an aim which includes the freedom of the seas, and in which the
German Government believe themselves still to be in agreement with
the Government of the United States.

"On this assumption the German Government beg to inform the Government
of the United States that instructions have been issued to the German
naval forces to observe the general principles of international
law, with regard to the holding up, searching and destruction of
merchant vessels, and not to sink any merchant vessel, even within
the war zone, without warning and rescue of the passengers and
crew, unless they attempt to escape or offer resistance.

"The German Government hope and expect that these new instructions
to the naval forces will also remove in the eyes of the United
States Government every obstacle that might stand in the way of the
realization of the offer of co-operation contained in the Note of
the 23rd July, 1915, towards restoring the freedom of the seas during
the war, and they do not doubt that the United States Government will
now insist with all possible emphasis on the immediate observation
by the British Government of those international rules which were
universally accepted before the war, and which are specifically stated
in the Notes of the American Government to the British Government
of the 28th December, 1914, and the 5th November, 1915. Should
it happen that the steps taken by the Government of the United
States do not meet with the desired result of insuring recognition
of the laws of humanity by all the combatant nations, the German
Government would consider themselves faced by a new situation, for
which they must reserve for themselves full freedom of decision."

The German Note reached the German Embassy piecemeal, and while
the first part was being deciphered, its harsh tone produced in
an increasing degree the impression: "Then it is war," which was
not relieved until we came to the conclusion of the text.

The attempt made by the Imperial Government to reserve to themselves
the right to resume the submarine campaign at a later date was not
accepted by Mr. Wilson, and so the difference of opinion remained,
which was bound to become a _casus belli_ if we reverted to unrestricted
submarine warfare. This reservation led to a further Note from
Washington, which I give here:

"The Note of the Imperial German Government under date of May 4th,
1916, has received careful consideration by the Government of the
Un