Papers Relating to the Foreign Relations of the United States, The Paris Peace Conference, 1919, Volume XII

Paris Peace Conf.184.01502/60

Memorandum From the Chief of the Mission to the Baltic Provinces (Greene) to the Secretary General of the Commission to Negotiate Peace (Grew)⁴⁰

Paris, June 30, 1919.

Introduction

The following memorandum covers the situation in Esthonia, Latvia and Lithuania. The case of Finland has already been considered in the report of Commander John A. Gade of this mission, which recommended the recognition of Finland’s independence.⁴¹ This has been done. Therefore, it is not necessary to consider Finland in the present memorandum.

Further details regarding military, political, and other matters in the Baltic Provinces will be found in the appendices⁴² to this memorandum and in the reports already submitted by this mission.

1. General

The present situation in the Baltic Provinces and Lithuania merits the most careful consideration from the Allied and Associated Governments as the continuation of an inactive policy on their part will inevitably deliver these countries to Bolshevism or Germanism—whichever proves strongest.

If Bolshevism completely overruns this territory it will register its greatest westward advance and will bring the Red Menace close to Western Europe; if on the other hand, Germany seizes the land of the Lithuanians, Letts and Esthonians (which she is now in the process of doing) she will possess the entire eastern littoral of the Baltic and will shut the western gate of Russia, thereby securing the opportunity for a preponderate influence in the future of the former Russian Empire, with all this implies in the way of natural resources and man power.

It is, therefore, vital to us that this western doorway to Russia be kept free both from Bolshevism and from Teutonic forceful influence.

2. Strategic Importance of Balticum

In considering this problem it must be borne in mind that the Baltic Provinces and Lithuania have an importance out of all proportion to their size and population. This is due to their geographical situation which makes them:

(1) The most critical barrier states against Bolshevism;

(2) Buffer states between Russia and Germany. (This is their present position. Their geographical situation, however, links their fate to that of Russia.)

(3) The military and commercial key to the hinterland of Russia;^*

(4) The probable direction of Germany’s future expansion, military, political and economic.

For these reasons the Baltic States and Lithuania are the Strategic ground:

(1) To check the westward flow of Bolshevism;

(2) To inaugurate an active and aggressive campaign for the defeat of Bolshevism and the reconstruction of Russia;

(3) To prevent Germany from acquiring military domination over Russia.

3. Bolshevist Danger

Early in 1918 Bolshevism overran the former Russian provinces of Livonia and Esthonia, as well as the Grand Duchy of Finland. Soviet Republics were established and the usual Red regime inaugurated.

From these regions the Bolshevists were ejected by the advance of the German army north which took place during the summer of 1918. The Soviet Governments were overthrown and Esthonia, Livonia and Finland brought under German military control.

After the armistice in November, 1918, the German army began to disintegrate and to withdraw from these countries. Its retreat was followed by a fresh Bolshevist aggression which overran Esthonia, Livonia and Courland as far as the River Windau.

Early in 1919 a counter-movement against Bolshevism started, carried out by the Esthonians, assisted by the Finns and Russian volunteers in the north, and by the German troops under Gen. Von der Goltz in the south, assisted by Baits and Letts. By the 13th of June the Baltic Provinces were once more free from Bolshevism except the eastern part of Latvia known as Lattgalia.

At the present time Bolshevism still menaces these regions. Internal disorder, civil war between Baits and Letts or Baits, and Esths, or the precipitate withdrawal of the German troops might invite a fresh Bolshevist aggression from Russia, particularly if the setback to Kolchak should release troops which Moscow could send against the Baltic front.

A concentration of Bolshevik forces is reported at Riejitsa and they are attacking in the direction of Kreutzburg. This may or may not develop into a serious offensive.

4. German Danger

In the summer of 1915 the German armies conquered Lithuania and Courland and established a military occupation which lasted until the armistice. They changed the gauge of all the railroads from Russian to standard and issued a special currency in rubles and marks for these regions known as the Ost currency, which is still the prevailing legal tender.

After the weakening of Russia due to the revolution, followed by Bolshevism, the German forces pushed north, capturing Riga during the summer of 1918 and continuing northward until they had occupied Livonia, Esthonia and Finland in addition to Courland and Lithuania.

The armistice in November, 1918, was followed by the revolution in Germany, which extended to the army of the East and caused its disintegration. This army, after a revolt against its officers practically dissolved, abandoning or selling large quantities of war material to the Bolshevist forces following its retreat. It is also not improbable that connivance on the part of German authorities with the Bolshevist Government permitted the regions evacuated by the Germans immediately to be taken over by Bolshevist.

