"The Government of the United States has been very patient. At every stage of this distressing experience of tragedy after tragedy it has sought to be governed by the most thoughtful consideration of the extraordinary circumstances of an unprecedented war, and to be guided by sentiments of very genuine friendship for the people and Government of Germany. It has accepted the successive explanations and assurances of the Imperial Government as of course given in entire sincerity and good faith, and has hoped, even against hope, that it would prove to be possible for the Imperial Government so to order and control the acts of its naval commanders as to square its policy with the recognized principles of humanity as embodied in the law of nations. It has made every allowance for unprecedented conditions and has been willing to wait until the facts became unmistakable and were susceptible of only one interpretation.
"If it is still the purpose of the Imperial Government to prosecute an indiscriminate warfare against vessels of commerce by the use of submarines without regard to what the Government of the United States must consider the sacred and indisputable rules of international law and the universally recognized dictates of humanity, the Government of the United States is at last forced to the conclusion that there is but one course to pursue. Unless the Imperial Government should now immediately declare and effect an abandonment of its present methods of submarine warfare against passenger and freight-carrying vessels, the Government of the United States can have no choice but to sever diplomatic relations with the German Empire altogether. This action the Government of the United States contemplates with the greatest reluctance, but feels constrained to take in behalf of humanity and the rights of neutral nations."
After this Note it is obvious that there was no longer any doubt in Berlin, that persistence in the point of view they had hitherto adopted would bring about a break with the United States, for I received instructions to make all preparations for German merchant ships lying in American ports to be rendered useless by the destruction of their engines.
I also received orders to arrange that Mr. Gerard, who had not been informed of the minimum demands of the American Government, should be instructed accordingly.
My reply was as follows:
Cablegram in Cipher
"Washington, 1st May, 1916.
"House has informed me that at his request Gerard has already been informed of the minimum demands of the American Government. Wilson is strongly influenced by peace votes. Even the anti-German ring desires the end of the war, as otherwise they fear financial loss. My suggestions are based on the view that submarine warfare, according to international law, is valueless, and in any case, the opening of peace negotiations is more important. It would be advisable in the Note of reply to touch only on the principal points, to talk much of international law and humanity, and to leave details to be settled at a later date. I fear that the continuance of the submarine campaign, on the lines of cruiser warfare, only means the postponement of the rupture as fresh incidents are bound to occur."
On the 4th May followed the German reply, which averted the fourth serious crisis, by declaring that the submarine campaign would return to the recognized laws of cruiser-warfare. The Note began by opposing, in strong terms, the American view, and concluded with the following sentences:
"The German Government feel themselves justified in declaring that it would be impossible to answer to humanity and history, if, after twenty-one months of war the contention over the submarine war were allowed to develop into a serious menace to peace between the German and American peoples. Such a development the German Government will do everything in their power to prevent. They desire, at the same time, to make a final contribution towards confining—so long as the war lasts—the war to the present combatant Powers, 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.