The Complete Works. Henry Cabot Lodge
have continued it until the end of my term, if necessary, without any action by Congress. But it was far preferable that there should be action by Congress, so that we might be proceeding under a treaty which was the law of the land and not merely by a direction of the Chief Executive which would lapse when that particular executive left office. I therefore did my best to get the Senate to ratify what I had done. There was a good deal of difficulty about it. With the exception of one or two men like Clark of Arkansas, the Democratic Senators acted in that spirit of unworthy partisanship which subordinates national interest to some fancied partisan advantage, and they were cordially backed by all that portion of the press which took its inspiration from Wall Street, and was violently hostile to the Administration because of its attitude towards great corporations. Most of the Republican Senators under the lead of Senator Lodge stood by me; but some of them, of the more "conservative" or reactionary type, who were already growing hostile to me on the trust question, first proceeded to sneer at what had been done, and to raise all kinds of meticulous objections, which they themselves finally abandoned, but which furnished an excuse on which the opponents of the treaty could hang adverse action. Unfortunately the Senators who were most apt to speak of the dignity of the Senate, and to insist upon its importance, were the very ones who were also most apt to try to make display of this dignity and importance by thwarting the public business. This case was typical. The Republicans in question spoke against certain provisions of the proposed treaty. They then, having ingeniously provided ammunition for the foes of the treaty, abandoned their opposition to it, and the Democrats stepped into the position they had abandoned. Enough Republicans were absent to prevent the securing of a two-thirds vote for the treaty, and the Senate adjourned without any action at all, and with a feeling of entire self-satisfaction at having left the country in the position of assuming a responsibility and then failing to fulfil it. Apparently the Senators in question felt that in some way they had upheld their dignity. All that they had really done was to shirk their duty. Somebody had to do that duty, and accordingly I did it. I went ahead and administered the proposed treaty anyhow, considering it as a simple agreement on the part of the Executive which would be converted into a treaty whenever the Senate acted. After a couple of years the Senate did act, having previously made some utterly unimportant changes which I ratified and persuaded Santo Domingo to ratify. In all its history Santo Domingo has had nothing happen to it as fortunate as this treaty, and the passing of it saved the United States from having to face serious difficulties with one or more foreign powers.
It cannot in the long run prove possible for the United States to protect delinquent American nations from punishment for the non-performance of their duties unless she undertakes to make them perform their duties. People may theorize about this as much as they wish, but whenever a sufficiently strong outside nation becomes sufficiently aggrieved, then either that nation will act or the United States Government itself will have to act. We were face to face at one period of my administration with this condition of affairs in Venezuela, when Germany, rather feebly backed by England, undertook a blockade against Venezuela to make Venezuela adopt the German and English view about certain agreements. There was real danger that the blockade would finally result in Germany's taking possession of certain cities or custom-houses. I succeeded, however, in getting all the parties in interest to submit their cases to the Hague Tribunal.
By far the most important action I took in foreign affairs during the time I was President related to the Panama Canal. Here again there was much accusation about my having acted in an "unconstitutional" manner—a position which can be upheld only if Jefferson's action in acquiring Louisiana be also treated as unconstitutional; and at different stages of the affair believers in a do-nothing policy denounced me as having "usurped authority"—which meant, that when nobody else could or would exercise efficient authority, I exercised it.
During the nearly four hundred years that had elapsed since Balboa crossed the Isthmus, there had been a good deal of talk about building an Isthmus canal, and there had been various discussions of the subject and negotiations about it in Washington for the previous half century. So far it had all resulted merely in conversation; and the time had come when unless somebody was prepared to act with decision we would have to resign ourselves to at least half a century of further conversation. Under the Hay-Pauncefote Treaty signed shortly after I became President, and thanks to our negotiations with the French Panama Company, the United States at last acquired a possession, so far as Europe was concerned, which warranted her in immediately undertaking the task. It remained to decide where the canal should be, whether along the line already pioneered by the French company in Panama, or in Nicaragua. Panama belonged to the Republic of Colombia. Nicaragua bid eagerly for the privilege of having the United States build the canal through her territory. As long as it was doubtful which route we would decide upon, Colombia extended every promise of friendly cooperation; at the Pan-American Congress in Mexico her delegate joined in the unanimous vote which requested the United States forthwith to build the canal; and at her eager request we negotiated the Hay-Herran Treaty with her, which gave us the right to build the canal across Panama. A board of experts sent to the Isthmus had reported that this route was better than the Nicaragua route, and that it would be well to build the canal over it provided we could purchase the rights of the French company for forty million dollars; but that otherwise they would advise taking the Nicaragua route. Ever since 1846 we had had a treaty with the power then in control of the Isthmus, the Republic of New Granada, the predecessor of the Republic of Colombia and of the present Republic of Panama, by which treaty the United States was guaranteed free and open right of way across the Isthmus of Panama by any mode of communication that might be constructed, while in return our Government guaranteed the perfect neutrality of the Isthmus with a view to the preservation of free transit.
For nearly fifty years we had asserted the right to prevent the closing of this highway of commerce. Secretary of State Cass in 1858 officially stated the American position as follows:
"Sovereignty has its duties as well as its rights, and none of these local governments, even if administered with more regard to the just demands of other nations than they have been, would be permitted, in a spirit of Eastern isolation, to close the gates of intercourse of the great highways of the world, and justify the act by the pretension that these avenues of trade and travel belong to them and that they choose to shut them, or, what is almost equivalent, to encumber them with such unjust relations as would prevent their general use."
We had again and again been forced to intervene to protect the transit across the Isthmus, and the intervention was frequently at the request of Colombia herself. The effort to build a canal by private capital had been made under De Lesseps and had resulted in lamentable failure. Every serious proposal to build the canal in such manner had been abandoned. The United States had repeatedly announced that we would not permit it to be built or controlled by any old-world government. Colombia was utterly impotent to build it herself. Under these circumstances it had become a matter of imperative obligation that we should build it ourselves without further delay.
I took final action in 1903. During the preceding fifty-three years the Governments of New Granada and of its successor, Colombia, had been in a constant state of flux; and the State of Panama had sometimes been treated as almost independent, in a loose Federal league, and sometimes as the mere property of the Government at Bogota; and there had been innumerable appeals to arms, sometimes of adequate, sometimes for inadequate, reasons. The following is a partial list of the disturbances on the Isthmus of Panama during the period in question, as reported to us by our consuls. It is not possible to give a complete list, and some of the reports that speak of "revolutions" must mean unsuccessful revolutions:
May 22, 1850.—Outbreak; two Americans killed. War vessel demanded to quell outbreak.
October, 1850.—Revolutionary plot to bring about independence of the Isthmus.
July 22, 1851.—Revolution in four Southern provinces.
November 14, 1851.—Outbreak at Chagres. Man-of-war requested for Chagres.
June 27, 1853.—Insurrection at Bogota, and consequent disturbance on Isthmus. War vessel demanded.
May 23, 1854.—Political disturbances. War vessel requested.
June 28, 1854.—Attempted revolution.
October 24, 1854.—Independence