By February, 1919, the Bolshevists occupied all of Livonia, a part of Lithuania and Courland as far as the River Windau.

In February a counter-offensive against the Bolshevists was inaugurated by Gen. Von Der Goltz who landed in Libau with a considerable force of German volunteers. Assisted by the Baltic territorial defense troops (Baltic Landeswehr) and later by Lettish troops, the country was eventually cleared of the Bolshevist forces. To-day the Germans completely dominate Lithuania, Latvia and Southern Livonia, including the city of Riga. In this area they maintain a German army of 50,000 to 60,000 men; they support and control the local governments which they overthrow if hostile to them (as in the case of the Ulmanis Government in Latvia); they equip, pay, supply and command the local and Russian forces, as well as their own; they operate all railroads and telegraphs and control or administer all the police functions. In Lithuania there is a German force of 30,000 to 40,000 under Gen. Von Eberhardt; in Courland a German force of nearly 20,000 under Gen. Von der Goltz; in Riga and Southern Livonia, Major Fletcher, a German officer, commands all the local troops, Baits, Letts and Russians, as well as German troops loaned by Gen. Von der Goltz.

Ostensibly the Germans are in this territory under Article XII of the armistice, although there is some claim on their part of being an occupying force on the ground that the armistice cancelled the treaty of Brest-Litovsk⁴³ and thereby revived a state of war, or at least of non-peace, with Russia. Their motives for being in this region are:

(1) To fight Bolshevism—a sincere motive on the part of many of the officers and men in spite of the fact that the German Government is in negotiation with the Soviet Government and that many of the Prussian officers declare their willingness to use Bolshevism as a weapon if Germany is driven too hard by the Allied and Associated Governments;

(2) To maintain their “bridges to the east”, including German colonization and commercial penetration in the Baltic States. By their “bridges to the east” they mean a secure hold on the non-Russian border states of Russia as the first step towards a controlling influence in Russian affairs;

(3) To keep an army in being in order to “protect” East and West Prussia against Polish and other “aggression”, to give employment to the old officer class and for use in case of monarchical and reactionary tendencies in Germany.

I doubt if the present government in Berlin has a definite policy regarding the East. I consider the German control in these provinces more the result of an “economic push” from Germany coupled with the foresight of great financial interests who look to Russia as the field from which to recoup Germany’s losses. This colonizing and commercial movement falls in line with the ambition of Prussian officers to continue their military careers and to form a nucleus for conservatist and monarchist influences.

Germany must be reckoned with in the future of Russia. She cannot be excluded from participation in the reconstitution of Russia, nor is it desirable to do so. Germany should have a share in the commercial opportunity offered by Russia, but not a monopoly. Furthermore, it will be highly perilous to allow her to continue indefinitely to occupy the western gateway to Russia by military force.

At the same time her forces should not be precipitately withdrawn. Before their evacuation from Balticum takes place the Allied and Associated Governments must undertake the support of the local forces and local governments, operation of railroads, etc.

German and Bait forces advancing north and east from Riga have come into collision with Esths and Letts advancing south and east and active fighting is in progress between the two. A temporary armistice was arranged by British, French and American representatives on June 10th but has since been denounced. This warfare has been brought about by mutual ill will and suspicion, the Germans and Baits fearing a flank attack on Riga from the Esthonians and Northern Letts, and the latter anticipating a German and Bait advance on Esthonia.

5. Recommendation of Allied Representatives

The situation seemed so serious to the British, French and American representatives in Latvia that on June 7th the following joint memorandum was drawn up on board the flagship of Commodore Duff, R. N. This memorandum was the result of several days of negotiation and was subscribed to by Commodore Duff, R. N., the Senior British Naval Officer; Commodore Brisson, the Senior French Naval Officer; Lt. Col. Warwick Greene, Chief of the American Mission; and Lt. Col. Tallents, Chief of the British Mission. It was also considered with Colonel John C. Groome of the American Relief Administration. The memorandum is as follows:

Libau, Latvia, June 7, 1919.

In view of the extremely critical position in the Baltic Provinces, the British and American Political Representatives with the British and French Commodores here, have to-day agreed on the following statements:—

“No question is more vital than the arrest of the movement of Prussia towards the North and East. At the same time the Bolshevik danger must not be underestimated. The greatest immediate danger lies in a clash north of Riga between troops, especially Letts, moving south from Esthonia, and Germans and Baits moving north from Riga. Provided that the Associated Governments are in a position to enforce their demands, the Germans should be required, under penalty of which the execution should immediately follow upon noncompliance to refrain absolutely from advancing further northwards in the district north of Riga, in the absence of the Allied Military Mission we feel otherwise unable to recommend the exact measures by which the advance of Prussian forces in the Baltic Provinces should be checked and their withdrawal secured.

