vessels shall not be placed in
jeopardy.

"In order to exclude any unforeseen dangers to American passenger
steamers * * * the German submarines will be instructed to permit the
free and safe passage of such passenger steamers when made recognizable
by special markings and notified a reasonable time in advance."

[Sidenote: American ships attacked later.]

Subsequently the following vessels carrying American citizens were
attacked by submarines: British liner _Orduna_, July 9; Russian steamer
_Leo_, July 9; American steamer _Leelanaw_, July 25; British passenger
liner _Arabic_, August 19; British mule ship _Nicosian_, August 19;
British steamer _Hesperian_, September 4. In these attacks twenty-three
Americans lost their lives, not to mention the large number whose lives
were placed in jeopardy.

Following these events, conspicuous by their wantonness and violation of
every rule of humanity and maritime warfare, the German Ambassador, by
instructions from his Government, on September 1 gave the following
assurances to the Government of the United States:

"Liners will not be sunk by our submarines without warning and without
safety of the lives of noncombatants, provided that the liners do not
try to escape or offer resistance."

[Sidenote: Germany gives assurance of regard for lives of
noncombatants.]

On September 9, in a reply as to the submarine attack on the _Orduna_,
the German Government renewed these assurances in the following
language:

[Sidenote: The _Orduna_ case.]

"The first attack on the _Orduna_ by a torpedo was not in accordance
with the existing instructions, which provide that large passenger
steamers are to be torpedoed only after previous warning and after the
rescuing of passengers and crew. The failure to observe the instructions
was based on an error which is at any rate comprehensible and the
repetition of which appears to be out of the question, in view of the
more explicit instructions issued in the meantime. Moreover, the
commanders of the submarines have been reminded that it is their duty to
exercise greater care and to observe carefully the orders issued."

The German Government could not more clearly have stated that liners or
large passenger steamers would not be torpedoed except upon previous
warning and after the passengers and crew had been put in places of
safety.

[Sidenote: Statement about the _William P. Frye_.]

On November 29 the German Government states, in conn