order
of January 31, 1917, which produced the diplomatic rupture, the
President disclosed an unexpected view--that Germany's misdeeds in
carrying out her new decree had not, in his opinion, so far provided
the "overt act" for which the United States was waiting.

"Our own commerce has suffered, is suffering," he said, "rather in
apprehension than in fact, rather because so many of our ships are
timidly keeping to their home ports, than because American ships have
been sunk....

"In sum, therefore, the situation we find ourselves in with regard to
the actual conduct of the German submarine warfare against commerce
and its effects upon our own ships and people is substantially the
same that it was when I addressed you on February 3, except for the
tying up of our shipping in our own ports because of the unwillingness
of our shipowners to risk their vessels at sea without insurance or
adequate protection, and the very serious congestion of our commerce,
which has eventuated, a congestion which is growing rapidly more and
more serious every day.

"This in itself might presently accomplish, in effect, what the new
German submarine orders were meant to accomplish, so far as we are
concerned. We can only say, therefore, that the overt act which I have
ventured to hope the German commanders would in fact avoid has not
occurred."

But he felt that American immunity thus far had been more a matter of
happy accident than due to any consideration of German submarine
commanders. Nevertheless, he pointed out, it would be foolish to deny
that the situation was fraught with the gravest possibilities and
dangers. Hence he sought from the Congress "full and immediate
assurance of the authority which I may need at any moment to
exercise."

"No doubt," he proceeded, "I already possess that authority without
special warrant of law, by the plain implication of my constitutional
duties and powers, but I prefer in the present circumstances not to
act upon general implication. I wish to feel that the authority and
the power of the Congress are behind me in whatever it may become
necessary for me to do. We are jointly the servants of the people and
must act together and in their spirit, so far as we can divine and
interpret it....

"I am not now proposing or contemplating war or any steps that need
lead to it. I merely request that you will accord me by your own vote
and definite bestowal the means and the authority to safeguard in
pr