"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 United States. It is especially noted, as indicating the purpose of the Imperial Government as to the future, and that it 'is prepared to do its utmost to confine the operations of the war for the rest of its duration to the fighting forces of the belligerents,' and that it is determined to impose on all its commanders at sea the limitations of the recognized rules of international law upon which the Government of the United States has insisted. Throughout the months which have elapsed since the Imperial Government announced on February 4th, 1915, its submarine policy, now happily abandoned, the Government of the United States has been constantly guided and restrained by motives of friendship in its patient efforts to bring to an amicable settlement the critical questions arising from that policy. Accepting the Imperial Government's declaration of its abandonment of the policy which has so seriously menaced the good relations between the two countries, the Government of the United States will rely upon a scrupulous execution henceforth of the now altered policy of the Imperial Government, such as will remove the principal danger to an interruption of the good relations existing between the United States and Germany.