and distinguished family of landed proprietors in one of the northern States. What the revolutionists demanded in substance was the retirement of the President, Vice President, and Cabinet; a return to the principle of no reelection to the chief magistracy; a guarantee of fair elections at all times; the choice of capable, honest, and impartial judges, jefes politicos, and other officials; and, in particular, a series of agrarian and industrial reforms which would break up the great estates, create peasant proprietors.h.i.+ps, and better the conditions of the working cla.s.ses. Disposed at first to treat the insurrection lightly, Diaz soon found that he had underestimated its strength. Grants of some of the demands and promises of reform were met with a dogged insistence upon his own resignation. Then, as the rebellion spread to the southward, the masterful old man realized that his thirty-one years of rule were at an end. On the 25th of May, therefore, he gave up his power and sailed for Europe.

Madero was chosen President five months later, but the revolution soon pa.s.sed beyond his control. He was a sincere idealist, if not something of a visionary, actuated by humane and kindly sentiments, but he lacked resoluteness and the art of managing men. He was too prolific, also, of promises which he must have known he could not keep. Yielding to family influence, he let his followers get out of hand. Ambitious chieftains and groups of Radicals blocked and thwarted him at every turn. When he could find no means of carrying out his program without wholesale confiscation and the disruption of business interests, he was accused of abandoning his duty. One officer after another deserted him and turned rebel. Brigandage and insurrection swept over the country and threatened to involve it in ugly complications with the United States and European powers. At length, in February, 1913, came the blow that put an end to all of Madero's efforts and aspirations. A military uprising in the city of Mexico made him prisoner, forced him to resign, and set up a provisional government under the dictators.h.i.+p of Victoriano Huerta, one of his chief lieutenants. Two weeks later both Madero and the Vice President were a.s.sa.s.sinated while on their way supposedly to a place of safety.

Huerta was a rough soldier of Indian origin, possessed of unusual force of character and strength of will, ruthless, cunning, and in bearing alternately dignified and vulgar. A scientifico in political faith, he was disposed to restore the Diaz regime, so far as an application of shrewdness and force could make it possible. But from the outset he found an obstacle confronting him that he could not surmount. Though acknowledged by European countries and by many of the Hispanic republics, he could not win recognition from the United States, either as provisional President or as a candidate for regular election to the office. Whether personally responsible for the murder of Madero or not, he was not regarded by the American Government as ent.i.tled to recognition, on the ground that he was not the choice of the Mexican people. In its refusal to recognize an administration set up merely by brute force, the United States was upheld by Argentina, Brazil, Chile, and Cuba. The elimination of Huerta became the chief feature for a while of its Mexican policy.

Meanwhile the followers of Madero and the p.r.o.nounced Radicals had found a new northern leader in the person of Venustiano Carranza. They called themselves Const.i.tutionalists, as indicative of their purpose to reestablish the const.i.tution and to choose a successor to Madero in a const.i.tutional manner. What they really desired was those radical changes along social, industrial, and political lines, which Madero had championed in theory. They sought to introduce a species of socialistic regime that would provide the Mexicans with an opportunity for self-regeneration. While Diaz had believed in economic progress supported by the great landed proprietors, the moral influence of the Church, and the application of foreign capital, the Const.i.tutionalists, personified in Carranza, were convinced that these agencies, if left free and undisturbed to work their will, would ruin Mexico. Though not exactly antiforeign in their att.i.tude, they wished to curb the power of the foreigner; they would accept his aid whenever desirable for the economic development of the country, but they would not submit to his virtual control of public affairs. In any case they would tolerate no interference by the United States. Compromise with the Huerta regime, therefore, was impossible. Huerta, the "strong man" of the Diaz type, must go. On this point, at least, the Const.i.tutionalists were in thorough agreement with the United States.

A variety of international complications ensued. Both Huertistas and Carranzistas perpetrated outrages on foreigners, which evoked sharp protests and threats from the United States and European powers.

