neutral flags and neutral ships could not otherwise be recognized beyond
doubt. Germany, however, being in a state of necessity, wherein she was
placed by violation of law, must render effective her measures in all
circumstances, in order thereby to compel her adversary to adopt methods
of warfare corresponding with international law, and so to restore the
freedom of the seas, of which Germany at all times is the defender and
for which she today is fighting.

Germany therefore rejoices that the United States has made
representations to Great Britain concerning the illegal use of their
flag, and expresses the expectation that this procedure will force
Great Britain to respect the American flag in the future. In this
expectation, commanders of German submarines have been instructed, as
already mentioned in the note of Feb. 4, to refrain from violent action
against American merchant vessels, so far as these can be recognized.

In order to prevent in the surest manner the consequences of
confusion--though naturally not so far as mines are concerned--Germany
recommends that the United States make its ships which are conveying
peaceful cargoes through the British war zone discernible by means of
convoys.

Germany believes it may act on the supposition that only such ships
would be convoyed as carried goods not regarded as contraband according
to the British interpretation made in the case of Germany.

How this method of convoy can be carried out is a question concerning
which Germany is ready to open negotiations with the United States as
soon as possible. Germany would be particularly grateful, however, if
the United States would urgently recommend to its merchant vessels to