ry results of the great Somme
drive. German morale at home was weakening; but if the Allies could be
pictured as refusing all terms and determined upon the destruction of
Germany, the people would doubtless agree to the unrestricted use of the
submarine as purely defensive in character, even if it brought to the
Allies the questionable assistance of America. The German note itself
contained no definite terms. But its boastful tone permitted the
interpretation that Germany would consider no peace which did not leave
Central and Southeastern Europe under Teuton domination; the specific
terms later communicated to the American Government in secret, verified
this suspicion. A thinly veiled threat to neutral nations was to be read
between the lines of the German suggestion of negotiations.

Although it was obvious that he would be accused of acting in collusion
with Germany, President Wilson decided not to postpone the peace note
already planned. He looked upon the crisis as serious, for if peace were
not secured at this time the chances of the United States remaining out
of the war were constantly growing less. If he could compel a clear
definition of war aims on both sides, the mutual suspicion of the warring
peoples might be removed; the German people might perceive that the war
was not in reality for them one of defense; or finally the Allies, toward
whom Wilson was being driven by the threats of German extremists, might
define their position in such terms as would justify him before the world
in joining with them in a conflict not waged for selfish national
purposes but for the welfare of humanity. Issued on December 18, 1916,
his note summed up the chief points of his recently developed policy. It
emphasized the interest of the United States in the future peace of the
world, the irreparable injury to civilization that might result from a
further continuance of the existing struggle, the advantages that would
follow an explicit exposure of belligerent purposes, and the possibility
of making "the permanent concord of the nations a hope of the immediate
future, a concert of nations immediately practicable."

As a step towards peace the note was unsuccessful. Germany was evasive.
There was nothing her Government wanted less than the definite exposure
of her purposes that Wilson asked. Her leaders were anxious to begin
negotiations while German armies still held conquered territories as
pawns to be used at the peace table.