ring the early days of the war this Government assumed
that the policy adopted by the British Government was due to the
unexpected outbreak of hostilities and the necessity of immediate
action to prevent contraband from reaching the enemy.

For this reason it was not disposed to judge this policy harshly, or
protest it vigorously, although it was manifestly very injurious to
American trade with the neutral countries of Europe. This Government,
relying confidently upon the high regard which Great Britain has so
often exhibited in the past for the rights of other nations,
confidently awaited amendment of a course of action which denied to
neutral commerce the freedom to which it was entitled by the law of
nations.

[Illustration: COUNT LADISLAUS STADNICKI

Founder of the Polish Legion of the German Army.

(_Photo from Engelbrecht._)]

[Illustration: GENERAL VON KROBATKIN

Chief of the Austrian General Staff.

(_Photo from Paul Thompson._)]

This expectation seemed to be rendered the more assured by the
statement of the Foreign Office early in November that the British
Government was satisfied with guarantees offered by the Norwegian,
Swedish, and Danish Governments as to non-exportation of contraband
goods when consigned to named persons in the territories of those
Governments, and that orders had been given to the British fleet and
customs authorities to restrict interference with neutral vessels
carrying such cargoes so consigned to verification of ship's papers
and cargoes.

It is therefore a matter of deep regret that, though nearly five
months have passed since the war began, the British Government has not
materially changed its policy and do not treat less rigorously ships
and cargoes passing between neutral ports in the peaceful pursuit of
lawful commerce, which belligerents should protect rather than
interrupt. The greater freedom from detention and seizure which was
confidently expected to result from consigning shipments to definite
consignees rather than "to order" is still awaited.

It is needless to point out to his Majesty's Government, usually the
champion of the freedom of the seas and the rights of trade, that
peace, not war, is the normal relation between nations and that the
commerce between countries which are not belligerents should not be
interfered with by those at war unless such interference is manifestly
an imperative necessity to protect their national safety, and then
only to the