File No. 763.72112Sa/62
The Ambassador in Spain ( Willard) to the Secretary of State
[Received September 10, 9.35 a.m.]
1796. Department’s 1514, September 5, 4 p.m.2 I have just handed Minister of Foreign Affairs the following memorandum:
The Governments of the United States, Great Britain, France, and Italy, associated in war against the Government of Germany, are acquainted with the fact that the German Government are now attempting to control neutral shipping through a new device improperly termed “safe conduct”, which constitutes in fact but a threat of condemnation or destruction unless German control is accepted. Such control might extend to German supervision over all the personnel and passengers, the character and consignment of cargoes, etc., and the movements of the vessel herself.
The Associated Governments observe that enemy control through such a device or otherwise may operate to deprive vessels accepting the same of their neutral character and the Associated Governments accordingly reserve the right to deal with any vessel which has subjected herself to enemy control as the circumstances in each case may warrant.
I said to him in Spanish exactly as follows:
On the part of my Government and as dean of the diplomatic service of Great Britain, France, and Italy accredited to His Majesty’s Court, and with their approval, I am handing you informally for your information a copy of a resolution adopted by our respective Governments. As this resolution is being presented to the other neutral governments in Europe, it will be seen that its application is general to all such neutral countries. The Embassies here of the Associated Governments will of course make no publication of this resolution and I am simply presenting it for your information and the information of your Government.
The Minister of Foreign Affairs read the memorandum in my presence (he reads English) and said that it was apparently the decree recently adopted by French Government and published in French newspapers some ten days or more ago. I replied that reference to last clause of memorandum I had just handed him would show that the Governments parties thereto had not declared therein a definite policy toward neutral vessels carrying German safe conducts but had simply given notice that in each such case they would reserve the right of action as circumstances might warrant. He apparently accepted this interpretation. He intimated that he would not publish the resolution which I had handed him but would simply lay it before his Government. He reiterated that his Government could not officially recognize nor could Spanish vessels accept German safe conducts. I replied that I feared possibly commanders of Spanish vessels might readily accept German safe conducts, to which he answered that Spain would not surrender her right freely to navigate the high seas. He stated that Transatlantica boats, partially under Government control, would proceed to South America and United States without safe conducts and if they were sunk by German submarines, all German property in Spain will be immediately confiscated. Embassy is of opinion that commanders of Transatlantica boats now readily accept German safe conducts. I ventured to tell Minister for Foreign Affairs that the memorandum which I had handed him indicated to my mind that the Governments of Great Britain, France, Italy, and the United States had decided to act together concerning question of war policy. He replied that he thought such a policy was wise, would add strength to any determination thus arrived at, and referred to the wisdom which he said already had been demonstrated in the selection of a [generalissimo] for the Allied armies.
Council of Ministers will meet in Madrid, Friday, 13th, instead of 12th as originally planned and it is too early to determine who may or may not attend. In course of general conversation lasting half an hour and in response to his statement that he believes that Germany [Page 1724] would break diplomatic relations with Spain when latter shall seize German boats refugeed here, I ventured to say that I do not believe my Government [wishes] to see Spain plunged into war but that Spain’s moral and commercial support was greatly desired and that I felt such support would be of great reciprocal advantage to Spain. I have the feeling that the fear of war and of internal trouble which Germans and pro-German Spaniards are endeavoring by every known means to enhance may yet weaken even the avowed policy of the Minister of Foreign Affairs, although I have my [no?] doubt as to the [sincerity] of his personal attitude. It is openly stated that Allies are trying to drag Spain into war and example of Roumania, although cases are not at all similar, is effectively cited. Spain needs Allied pressure tactfully applied and at the present time assurances of all possible aid and support in future eventualities.