If the President had a programme, other than the general principles and the few territorial settlements included in his Fourteen Points, and the generalities contained in his “subsequent addresses,” he did not show 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 a working programme for the negotiation of a treaty they were inadequate, if not wholly useless.