ned attitude hitherto assumed by the
Imperial German Government in matters of international right, and
particularly with regard to the freedom of the seas; having learned to
recognize the German views and the German influence in the field of
international obligation as always engaged upon the side of justice and
humanity; and having understood the instructions of the Imperial German
Government to its naval commanders to be upon the same plane of humane
action prescribed by the naval codes of the other nations, the
Government of the United States was loath to believe--it cannot now
bring itself to believe--that these acts, so absolutely contrary to the
rules, the practices, and the spirit of modern warfare, could have the
countenance, or sanction of that great government. It feels it to be its
duty, therefore, to address the Imperial German Government concerning
them with the utmost frankness and in the earnest hope that it is not
mistaken in expecting action on the part of the Imperial German
Government, which will correct the unfortunate impressions which have
been created, and vindicate once more the position of that government
with regard to the sacred freedom of the seas.

The Government of the United States has been apprised that the Imperial
German Government considered themselves to be obliged by the
extraordinary circumstances of the present war and the measure adopted
by their adversaries in seeking to cut Germany off from all commerce, to
adopt methods of retaliation which go much beyond the ordinary methods
of warfare at sea, in the proclamation of a war zone from which they
have warned neutral ships to keep away. This government has already
taken occasion to inform the Imperial German Government that it cannot
admit the adoption of such measures or such a warning of danger to
operate as in any degree an abbreviation of the rights of American
shipmasters or of American citizens bound on lawful errands as
passengers on merchant ships of belligerent nationality, and that it
must hold the Imperial German Government to a strict accountability for
any infringement of those rights, intentional or incidental. It does not
understand the Imperial German Government to question these rights. It
assumes, on the contrary, that the Imperial Government accept, as of
course, the rule that the lives of noncombatants, whether they be of
neutral citizenship or citizens of one of the nations at war, cannot
lawfully or rightfully