as neither right nor constitutionally permissible
that I should assume the responsibility of making.

"On the third of February last I officially laid before you the
extraordinary announcement of the Imperial German Government that on and
after the first day of February it was its purpose to put aside all
restraints of law or of humanity and use its submarines to sink every
vessel that sought to approach either the ports of Great Britain and
Ireland or the western coasts of Europe or any of the ports controlled
by the enemies of Germany within the Mediterranean.

COMMANDERS UNDER RESTRAINT.

"That had seemed to be the object of the German submarine warfare
earlier in the war, but since April of last year the Imperial Government
had somewhat restrained the commanders of its undersea craft in
conformity with its promise then given to us that passenger boats should
not be sunk and that due warning would be given to all other vessels
which its submarines might seek to destroy when no resistance was
offered or escape attempted, and care taken that their crews were given
at least a fair chance to save their lives in their open boats.

"The precautions taken were meager and haphazard enough, as was proved
in distressing instance after instance in the progress of the cruel and
unmanly business; but a certain degree of restraint was observed.

"The new policy has swept every restriction aside. Vessels of every
kind, whatever their flag, their character, their cargo, their
destination, their errand, have been ruthlessly sent to the bottom
without warning and without thought of help or mercy for those on board,
the vessels of friendly neutrals along with those of belligerents.

"Even hospital ships and ships carrying relief to the sorely bereaved
and stricken people of Belgium, though the latter were provided with
safe-conduct through the prescribed areas by the German Government
itself and were distinguished by unmistakable marks of identity, have
been sunk with the same reckless lack of compassion or of principle.

"I was for a little while unable to believe that such things would in
fact be done by any government that had hitherto subscribed to the
humane practices of civilized nations. International law had its origin
in the attempt to set up some law which would be respected and observed
upon the seas, where no nation had the right of domination and where lay
the free highways of the world.

"By painful stage after