While careful not to recognize his opponents officially, the American Government resorted to all kinds of means to oust the dictator. An embargo was laid on the export of arms and munitions; all efforts to procure financial help from abroad were balked. The power of Huerta was waning perceptibly and that of the Const.i.tutionalists was increasing when an incident that occurred in April, 1914, at Tampico brought matters to a climax. A number of American sailors who had gone ash.o.r.e to obtain supplies were arrested and temporarily detained. The United States demanded that the American flag be saluted as reparation for the insult. Upon the refusal of Huerta to comply, the United States sent a naval expedition to occupy Vera Cruz.

Both Carranza and Huerta regarded this move as equivalent to an act of war. Argentina, Brazil, and Chile then offered their mediation. But the conference arranged for this purpose at Niagara Falls, Canada, had before it a task altogether impossible of accomplishment. Though Carranza was willing to have the Const.i.tutionalists represented, if the discussion related solely to the immediate issue between the United States and Huerta, he declined to extend the scope of the conference so as to admit the right of the United States to interfere in the internal affairs of Mexico. The conference accomplished nothing so far as the immediate issue was concerned. The dictator did not make reparation for the "affronts and indignities" he had committed; but his day was over.

The advance of the Const.i.tutionalists southward compelled him in July to abandon the capital and leave the country. Four months later the American forces were withdrawn from Vera Cruz. The "A B C" Conference, however barren it was of direct results, helped to allay suspicions of the United States in Hispanic America and brought appreciably nearer a "concert of the western world."

While far from exercising full control throughout Mexico, the "first chief" of the Const.i.tutionalists was easily the dominant figure in the situation. At home a ranchman, in public affairs a statesman of considerable ability, knowing how to insist and yet how to temporize, Carranza carried on a struggle, both in arms and in diplomacy, which singled him out as a remarkable character. Shrewdly aware of the advantageous circ.u.mstances afforded him by the war in Europe, he turned them to account with a degree of skill that blocked every attempt at defeat or compromise. No matter how serious the opposition to him in Mexico itself, how menacing the att.i.tude of the United States, or how persuasive the conciliatory disposition of Hispanic American nations, he clung stubbornly and tenaciously to his program.

Even after Huerta had been eliminated, Carranza's position was not a.s.sured, for Francisco, or "Pancho," Villa, a chieftain whose personal qualities resembled those of the fallen dictator, was equally determined to eliminate him. For a brief moment, indeed, peace reigned. Under an alleged agreement between them, a convention of Const.i.tutionalist officers was to choose a provisional President, who should be ineligible as a candidate for the permanent presidency at the regular elections.

When Carranza a.s.sumed both of these positions, Villa declared his act a violation of their understanding and insisted upon his retirement.

Inasmuch as the convention was dominated by Villa, the "first chief"

decided to ignore its election of a provisional President.

The struggle between the Conventionalists headed by Villa and the Const.i.tutionalists under Carranza plunged Mexico into worse discord and misery than ever. Indeed it became a sort of three-cornered contest. The third party was Emiliano Zapata, an Indian bandit, nominally a supporter of Villa but actually favorable to neither of the rivals. Operating near the capital, he plundered Conventionalists and Const.i.tutionalists with equal impartiality, and as a diversion occasionally occupied the city itself. These circ.u.mstances gave force to the saying that Mexico was a "land where peace breaks out once in a while!"

Early in 1915 Carranza proceeded to issue a number of radical decrees that exasperated foreigners almost beyond endurance. Rather than resort to extreme measures again, however, the United States invoked the cooperation of the Hispanic republics and proposed a conference to devise some solution of the Mexican problem. To give the proposed conference a wider representation, it invited not only the "A B C"

powers, but Bolivia, Uruguay, and Guatemala to partic.i.p.ate. Meeting at Was.h.i.+ngton in August, the mediators encountered the same difficulty which had confronted their predecessors at Niagara Falls. Though the other chieftains a.s.sented, Carranza, now certain of success, declined to heed any proposal of conciliation. Characterizing efforts of the kind as an unwarranted interference in the internal affairs of a sister nation, he warned the Hispanic republics against setting up so dangerous a precedent. In reply Argentina stated that the conference obeyed a "lofty inspiration of Pan-American solidarity, and, instead of finding any cause for alarm, the Mexican people should see in it a proof of their friendly consideration that her fate evokes in us, and calls forth our good wishes for her pacification and development." However, as the only apparent escape from more watchful waiting or from armed intervention on the part of the United States, in October the seven Governments decided to accept the facts as they stood, and accordingly recognized Carranza as the de facto ruler of Mexico.

