"These two policies are as follows:
"(a) To work for a separate peace with the Emperor, the Court, and the aristocracy, on the principle of not interfering with the domestic affairs of the Hapsburg Monarchy, and of leaving its territory almost or quite intact; or
"(b) To try to break the power of Austria-Hungary, as the weakest link in the chain of enemy States, by supporting and encouraging all anti-German and pro-Ally peoples and tendencies.
"The (a) policy has been tried without success. The Hapsburgs are not free agents. They have not the power, even though they may wish, to break away from Germany, because—
"(1) They are controlled by the internal structure of their dominions (the Dual System), which gives Germany decisive leverage over them through the Germans of Austria and the Magyars of Hungary; and
"(2) Because the Allies cannot offer them acceptable terms without breaking with Italy.
"It remains to try the (b) policy.
"This policy is not primarily, or even, in the last resort, necessarily anti-Hapsburgian; it is not opposed to the interests of the
