ow a
copy of the programme to the Commissioners or advise them of its
contents. The natural conclusion was that he had never worked out in
detail the application of his announced principles or put into concrete
form the specific settlements which he had declared ought to be in the
terms of peace. The definition of the principles, the interpretation of
the policies, and the detailing of the provisions regarding territorial
settlements were not apparently attempted by Mr. Wilson. They were in
large measure left uncertain by the phrases in which they were
delivered. Without authoritative explanation, interpretation, or
application to actual facts they formed incomplete and inadequate
instructions to Commissioners who were authorized "to negotiate peace."

An examination of the familiar Fourteen Points uttered by the President
in his address of January 8, 1918, will indicate the character of the
declarations, which may be, by reason of their thought and expression,
termed "Wilsonian" (Appendix IV, p. 314). The first five Points are
announcements of principle which should govern the peace negotiations.
The succeeding eight Points refer to territorial adjustments, but make
no attempt to define actual boundaries, so essential in conducting
negotiations regarding territory. The Fourteenth Point relates to the
formation of "a general association of the nations for the purpose of
affording mutual guarantees of political independence and territorial
integrity to great and small nations alike."

It is hardly worth while to say that the Fourteen Points and the four
principles declared in the address of February 11, 1918 (Appendix V), do
not constitute a sufficient programme for negotiators. Manifestly they
are too indefinite in specific application. They were never intended for
that purpose when they were proclaimed. They might have formed a general
basis for the preparation of instructions for peace commissioners, but
they omitted too many of the essentials to be considered actual
instructions, while the lack of definite terms to-be included in a
treaty further deprived them of that character. Such important and
practical subjects as reparations, financial arrangements, the use and
control of waterways, and other questions of a like nature, are not even
mentioned. As a general statement of the bases of peace the Fourteen
Points and subsequent declarations probably served a useful purpose,
though some critics would deny it, but as