sition in history as the great "peace maker"
is probably the fact, but he had also more immediate and practical
purposes in mind. Above all, Mr. Wilson was bent on keeping the United
States out of the war; he knew that there was only one certain way of
preserving peace in this country, and that was by bringing the war
itself to an end. "An early peace is all that can prevent the Germans
from driving us at last into the war," Page wrote at about this time;
and this single sentence gives the key to the President's activities for
the succeeding nine months. The negotiations over the _Sussex_ had
taught Mr. Wilson this truth. He understood that the pledge which the
German Government had made was only a conditional one; that the
submarine campaign had been suspended only for the purpose of giving the
United States a breathing spell during which it could persuade Great
Britain and France to make peace.

"I repeat my proposal," Bernstorff cabled his government on April
26,[38] "to suspend the submarine war at least for the period of
negotiations. This would remove all danger of a breach [with the United
States] and also enable Wilson to continue his labours in his great plan
of bringing about a peace based upon the freedom of the seas--i.e., that
for the future trade shall be free from all interference in time of war.
According to the assurances which Wilson, through House, has given me,
he would in that case take in hand measures directly against England. He
is, however, of the opinion that it would be easier to bring about peace
than to cause England to abandon the blockade. This last could only be
brought about by war and it is well known that the means of war are
lacking here. A prohibition of exports as a weapon against the blockade
is not possible as the prevailing prosperity would suffer by it.

"The inquiries made by House have led Wilson to believe that our enemies
would not be unwilling to consider peace. In view of the present
condition of affairs, I repeat that there is only one possible course,
namely, that Your Excellency [Von Jagow] empower me to declare that we
will enter into negotiations with the United States touching the conduct
of the submarine war while the negotiations are proceeding. This would
give us the advantage that the submarine war, being over Mr. Wilson's
head, like the sword of Damocles, would compel him at once to take in
hand the task of mediation."

This dispatch seems sufficiently to expl