The German Government has obeyed these rules, even when they were diametrically opposed to her military interests. For instance, Germany allowed the transportation of provisions to England from Denmark until today, though she was well able, by her sea forces, to prevent it. In contradistinction to this attitude, England has not even hesitated at a second infringement of international law, if by such means she could paralyze the peaceful commerce of Germany with neutrals. The German Government will be the less obliged to enter into details, as these are put down sufficiently, though not exhaustively, in the American note to the British Government dated Dec. 29, as a result of five months' experience.
All these encroachments have been made, as has been admitted, in order to cut off all supplies from Germany and thereby starve her peaceful civil population—a procedure contrary to all humanitarian principles. Neutrals have been unable to prevent the interruption of their commerce with Germany, which is contrary to international laws.
The American Government, as Germany readily acknowledges, has protested against the British procedure. In spite of these protests and protests from other neutral States, Great Britain could not be induced to depart from the course of action she had decided upon. Thus, for instance, the American ship Wilhelmina recently was stopped by the British, although her cargo was destined solely for the German civil population, and, according to the express declaration of the German Government, was to be employed only for this purpose.
Germany is as good as cut off from her overseas supply by the silent or protesting toleration of neutrals, not only in regard to such goods as are absolute contraband, but also in regard to such as, according to acknowledged law before the war, are only conditional contraband or not contraband at all. Great Britain, on the other hand, is, with the toleration of neutral Governments, not only supplied with such goods as are not contraband or only conditional contraband, but with goods which are regarded by Great Britain, if sent to Germany, as absolute contraband, namely, provisions, industrial raw materials, &c., and even with goods which have always indubitably been regarded as absolute contraband.
The German Government feels itself obliged to point out with the greatest emphasis that a traffic in arms, estimated at many hundreds of millions, is being carried on between American firms and Germany's enemies. Germany fully comprehends that the practice of right and the toleration of wrong on the part of neutrals are matters absolutely at the discretion of neutrals, and involve no formal violation of neutrality. Germany, therefore, did not complain of any formal violation of neutrality, but the German Government, in view of complete evidence before it, cannot help pointing out that it, together with the entire public opinion of Germany, feels itself to be severely prejudiced by the fact that neutrals, in safeguarding their rights in legitimate commerce with Germany according to international law, have up to the present achieved no, or only insignificant, results, while they are making unlimited use of their right by carrying on contraband traffic with Great Britain and our other enemies.
If it is a formal right of neutrals to take no steps to protect their legitimate trade with Germany, and even to allow themselves to be influenced in the direction of the conscious and willful restriction of their trade, on the other hand, they have the perfect right, which they unfortunately do not exercise, to cease contraband trade, especially in arms, with Germany's enemies.
In view of this situation, Germany, after six months of patient waiting, sees herself obliged to answer Great Britain's murderous method of naval warfare with sharp counter-measures. If Great Britain in her fight against Germany summons hunger as an ally, for the purpose of imposing upon a civilized people of 70,000,000 the choice between destitution and starvation or submission to Great Britain's commercial will, then Germany today is determined to take up the gauntlet and appeal to similar allies.
Germany trusts that the neutrals, who so far have submitted to the disadvantageous consequences of Great Britain's hunger war in silence, or merely in registering a protest, will display toward Germany no smaller measure of toleration, even if German measures, like those of Great Britain, present new terrors of naval warfare.
Moreover, the German Government is resolved to suppress with all the means at its disposal the importation of war material to Great Britain and her allies, and she takes it for granted that neutral Governments, which so far have taken no steps against the traffic in arms with Germany's enemies, will not oppose forcible suppression by Germany of this trade.
Acting from this point of view, the German Admiralty proclaimed a naval war zone, whose limits it exactly defined. Germany, so far as possible, will seek to close this war zone with mines, and will also endeavor to destroy hostile merchant vessels in every other way. While the German Government, in taking action based upon this overpowering point of view, keeps itself far removed from all intentional destruction of neutral lives and property, on the other hand, it does not fail to recognize that from the action to be taken against Great Britain dangers arise which threaten all trade within the war zone, without distinction. This a natural result of mine warfare, which, even under the strictest observance of the limits of international law, endangers every ship approaching the mine area. The German Government considers itself entitled to hope that all neutrals will acquiesce in these measures, as they have done in the case of the grievous damages inflicted upon them by British measures, all the more so as Germany is resolved, for the protection of neutral shipping even in the naval war zone, to do everything which is at all compatible with the attainment of this object.