File No. 812.00/17883
Special Representative Rodgers to the Secretary of State
Sir: I have the honor to submit the following as a full statement of my action and the representations made to me in the matter of the request of the United States Government for the use of the North-western [Page 510] Railway in the State of Chihuahua, Mexico, for the transportation of supplies to the American troops and for the proper protection of these supplies in transit. In view of the conditions which have arisen in relation to this matter, I desire this statement to be of record in the Department.
The first telegram of the Department in relation to this matter was dated March 18, 1916, 6 p.m., and was received in Queretaro during the morning of March 19. A formal representation was prepared and was submitted to the Foreign Office about 11 o’clock on the morning of March 19. At 10 p.m. on March 19 the Subsecretary of State for Foreign Affairs, Señor Juan N. Amador, called upon me and presented the reply which I transmitted immediately to the Department in my telegram dated March 19, midnight.
On March 21, late in the afternoon, I received the Department’s No. 2, dated March 20, 11 p.m., and this representation was presented at 7 p.m. It was promised that it would be laid before the Chief Executive that evening and that a prompt reply would be given.
During the next seven days I called repeatedly at the Foreign Office, seeing the Secretary personally, according to my recollection, every time, and asked repeatedly for the reply, representing that the delay in the matter was embarrassing to the punitive expedition and that such delay would mean that the expedition naturally would have to remain longer in Mexican territory. Again and again attention was invited to the fact that the United States had extended practically similar courtesies and aid to the Mexican forces, but no definite promise as to action could be obtained although the statement was made that certain information had been asked of Señor Eliseo Arredondo, Mexican Ambassador Designate to the United States, and that no reply could be given until this was received. It was stated, further, that this information related to the pending protocol. During this week of waiting I also talked over this matter with Señor Luis Cabrera, Secretary of the Treasury of the Republic of Mexico, and received from him the reply that he wished to talk with me confidentially as soon as he could obtain the time to do so. On March 26 Señor Cabrera sent word to me that he would like to see me on the evening of the 28th.
On March 28 Señor Cabrera called and I went over the whole matter with him thoroughly and all of this was communicated to the Department in telegram No. 7 dated March 28, 1 p.m.
On March 29, having received the Department’s telegram No. 11 of March 28, 6 p.m., I had a further conference with Secretary Aguilar and was promised a definite reply in the morning.
On March 30, 9.30 a.m., having received the Department’s telegram No. 12, March 29, 4 p.m., stating that it had been suggested to the War Department to make appropriate arrangements to ship supplies from the United States to civilian consignees and requesting that Chihuahua authorities be instructed to furnish adequate guards for trains moving supplies, I called at the Foreign Office, was received by the Secretary immediately, and, in the presence of the Subsecretary Señor Amador, and Mr. John W. Belt, my secretary, discussed the matter at length, and I was assured that [Page 511] the proper instructions to the Chihuahua authorities would be issued and that there would be a speedy delivery of the supplies. I communicated subjects of this conference to the Department in telegram No. 13, March 30, 3 p.m., and was careful to state the agreement exactly as it was made.
On March 31, noon, I had, by appointment, an interview with Señor Cabrera, Secretary of the Treasury. He told me that, although not authorized so to state, he knew that General Carranza and General Obregon thought it would be necessary to request the withdrawal of our troops in a short time in the event of failure to capture Villa soon 5 that the political effect of the troops remaining for a protracted period was feared. This was stated with much earnestness and apparent sincerity. I communicated this statement to the Department in telegram No. 17 of March 31, 5 p.m.
On April 3 I mentioned the matter of the necessity of the instruction to the Chihuahua authorities in relation to the shipments of supplies under our understanding and accepted the replies that were given to me as being satisfactory as to intention in that respect.
On April 4, having received the Department’s telegram of April 3, 5 p.m., I called at the Foreign Office for the purpose of ascertaining whether the instructions to the Chihuahua authorities had been issued. Secretary Aguilar, I found, was in the country with General Carranza and General Obregon and would not return until the next day. I talked with the Subsecretary and insisted that the promise given on March 30 be fulfilled at once as the delay was causing serious embarrassment. Señor Amador promised that he would investigate the matter during the evening if the Secretary returned, as he thought would be the case.
After leaving the Foreign Office I saw Secretary Cabrera and asked him whether any instructions had been issued as to the supplies. He stated that the customs officers at the border towns had been given instructions and he promised to investigate as to whether other Chihuahua authorities had been notified.
On April 5 at 9.30 in the morning I had a long conference with Secretary Aguilar at the Foreign Office and pressed for a reply as to the instructions. Secretary Aguilar stated that he would confer with General Carranza during the day and in the country, and would give me a final answer during the afternoon. He said that he was taking to General Carranza the copy of the protocol forwarded from Washington and that this matter of the instructions to the Chihuahua authorities would be discussed jointly. The impression gained was that he himself would be willing to act favorably in the matter and I therefore informed the Department, in my telegram No. 26 of April 5, 10 p.m., that, while there was evasion and delay, the instructions would probably finally be issued. During this conference, evidently upon the basis of a suspicion that civilian consignees would not be used, I was requested to furnish the names of these consignees, and told them in reply promptly that I would not ask for these names as that would mean long delay, and that if they desired to investigate that branch of the subject they could ascertain the names from their own customs authorities at the border towns. I waited until 10 o’clock that night and, having received no answer, telegraphed the Department in my No. 26 as to the matter.
[Page 512]On April 6 at the Foreign Office was given the reply as stated in my telegram No. 27, filed at noon. It was perfectly evident that the Mexican Government would do nothing further in the matter; that the understanding which we had had, had been abrogated by General Carranza himself, and that if the American Government wished to send any supplies to the troops it would have to be done on an ordinary commercial freight basis without any assistance from or protection by the Chihuahua or other Mexican authorities. I reached the opinion that they believe the supplies would be delayed and that this will compel the withdrawal of some of the expeditionary forces whether Villa is captured or not.
On April 7, 10 a.m., I had another conference with Secretary Aguilar and Subsecretary Amador in which I asked whether it was true that a statement had been issued to the press denying that the Government ever authorized the use of the Northwestern Railway for moving supplies to the troops. They stated that such was the fact; that the Government had taken no official position in the matter. They did not deny, however, that there had been the previous understanding.
The present attitude is directly contrary to the plain understanding and agreement as suggested by Secretary Cabrera and finally agreed to with Secretary Aguilar.
In conclusion I beg to state that this morning, in order that there might be no possibility of misunderstanding in the matter, I asked directly of the Secretary and Subsecretary of State for Foreign Affairs if there would be objection to the shipment of supplies to the American troops provided these went as commercial freight and without Government protection. The reply was given that there would be no objection whatever to such a process.
I have [etc.]