Enraged at this favor shown to his rival, Villa determined deliberately to provoke American intervention by a murderous raid on a town in New Mexico in March, 1916. When the United States dispatched an expedition to avenge the outrage, Carranza protested energetically against its violation of Mexican territory and demanded its withdrawal. Several clashes, in fact, occurred between American soldiers and Carranzistas.

Neither the expedition itself, however, nor diplomatic efforts to find some method of cooperation which would prevent constant trouble along the frontier served any useful purpose, since Villa apparently could not be captured and Carranza refused to yield to diplomatic persuasion.

Carranza then proposed that a joint commission be appointed to settle these vexed questions. Even this device proved wholly unsatisfactory.

The Mexicans would not concede the right of the United States to send an armed expedition into their country at any time, and the Americans refused to accept limitations on the kind of troops that they might employ or on the zone of their operations. In January, 1917, the joint commission was dissolved and the American soldiers were withdrawn. Again the "first chief" had won!

On the 5th of February a convention a.s.sembled at Queretaro promulgated a const.i.tution embodying substantially all of the radical program that Carranza had antic.i.p.ated in his decrees. Besides providing for an elaborate improvement in the condition of the laboring cla.s.ses and for such a division of great estates as might satisfy their particular needs, the new const.i.tution imposed drastic restrictions upon foreigners and religious bodies. Under its terms, foreigners could not acquire industrial concessions unless they waived their treaty rights and consented to regard themselves for the purpose as Mexican citizens.

In all such cases preference was to be shown Mexicans over foreigners.

Ecclesiastical corporations were forbidden to own real property. No primary school and no charitable inst.i.tution could be conducted by any religious mission or denomination, and religious publications must refrain from commenting on public affairs. The presidential term was reduced from six years to four; reelection was prohibited; and the office of Vice President was abolished.

When, on the 1st of May, Venustiano Carranza was chosen President, Mexico had its first const.i.tutional executive in four years. After a cruel and obstinately intolerant struggle that had occasioned indescribable suffering from disease and starvation, as well as the usual slaughter and destruction incident to war, the country began to enjoy once more a measure of peace. Financial exhaustion, however, had to be overcome before recuperation was possible. Industrial progress had become almost paralyzed; vast quant.i.ties of depreciated paper money had to be withdrawn from circulation; and an enormous array of claims for the loss of foreign life and property had rolled up.

CHAPTER XI. THE REPUBLICS OF THE CARIBBEAN

The course of events in certain of the republics in and around the Caribbean Sea warned the Hispanic nations that independence was a relative condition and that it might vary in direct ratio with nearness to the United States. After 1906 this powerful northern neighbor showed an unmistakable tendency to extend its influence in various ways. Here fiscal and police control was established; there official recognition was withheld from a President who had secured office by unconst.i.tutional methods. Nonrecognition promised to be an effective way of maintaining a regime of law and order, as the United States understood those terms.

a.s.surances from the United States of the full political equality of all republics, big or little, in the western hemisphere did not always carry conviction to Spanish American ears. The smaller countries in and around the Caribbean Sea, at least, seemed likely to become virtually American protectorates.

