at
Britain increased eighty-eight vessels and 344,000 tons. France at the
end of 1915 was only short nine steamers and 12,500 tons of the
previous year's total. Italy and Russia both show an increase in
tonnage.

"It is therefore clear that the shortage of tonnage is due not to the
action of submarines, but to the great requirements of the military
and naval forces. The latest published statement of these show that
they are demanding 3,100 vessels."

Another turn was given to the controversy over sea laws during the
first quarter of 1916 by the arming of many British and a considerable
proportion of Italian passenger vessels. Earlier in the war a few
British ships came into New York harbor with guns aboard, but they
were forced to abandon the plan because of American protests. The
second attempt was different and so were the circumstances. Germany
had shown a disregard for the helplessness of passenger craft that did
not permit of forcible objection to the adoption of defensive methods
by such vessels. The Italians, in particular, displayed a resolute
spirit. Diplomatic hints had no weight at Rome and one after another
the Italian liners came into New York with trim three-inch pieces fore
and aft. They had a most suggestive look and were manned by crews
trained in the navy. Not since the days of open piracy had armed
merchant ships been seen in American waters. Their presence recalled
the time when every ship that sailed was prepared to fight or run as
necessity might dictate.

Germany flatly refused to consider merchantmen with guns aboard as
anything but warships, and gave notice that she would sink them
without warning. Once more the relations of Germany and the United
States reached a point that bordered on an open break. Although this
never quite happened, the United States temporizing and the kaiser's
agents granting just enough to prevent a rupture, the situation was
exceedingly delicate. American contentions ultimately were met by the
promise that armed craft would not be attacked unless they made an
offensive move. This left things as they had been before. There was no
world court to decide what an offensive move meant, nor to enforce a
decision.

The White Star line announced in the closing week of February, 1916,
that passenger service between the United States and England would be
discontinued until further notice. This meant that all of the
company's ships had been requisitioned for the carrying of mu