“The first need of the situation is the arrival of the Allied Military Mission. It is, however, requested that the Political Representatives of America, France, and Great Britain in the Baltic Provinces may be authorized to make a united statement immediately. It is suggested that the statement should as nearly as possible take the following form:—

“‘An Inter-Allied Military Mission, under command of a British General, will reach the Baltic Provinces, immediately. Arms, equipment, instructors, and pay will be provided for local forces, and for volunteers who may be raised from external sources, in so far as this may be determined by the head of the Military Mission to be necessary for the protection of the provinces against Bolshevism or for other purposes of defence. The local distribution of such supplies will depend upon the loyal acceptance by the forces named of the general direction of the head of the Inter-Allied Military Mission in their fight against Bolshevism, their methods of recruitment, and their relations between each other and with the German and Polish forces.

“‘A loan will be granted immediately to Lithuania and Esthonia respectively, for civil purposes, on condition that the provisional Governments concerned will undertake to lay before the Political Representatives of the Associated Governments in their countries, their proposals for the use of the money thus raised, and that no such proposal is carried out without their approval. On such an arrangement being concluded the blockade of Lithuania would be raised. It is intended that this loan should in particular be used for the provision of the materials required for the restoration of industry and agriculture and the reduction of unemployment. A loan on similar terms will be granted to Latvia as soon as a provisional Coalition Government has been formed which, in the opinion of the Political Representatives of the Associated Governments in Latvia, is truly representative of the inhabitants of the country. On such an arrangement being concluded the blockade of Latvia would also be raised.’”

6. Recommendation of the American Mission

In view of the above situation, the chief of the American Mission to Finland, Esthonia, Latvia and Lithuania recommends;

(1) That Great Britain and the United States accept mandatories for the Baltic Provinces and Lithuania;

(2) That a definite policy of hostility to Bolshevism be adopted, to be made effective by undertaking the support and direction of the Anti-Bolshevist forces operating in the Baltic Provinces, in Lithuania and on the Petrograd front, both those in being and those to be organized. Support to include pay, adequate supplies of every nature and complete military equipment;^†

(3) That in Esthonia and on the Petrograd front the military duties and responsibilities created by this policy be assumed by a British Military Mission;

(4) That in Latvia and Lithuania the same duties and responsibilities be assumed by an American Military Mission;

(5) That moderate loans be granted the local Governments;

(6) That food be furnished the population as required.

If the above is not acceptable, then it is recommended;

(1) That a definite policy of hostility to Bolshevism be adopted, to be made effective by undertaking the support and direction of the anti-Bolshevist forces operating in the Baltic Provinces, in Lithuania and on the Petrograd front, both those in being and those to be organized. Support to include pay, adequate supplies of every nature and complete military equipment;^†

(2) That a British Military Mission undertake the training and direction of the anti-Bolshevist forces in the Baltic Provinces, in Lithuania and on the Petrograd front;

(3) That the United States cooperate with Great Britain in furnishing supplies and military equipment of every nature to these anti-Bolshevist forces;

(4) That the present mission from the American Commission to Negotiate Peace be continued; in military matters to be an observing mission except in so far as it may assume active duties in agreement with the Chief of the British Military Mission, it being contemplated that an American officer will be designated to undertake the direction of the Lithuanian army and that American officers may be detailed for special duties in Riga and Petrograd, if and when the latter city is captured from the Bolshevists;

(5) That food be furnished the population as required;

(6) That moderate loans be granted the local Governments.

Warwick Greene

40. Transmitted to the Secretary General under covering memorandum dated June 28, 1919, Foreign Relations, 1919, Russia, p. 682.
41. Not printed; see telegram No. 354, May 4, 1919, from the Chargé in Denmark, p. 183.
42. None printed.
43. The Baltic States comprise Russia’s entire Baltic sea front; they contain all her western ports except Petrograd which they dominate; the mouths of her great western rivers and the termini of many important railroads. In addition, they lie on the flank of other important railroads. [Footnote in the original.]
43. Foreign Relations, 1918, Russia, vol. i, p. 442.
44. Arms, munitions and other military equipment in abundance can be furnished from the stores in France which have already been paid for, which are being held in quantities beyond any probable requirements and which are using valuable storage space and absorbing labor for their preservation. [Footnote in the original.]
45. Arms, munitions and other military equipment in abundance can be furnished from the stores in France which have already been paid for, which are being held in quantities beyond any probable requirements and which are using valuable storage space and absorbing labor for their preservation. [Footnote in the original.]