Like their Hispanic neighbor on the north, the little republics of Central America were also scenes of political disturbance. None of them except Panama escaped revolutionary uprisings, though the loss of life and property was insignificant. On the other hand, in these early years of the century the five countries north of Panama made substantial progress toward federation. As a South American writer has expressed it, their previous efforts in that direction "amid sumptuous festivals, banquets and other solemn public acts" at which they "intoned in lyric accents daily hymns for the imperishable reunion of the isthmian republics," had been as illusory as they were frequent. Despite the mediation of the United States and Mexico in 1906, while the latter was still ruled by Diaz, the struggle in which Nicaragua, Honduras, Guatemala, and Salvador had been engaged was soon renewed between the first two belligerents. Since diplomatic interposition no longer availed, American marines were landed in Nicaragua, and the b.u.mptious Zelaya was induced to have his country meet its neighbors in a conference at Was.h.i.+ngton. Under the auspices of the United States and Mexico, in December, 1907, representatives of the five republics signed a series of conventions providing for peace and cooperation. An arbitral court of justice, to be erected in Costa Rica and composed of one judge from each nation, was to decide all matters of dispute which could not be adjusted through ordinary diplomatic means. Here, also, an inst.i.tute for the training of Central American teachers was to be established.

Annual conferences were to discuss, and an office in Guatemala was to record, measures designed to secure uniformity in financial, commercial, industrial, sanitary, and educational regulations. Honduras, the storm center of weakness, was to be neutralized. None of the States was thereafter to recognize in any of them a government which had been set up in an illegal fas.h.i.+on. A "Const.i.tutional Act of Central American Fraternity," moreover, was adopted on behalf of peace, harmony, and progress. Toward a realization of the several objects of the conference, the Presidents of the five republics were to invite their colleagues of the United States and Mexico, whenever needful, to appoint representatives, to "lend their good offices in a purely friendly way."

Though most of these agencies were promptly put into operation, the results were not altogether satisfactory. Some discords, to be sure, were removed by treaties settling boundary questions and providing for reciprocal trade advantages; but it is doubtful whether the arrangements devised at Was.h.i.+ngton would have worked at all if the United States had not kept the little countries under a certain amount of observation.

What the Central Americans apparently preferred was to be left alone, some of them to mind their own business, others to mind their neighbor's affairs.

Of all the Central American countries Honduras was, perhaps, the one most afflicted with pecuniary misfortunes. In 1909 its foreign debt, along with arrears of interest unpaid for thirty-seven years, was estimated at upwards of $110,000,000. Of this amount a large part consisted of loans obtained from foreign capitalists, at more or less extortionate rates, for the construction of a short railway, of which less than half had been built. That revolutions should be rather chronic in a land where so much money could be squandered and where the temperaments of Presidents and ex-Presidents were so bellicose, was natural enough. When the United States could not induce the warring rivals to abide by fair elections, it sent a force of marines to overawe them and gave warning that further disturbances would not be allowed.

In Nicaragua the conditions were similar. Here Zelaya, restive under the limitations set by the conference at Was.h.i.+ngton, yearned to become the "strong man" of Central America, who would teach the Yankees to stop their meddling. But his downfall was imminent. In 1909, as the result of his execution of two American soldiers of fortune who had taken part in a recent insurrection, the United States resolved to tolerate Zelaya no longer. Openly recognizing the insurgents, it forced the dictator out of the country. Three years later, when a President-elect started to a.s.sume office before the legally appointed time, a force of American marines at the capital convinced him that such a procedure was undesirable. The "corrupt and barbarous" conditions prevailing in Zelaya's time, he was informed, could not be tolerated. The United States, in fact, notified all parties in Nicaragua that, under the terms of the Was.h.i.+ngton conventions, it had a "moral mandate to exert its influence for the preservation of the general peace of Central America." Since those agreements had vested no one with authority to enforce them, such an interpretation of their language, aimed apparently at all disturbances, foreign as well as domestic, was rather elastic! At all events, after 1912, when a new const.i.tution was adopted, the country became relatively quiet and somewhat progressive. Whenever a political flurry did take place, American marines were employed to preserve the peace. Many citizens, therefore, declined to vote, on the ground that the moral and material support thus furnished by the great nation to the northward rendered it futile for them to a.s.sume political responsibilities.

