It is true that Villa, Castro and Lopez were publicly declared to be outlaws and subject to apprehension and execution, but so far as known only a single man personally connected with this massacre has been brought to justice by Mexican authorities. Within a month after this barbarous slaughter of inoffensive Americans, it was notorious that Villa was operating within twenty miles of Cusihuiriachic and publicly stated that his purpose was to destroy American lives and property. Despite repeated and insistent demands that military protection should be furnished to Americans, Villa openly carried on his operations, constantly approaching closer and closer to the border. He was not intercepted nor were his movements impeded by troops of the de facto Government and no effectual attempt was made to frustrate his hostile designs against Americans. In fact, as I am informed, while Villa and his band were slowly moving toward the American frontier in the neighborhood of Columbus, N. M., not a single Mexican soldier was seen in this vicinity. Yet the Mexican authorities were fully cognizant of his movements, for on March 6, as General Gavira publicly announced, he advised the American military authorities of the outlaw's approach to the border, so that they might be prepared to prevent him from crossing the boundary.

Villa's unhindered activities culminated in the unprovoked and cold-blooded attack upon American soldiers and citizens in the town of Columbus on the night of March 9, the details of which do not need repetition here in order to refresh your memory with the heinousness of the crime. After murdering, burning and plundering, Villa and his bandits, fleeing south, passed within sight of the Carranzita military post at Casas Grandes, and no effort was made to stop him by the officers and garrison of the de facto Government stationed there.

In the face of these depredations, not only on American lives and property on Mexican soil, but on American soldiers, citizens and homes on American territory, the perpetrators of which General Carranza was unable or possibly considered it inadvisable to apprehend and punish, the United States had no recourse other than to employ force to disperse the bands of Mexican outlaws who were with increasing boldness systematically raiding across the international boundary.

The marauders engaged in the attack on Columbus were driven back across the border by American cavalry, and, subsequently, as soon as a sufficient force to cope with the band could be collected, were pursued into Mexico in an effort to capture or destroy them. Without cooperation or assistance in the field on the part of the de facto Government, despite repeated requests by the United States, and without apparent recognition on its part of the desirability of putting an end to these systematic raids, or of punishing the chief perpetrators of the crimes committed, because they menaced the good relations of the two countries, American forces pursued the lawless bands as far as Parral, where the pursuit was halted by the hostility of Mexicans, presumed to be loyal to the de facto Government, who arrayed themselves on the side of outlawry and became in effect the protectors of Villa and his band.

In this manner and for these reasons have the American forces entered Mexican territory. Knowing fully the circumstances set forth, the de facto Government cannot be blind to the necessity which compelled this Government to act, and yet it has seen fit to recite groundless sentiments of hostility toward the expedition and to impute to this Government ulterior motives for the continued presence of American troops on Mexican soil. It is charged that these troops crossed the frontier without first obtaining the consent or permission of the de facto Government. Obviously, as immediate action alone could avoid, there was no opportunity to reach an agreement (other than that of March 10-13, now repudiated by General Carranza) prior to the entrance of such an expedition into Mexico if the expedition was to be effective. Subsequent events and correspondence have demonstrated to the satisfaction of this Government that General Carranza would not have entered into any agreement providing for an effective plan for the capture and destruction of the Villa bands.

While the American troops were moving rapidly southward in pursuit of the raiders, it was the form and nature of the agreement that occupied the attention of General Carranza, rather than the practical object which it was to obtain the number of limitations that could be imposed upon the American forces to impede their progress, rather than the obstacles that could be raised to prevent the escape of the outlaws. It was General Carranza who suspended through your note of April 12 all discussions and negotiations for an agreement along the lines of the protocols between the United States and Mexico concluded during the period 1882-1896, under which the two countries had so successfully restored peace on their common boundary.

It may be mentioned here that, notwithstanding the statement in your note that "the American Government gave no answer to the note of April 12," this note was replied to on April 14.

