Papers Relating to the Foreign Relations of the United States, 1917, Supplement 1, The World War

File No. 763.72/3179

The German Ambassador ( Bernstorff) to the Secretary of State

[Translation]²

Washington, January 31, 1917.
[Received 4.10 p.m.]

Mr. Secretary of State: Your excellency was good enough to transmit to the Imperial Government a copy of the message which the President of the United States of America addressed to the Senate on the 22 instant. The Imperial Government has given it the earnest consideration which the President’s statements deserve, inspired as they are by a deep sentiment of responsibility. It is highly gratifying to the Imperial Government to ascertain that the main tendencies of this important statement correspond largely to the desires and principles professed by Germany, These principles especially include self-government and equality of rights for all nations. Germany would be sincerely glad if in recognition of this principle countries like Ireland and India, which do not enjoy the benefits of political independence, should now obtain their freedom. The German people also repudiate all alliances which serve to force the countries into a competition for might and to involve them in a net of selfish intrigues. On the other hand, Germany will gladly cooperate in all efforts to prevent future wars. The freedom of the seas, being a preliminary condition of the free existence of nations and the peaceful intercourse between them, as well as the open door for the commerce of all nations, has always formed part of the leading principles of Germany’s political program. All the more the Imperial Government regrets that the attitude of her enemies who are so entirely opposed to peace makes it impossible for the world at present to bring about the realization of these lofty ideals. Germany and her allies were ready to enter now into a discussion of peace and had set down as basis the guaranty of existence, honor, and free development of their peoples. Their aims, as has been expressly stated in the note of December 12, 1916,¹ were not directed towards the destruction or annihilation of their enemies and were according to their conviction perfectly compatible with the rights of the other nations. As to Belgium for which such warm and cordial sympathy is felt in the United States, the Chancellor had declared only a few weeks previously that its annexation had never formed part of Germany’s intentions. The peace to be signed with Belgium was to provide for such conditions in that country, with which Germany desires to maintain friendly neighborly relations, that Belgium should not be used again by Germany’s enemies for the purpose of instigating continuous hostile intrigues. Such precautionary measures are all the more necessary, as Germany’s enemies have repeatedly stated not only in speeches delivered by their leading men, but also in the statutes of the economical conference in Paris, that it is their intention not to treat Germany as an equal, even after peace has been restored, but to continue their hostile attitude and especially to wage a systematical economical war against her.

The attempt of the four allied powers to bring about peace has failed owing to the lust of conquest of their enemies, who desired to dictate the conditions of peace. Under the pretense of following the principle of nationality our enemies have disclosed their real aims in this war, viz. to dismember and dishonor Germany, Austria-Hungary, Turkey, and Bulgaria. To the wish of reconciliation they oppose the will of destruction. They desire a fight to the bitter end.

A new situation has thus been created which forces Germany to new decisions. Since two years and a half England is using her naval power for a criminal attempt to force Germany into submission by starvation. In brutal contempt of international law the group of powers led by England does not only curtail the legitimate trade of their opponents but they also by ruthless pressure compel neutral countries either to altogether forego every trade not agreeable to the Entente powers or to limit it according to their arbitrary decrees. The American Government knows the steps which have been taken to cause England and her allies to return to the rules of international law and to respect the freedom of the seas. The English Government, however, insists upon continuing its war of starvation, which does not at all affect the military power of its opponents, but compels women and children, the sick and the aged to suffer, for their country, pains and privations which endanger the vitality of the nation. Thus British tyranny mercilessly increases the sufferings of the world indifferent to the laws of humanity, indifferent to the protests of the neutrals whom they severely harm, indifferent even to the silent longing for peace among England’s own allies. Each day of the terrible struggle causes new destruction, new sufferings. Each day shortening the war will, on both sides, preserve the life of thousands of brave soldiers and be a benefit to mankind.

The Imperial Government could not justify before its own conscience, before the German people, and before history the neglect of any means destined to bring about the end of the war. Like the President of the United States the Imperial Government had hoped to reach this goal by negotiations. After the attempts to come to an understanding with the Entente powers have been answered by the latter with, the announcement of an intensified continuation of the war, the Imperial Government—in order to serve the welfare of mankind in a higher sense and not to wrong its own people—is now compelled to continue the fight for existence, again forced upon it, with the full employment of all the weapons which are at its disposal.

Sincerely trusting that the people and Government of the United States will understand the motives for this decision and its necessity, the Imperial Government hopes that the United States may view the new situation from the lofty heights of impartiality and assist, on their part, to prevent further misery and avoidable sacrifice of human life.