Meanwhile negotiations began which were ultimately to make Nicaragua a fiscal protectorate of the United States. American officials were chosen to act as financial advisers and collectors of customs, and favorable arrangements were concluded with American bankers regarding the monetary situation; but it was not until 1916 that a treaty covering this situation was ratified. According to its provisions, in return for a stipulated sum to be expended under American direction, Nicaragua was to grant to the United States the exclusive privilege of constructing a ca.n.a.l through the territory of the republic and to lease to it the Corn Islands and a part of Fonseca Bay, on the Pacific coast, for use as naval stations. The prospect of American intervention alarmed the neighboring republics. a.s.serting that the treaty infringed upon their respective boundaries, Costa Rica, and Salvador brought suit against Nicaragua before the Central American Court. With the exception of the Nicaraguan representative, the judges upheld the contention of the plaintiffs that the defendant had no right to make any such concessions without previous consultation with Costa Rica, Salvador, and Honduras, since all three alike were affected by them. The Court observed, however, that it could not declare the treaty void because the United States, one of the parties concerned, was not subject to its jurisdiction. Nicaragua declined to accept the decision; and the United States, the country responsible for the existence of the Court and presumably interested in helping to enforce its judgment, allowed it to go out of existence in 1918 on the expiration of its ten-year term.

The economic situation of Costa Rica brought about a state of affairs wholly unusual in Central American politics. The President, Alfredo Gonzalez, wished to reform the system of taxation so that a fairer share of the public burdens should fall on the great landholders who, like most of their brethren in the Hispanic countries, were practically exempt. This project, coupled with the fact that certain American citizens seeking an oil concession had undermined the power of the President by wholesale bribery, induced the Minister of War, in 1917, to start a revolt against him. Rather than shed the blood of his fellow citizens for mere personal advantages, Gonzalez sustained the good reputation of Costa Rica for freedom from civil commotions by quietly leaving the country and going to the United States to present his case.

In consequence, the American Government declined to recognize the de facto ruler.

Police and fiscal supervision by the United States has characterized the recent history of Panama. Not only has a proposed increase in the customs duties been disallowed, but more than once the unrest attending presidential elections has required the calming presence of American officials. As a means of forestalling outbreaks, particularly in view of the cosmopolitan population resident on the Isthmus, the republic enacted a law in 1914 which forbade foreigners to mix in local politics and authorized the expulsion of naturalized citizens who attacked the Government through the press or otherwise. With the approval of the United States, Panama entered into an agreement with American financiers providing for the creation of a national bank, one-fourth of the directors of which should be named by the Government of the republic.

The second period of American rule in Cuba lasted till 1909. Control of the Government was then formally transferred to Jose Miguel Gomez, the President who had been chosen by the Liberals at the elections held in the previous year; but the United States did not cease to watch over its chief Caribbean ward. A bitter controversy soon developed in the Cuban Congress over measures to forbid the further purchase of land by aliens, and to insure that a certain percentage of the public offices should be held by colored citizens. Though both projects were defeated, they revealed a strong antiforeign sentiment and much dissatisfaction on the part of the negro population. It was clear also that Gomez, intended to oust all conservatives from office, for an obedient Congress pa.s.sed a bill suspending the civil service rules.

The partisans.h.i.+p of Gomez, and his supporters, together with the constant interference of military veterans in political affairs, provoked numerous outbreaks, which led the United States, in 1912, to warn Cuba that it might again be compelled to intervene. Eventually, when a negro insurrection in the eastern part of the island menaced the safety of foreigners, American marines were landed. Another instance of intervention was the objection by the United States to an employers'

liability law that would have given a monopoly of the insurance business to a Cuban company to the detriment of American firms.

After the election of Mario Menocal, the Conservative candidate, to the presidency in 1912, another occasion for intervention presented itself.

An amnesty bill, originally drafted for the purpose of freeing the colored insurgents and other offenders, was amended so as to empower the retiring President to grant pardon before trial to persons whom his successor wished to prosecute for wholesale corruption in financial transactions. Before the bill pa.s.sed, however, notice was sent from Was.h.i.+ngton that, since the American Government had the authority to supervise the finances of the republic, Gomez would better veto the bill, and this he accordingly did.

