ed requests for help from
the Dominican Government, the Department of State, on January 6,
1905, prepared a cablegram setting forth the basis on which alone
the United States would be able to render assistance. . . .

"Neither that cablegram nor any other despatch whatsoever went
further than simply lay down a basis; and acting on this, but
without instructions authorizing it, the Dillingham-Sanchez protocol
was signed. The Department was advised by cable on January 20 that
an arrangement had been agreed to, and thereupon the Department
officials at once set to work to prepare a treaty; and its officials
were actually engaged in drafting one to send to Santo Domingo,
when the publication of the protocol of January 20 appeared. The
Department at once cabled to Santo Domingo to forward a copy of
the protocol; and as soon as its text could be received, the
Department began work in making amendments and adjusting terms on
which the United States Government could consent to act. As soon
as the two Governments could arrive at substantial agreement as to
the terms, full powers were communicated to Dawson, and the protocol
now before the Senate was accordingly signed.

"In view of the misapprehensions that at once arose, growing out
of publication of the protocol, which upon its face stated it was
to go into effect February 1st, and from which it might naturally
be inferred it was intended to go into effect before the Senate
could have an opportunity to consider it, and without its having
been referred to the Senate for consideration, I considered the
question of the propriety of stating the fact that no instructions
and no powers had ever been granted authorizing the signing of the
protocol of January 20. The decision was reached that repudiation
of the action of Dillingham and Dawson might be construed as a
censure, and that it might cause offence to them as well as to
their friends, who might feel that when the circumstances should
become fully known, that Dillingham and Dawson were justifiable in
assuming the responsibility they did in signing the protocol instead
of making a formal memorandum of the basis agreed on and communicating
it to the Department for the drafting of a treaty. Both of these
officials have a record of faithful and skilful service and
competency, and it was hoped when the facts should become more
fully known, a correct understanding of the actual situation would
remove any ill effects of previo