Shortly after this reply the conferences between Generals Scott, Funston and Obregon began at El Paso, during which they signed on May 2 a project of a memorandum ad referendum, regarding the withdrawal of American troops. As an indication of the alleged bad faith of the American Government, you state that though General Scott declared in this memorandum that the destruction and dispersion of the Villa band "had been accomplished," yet American forces are not withdrawn from Mexico. It is only necessary to read the memorandum, which is in the English language, to ascertain that this is clearly a misstatement, for the memorandum states that "the American punitive expeditionary forces have destroyed or dispersed many of the lawless elements and bandits . . . or have driven them far into the interior of the Republic of Mexico," and, further, that the United States forces were then "carrying on a vigorous pursuit of such small numbers of bandits or lawless elements as may have escaped."

The context of your note gives the impression that the object of the expedition being admittedly accomplished, the United States had agreed in the memorandum to begin the withdrawal of its troops. The memorandum shows, however, that it was not alone on account of partial dispersion of the bandits that it was decided to begin the withdrawal of American forces, but equally on account of the assurances of the Mexican Government that their forces were "at the present time being augmented and strengthened to such an extent that they would "continue to diligently pursue, capture, or destroy any lawless bands of bandits that may still exist or hereafter exist in the northern part of Mexico," and that it would "make a proper distribution of such of its forces as may be necessary to prevent the possibility of invasion of American territory from Mexico." It was because of these assurances and because of General Scott's confidence that they would be carried out that he said that American forces would be "gradually withdrawn."

It is to be noted that, while the American Government was willing to ratify this agreement, General Carranza refused to do so, as General Obregon stated, because, among other things, it imposed improper conditions upon Mexico.

Notwithstanding the assurances in the memorandum, it is well known that the forces of the de facto Government have not carried on a vigorous pursuit of the remaining bandits, and that no proper distribution of forces to prevent the invasion of American territory has been made. I am reluctant to be forced to the conclusion which might be drawn from these circumstances that the de facto Government, in spite of the crimes committed and the sinister designs of Villa and his followers, did not and does not intend or desire that these outlaws should be captured, destroyed or dispersed by American troops, or, at the request of this Government, by Mexican troops.

THE ZIMMERMAN TELEGRAM

From the German Foreign Secretary to the German Minister in Mexico.

IN sending this telegram to the German envoy, Herr von Eckhardt, in Mexico, Dr. Alfred Zimmerman, the German Secretary for Foreign Affairs, displayed such diplomatic obtuseness as characterized Teuton statesmanship throughout the war. Secretary Zimmerman admitted the authenticity of the amazing, if not amusing, cipher dispatch, and Japan indignantly repudiated it. The American Government obtained a copy of it in a Washington telegraph Office and it was decoded by the British Admiralty by means of a German code in possession of its Intelligence Service. As a result of the expose Zimmerman Was removed from office.

On January 31 twelve days after this historic episode Germany proclaimed her resolve to wage ruthless submarine warfare, regardless of consequences. Ambassador von Bernstorff was given his passports, and our Ambassador, James W. Gerard, was recalled from Berlin. War was a foregone conclusion.

ON February 1st we intend to begin submarine warfare unrestricted. In spite of this, it is our intention to endeavor to keep neutral the United States of America. If this attempt is not successful, we propose an alliance on the following basis with Mexico : That we shall make war together and together make peace. We shall give general financial support, and it is understood that Mexico is to reconquer the lost territory in New Mexico, Texas and Arizona. The details are left to you for settlement.

You are instructed to inform the President of Mexico of the above in the greatest confidence as soon as it is certain that there shall be an outbreak of war with the United States, and suggest that the President of Mexico, on his own initiative, should communicate with Japan suggesting adherence at once to this plan. At the same time, offer to mediate between Germany and Japan.

Please call to the attention of the President of Mexico that the employment of ruthless submarine warfare now promises to compel England to make peace in a few months.

Berlin, January 19, 1917.

ZIMMERMAN