A sharp struggle arose when it became known that Menocal would be a candidate for reelection. The Liberal majority in the Congress pa.s.sed a bill requiring that a President who sought to succeed himself should resign two months before the elections. When Menocal vetoed this measure, his opponents demanded that the United States supervise the elections. As the result of the elections was doubtful, Gomez and his followers resorted in 1917 to the usual insurrection; whereupon the American Government warned the rebels that it would not recognize their claims if they won by force. Active aid from that quarter, as well as the capture of the insurgent leader, caused the movement to collapse after the electoral college had decided in favor of Menocal.

In the Dominican Republic disturbances were frequent, notwithstanding the fact that American officials were in charge of the customhouses and by their presence were expected to exert a quieting influence. Even the adoption, in 1908, of a new const.i.tution which provided for the prolongation of the presidential term to six years and for the abolition of the office of Vice President--two stabilizing devices quite common in Hispanic countries where personal ambition is p.r.o.ne to be a source of political trouble--did not help much to restore order. The a.s.sa.s.sination of the President and the persistence of age-long quarrels with Haiti over boundaries made matters worse. Thereupon, in 1913, the United States served formal notice on the rebellious parties that it would not only refuse to recognize any Government set up by force but would withhold any share in the receipts from the customs. As this procedure did not prevent a revolutionary leader from demanding half a million dollars as a financial sedative for his political nerves and from creating more trouble when the President failed to dispense it, the heavy hand of an American naval force administered another kind of specific, until commissioners from Porto Rico could arrive to superintend the selection of a new chief magistrate. Notwithstanding the protest of the Dominican Government, the "fairest and freest" elections ever known in the country were held under the direction of those officials--as a "body of friendly observers"!

However amicable this arrangement seemed, it did not smother the flames of discord. In 1916, when an American naval commander suggested that a rebellious Minister of War leave the capital, he agreed to do so if the "fairest and freest" of chosen Presidents would resign. Even after both of them had complied with the suggestions, the individuals who a.s.sumed their respective offices were soon at loggerheads. Accordingly the United States placed the republic under military rule, until a President could be elected who might be able to retain his post without too much "friendly observation" from Was.h.i.+ngton, and a Minister of War could be appointed who would refrain from making war on the President! Then the organization of a new party to combat the previous inordinate display of personalities in politics created some hope that the republic would accomplish its own redemption.

Only because of its relation to the wars of emanc.i.p.ation and to the Dominican Republic, need the negro state of Haiti, occupying the western part of the Caribbean island, be mentioned in connection with the story of the Hispanic nations. Suffice it to say that the fact that their color was different and that they spoke a variant of French instead of Spanish did not prevent the inhabitants of this state from offering a far worse spectacle of political and financial demoralization than did their neighbors to the eastward. Perpetual commotions and repeated interventions by American and European naval forces on behalf of the foreign residents, eventually made it imperative for the United States to take direct charge of the republic. In 1916, by a convention which placed the finances under American control, created a native constabulary under American officers, and imposed a number of other restraints, the United States converted Haiti into what is practically a protectorate.

CHAPTER XII. PAN-AMERICANISM AND THE GREAT WAR

While the Hispanic republics were entering upon the second century of their independent life, the idea of a certain community of interests between themselves and the United States began to a.s.sume a fairly definite form. Though emphasized by American statesmen and publicists in particular, the new point of view was not generally understood or appreciated by the people of either this country or its fellow nations to the southward. It seemed, nevertheless, to promise an effective cooperation in spirit and action between them and came therefore to be called "Pan-Americanism."

This sentiment of inter-American solidarity sprang from several sources.