Enclosing two memoranda regarding the details of the contemplated military measures at sea, I remain [etc.]¹

J. Bernstorff

[Enclosure 1]

Memorandum

After bluntly refusing Germany’s peace offer, the Entente powers stated in their note addressed to the American Government that they are determined to continue the war in order to deprive Germany of German provinces in the West and the East, to destroy Austria-Hungary, and to annihilate Turkey. In waging war with such aims, the Entente allies are violating all rules of international law, as they prevent the legitimate trade of neutrals with the Central powers, and of the neutrals among themselves. Germany has, so far, not made unrestricted use of the weapon which she possesses in her submarines. Since the Entente powers, however, have made it impossible to come to an understanding based upon equality of rights of all nations, as proposed by the Central powers, and have instead declared only such a peace to be possible which shall be dictated by the Entente allies and shall result in the destruction and humiliation of the Central powers, Germany is unable further to forego the full use of her submarines. The Imperial Government, therefore, does not doubt that, the Government of the United States will understand the situation thus forced upon Germany by the Entente allies’ brutal methods of war and by their determination to destroy the Central powers, and that the Government of the United States will further realize that the now openly disclosed intentions of the Entente allies give back to Germany the freedom of action which she reserved in her note addressed to the Government of the United States on May 4, 1916.²

Under these circumstances Germany will meet the illegal measures of her enemies by forcibly preventing after February 1, 1917, in a zone around Great Britain, France, Italy, and in the eastern Mediterranean all navigation, that of neutrals included, from and to England and from and to France, etc., etc. All ships met within that zone will be sunk.

The Imperial Government is confident that this measure will result in a speedy termination of the war and in the restoration of peace which the Government of the United States has so much at heart. Like the Government of the United States, Germany and her allies had hoped to reach this goal by negotiations. Now that the war, through the fault of Germany’s enemies, has to be continued, the Imperial Government feels sure that the Government of the United States will understand the necessity of adopting such measures as are destined to bring about a speedy end of the horrible and useless bloodshed. The Imperial Government hopes all the more for such an understanding of her position, as the neutrals have under the pressure of the Entente powers, suffered great losses, being forced by them either to give up their entire trade or to limit it according to conditions arbitrarily determined by Germany’s enemies in violation of international law.

[Enclosure 2]

Memorandum

From February 1, 1917, all sea traffic will be stopped with every available weapon and without further notice in the following blockade zones around Great Britain, France, Italy, and in the Eastern Mediterranean.

In the North: The zone is confined by a line at a distance of 20 sea miles along the Dutch coast to Terschelling fire [light?] ship, the degree of longitude from Terschelling fire [light?] ship to Udsire, a line from there across the point 62° N. 5° longitude to 62° N. 5° W., further to a point 3 sea miles south of the southern point of the Faroe Islands, from there across point 62° N. 10° W. to 61° N. 15° W., then 57° N. 20° W. to 47° N. 20° W., further to 43° N. 15° W., then along the degree of latitude 43° N. to 20 sea miles from Cape Finisterre and at a distance of 20 sea miles along the north coast of Spain to the French boundary.

In the South: The Mediterranean. For neutral ships remains open: The sea west of the line Pt. del’Espiquette to 38° 20′ N. and 6° E., also north and west of a zone 61 sea miles wide along the North African coast, beginning at 2° longitude west. For the connection of this sea zone with Greece there is provided a zone of a width of 20 sea miles north and east of the following line: 38° N. and 6° E. to 38° N. and 10° E. to 37° N. and 11° 30′ E. to 34° N. and 11° 30′ E. to 34° N. and 22° 30′ E.

From there leads a zone 20 sea miles wide west of 22° 30’ eastern longitude into Greek territorial waters.

Neutral ships navigating these blockade zones do so at their own risk. Although care has been taken, that neutral ships which are on their way toward ports of the blockade zones on February 1, 1917, and have come in the vicinity of the latter, will be spared during a sufficiently long period it is strongly advised to warn them with all available means in order to cause their return.

Neutral ships which on February 1, are in ports of the blockaded zones, can, with the same safety, leave them if they sail before February 5, 1917, and take the shortest route into safe waters.

The instructions given to the commanders of German submarines provide for a sufficiently long period during which the safety of passengers on unarmed enemy passenger ships is guaranteed.

Americans, en route to the blockade zone on enemy freight steamers, are not endangered, as the enemy shipping firms can prevent such ships in time from entering the zone.

Sailing of regular American passenger steamers may continue undisturbed after February 1, 1917, if—

(a) the port of destination is Falmouth.

(b) sailing to or coming from that port course is taken via the Scilly Islands and a point 50° N. 20° W.

(c) the steamers are marked in the following way which must not be allowed to other vessels in American ports: On ships’ hull and superstructure 3 vertical stripes 1 meter wide each to be painted alternately white and red. Each mast should show a large flag checkered white and red, and the stern the American national flag.

Care should be taken that, during dark, national flag and painted marks are easily recognizable from a distance and that the boats are well lighted throughout.

(d) one steamer a week sails in each direction with arrival at Falmouth on Sunday and departure from Falmouth on Wednesday.

(e) the United States Government guarantees that no contraband (according to German contraband list) is carried by those steamers.

2. Communicated together with the German text.
1. Foreign Relations, 1916, Supplement, p. 90.

1. In the translation as telegraphed by the Ambassador in Germany, this closing paragraph is preceded by the following paragraph:

   I beg to direct attention to the enclosed memorandum for the details of the proposed measures of war on the seas; and to give expression at the same time to the expectation that the American Government will warn American vessels against entering the proscribed areas described in the enclosure, and warn its nationals not to confide passengers or goods to vessels touching ports in the proscribed areas (File No. 763.72/3182).

2. Foreign Relations, 1916, Supplement, p. 257.