The periodical conferences of the United States and its sister republics gave occasion for an interchange of official courtesies and expressions of good feeling. Doubtless, also, the presence of delegates from the Hispanic countries at the international gatherings at The Hague served to acquaint the world at large with the stability, strength, wealth, and culture of their respective lands. Individual Americans took an active interest in their fellows of Hispanic stock and found their interest reciprocated. Motives of business or pleasure and a desire to obtain personal knowledge about one another led to visits and countervisits that became steadily more frequent. Societies were created to encourage the friends.h.i.+p and acquaintance thus formed. Scientific congresses were held and inst.i.tutes were founded in which both the United States and Hispanic America were represented. Books, articles, and newspaper accounts about one another's countries were published in increasing volume. Educational inst.i.tutions devoted a constantly growing attention to inter-American affairs. Individuals and commissions were dispatched by the Hispanic nations and the United States to study one another's conditions and to confer about matters of mutual concern. Secretaries of State, Ministers of Foreign Affairs, and other distinguished personages interchanged visits. Above all, the common dangers and responsibilities falling upon the Americas at large as a consequence of the European war seemed likely to bring the several nations into a harmony of feeling and relations.h.i.+p to which they had never before attained.

Pan-Americanism, however, was destined to remain largely a generous ideal. The action of the United States in extending its direct influence over the small republics in and around the Caribbean aroused the suspicion and alarm of Hispanic Americans, who still feared imperialistic designs on the part of that country now more than ever the Colossus of the North. "The art of oratory among the Yankees," declared a South American critic, "is lavish with a fraternal idealism; but strong wills enforce their imperialistic ambitions." Impa.s.sioned speakers and writers adjured the ghost of Hispanic confederation to rise and confront the new northern peril. They even advocated an appeal to Great Britain, Germany, or j.a.pan, and they urged closer economic, social, and intellectual relations with the countries of Europe.

It was while the United States was thus widening the sphere of its influence in the Caribbean that the "A B C" powers--Argentina, Brazil, and Chile--reached an understanding which was in a sense a measure of self-defense. For some years cordial relations had existed among these three nations which had grown so remarkably in strength and prestige.

It was felt that by united action they might set up in the New World the European principle of a balance of power, a.s.sume the leaders.h.i.+p in Hispanic America, and serve in some degree as a counterpoise to the United States. Nevertheless they were disposed to cooperate with their northern neighbor in the peaceable adjustment of conflicts in which other Hispanic countries were concerned, provided that the mediation carried on by such a "concert of the western world" did not include actual intervention in the internal affairs of the countries involved.

With this att.i.tude of the public mind, it is not strange that the Hispanic republics at large should have been inclined to look with scant favor upon proposals made by the United States, in 1916, to render the spirit of Pan-Americanism more precise in its operation. The proposals in substance were these: that all the nations of America "mutually agree to guarantee the territorial integrity" of one another; to "maintain a republican form of government"; to prohibit the "exportation of arms to any but the legally const.i.tuted governments"; and to adopt laws of neutrality which would make it "impossible to filibustering expeditions to threaten or carry on revolutions in neighboring republics." These proposals appear to have received no formal approval beyond what is signified by the diplomatic expression "in principle." Considering the disparity in strength, wealth, and prestige between the northern country and its southern fellows, suggestions of the sort could be made practicable only by letting the United States do whatever it might think needful to accomplish the objects which it sought. Obviously the Hispanic nations, singly or collectively, would hardly venture to take any such action within the borders of the United States itself, if, for example, it failed to maintain what, in their opinion, was "a republican form of government." A full acceptance of the plan accordingly would have amounted to a recognition of American overlords.h.i.+p, and this they were naturally not disposed to admit.

The common perils and duties confronting the Americas as a result of the Great War, however, made close cooperation between the Hispanic republics and the United States up to a certain point indispensable.

Toward that transatlantic struggle the att.i.tude of all the nations of the New World at the outset was substantially the same. Though strongly sympathetic on the whole with the "Allies" and notably with France, the southern countries nevertheless declared their neutrality. More than that, they tried to convert neutrality into a Pan-American policy, instead of regarding it as an official att.i.tude to be adopted by the republics separately. Thus when the conflict overseas began to injure the rights of neutrals, Argentina and other nations urged that the countries of the New World jointly agree to declare that direct maritime commerce between American lands should be considered as "inter-American coastwise trade," and that the merchant s.h.i.+ps engaged in it, whatever the flag under which they sailed, should be looked upon as neutral.

Though the South American countries failed to enlist the support of their northern neighbor in this bold departure from international precedent, they found some compensation for their disappointment in the closer commercial and financial relations which they established with the United States.