T H E P R O T E C T IO N O F
N E U T R A L R IG H T S A T S E A
D o w/ m ea ts
W IT H
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S TU RGIS
C O M P ANY
1
9 5
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19 1 5
I N T RO DUCTI O N
When th e
A m eri can p eopl e a r e a sk ed fo r a d efini t e O p inion
some
great qu es tio n th ey ca n n o t o ffe r i t t o advanta ge w ith o u t s eei n g t h e
rec o rd be fore th em H avi n g n e ith er t im e n o r i ncl ination to se a rch
th rough n ew s pape r fil es o r gover n m e n t repo rt s th ey m ay le t h ear
say i mpuls e o r em o tio n unde r th e spel l o f h eadl i n e and edito ri al
take th e pl a c e o f reas o n i n sh aping th ei r j udgm ent I n orde r there
f o re to estimate ca lm ly th e s ituation c rea t ed by t h e n ava l war fa re i n
i ts b ea ring upo n thi s country th e cou rs e o f eve n ts s i n ce i ts o utb reak
o ught t o be s tudi ed ca re ful l y i n th e li g h t o f th e d o cum ents th at set
th em fo rth
A p a rt from th e Decl arati on o f London most o f th e paper s h er e
a s sembl ed h av e be e n taken from Dipl o ma t i c C o rrespondenc e w i th
”
B el l igerent G o v ernm en t s rel ati n g to Neut ral Rights a n d Comm erc e
p ubli shed by th e Depa rtme n t o f S tate May 2 7 1 9 1 5 ; the remai n de r
n o t s o publ i sh ed fr o m newspap e r p rint Th e y s erv e t o i llustrate th e
m o r e impo rta nt a cts a n d p o l i c i es o f th e two great a n tago n i s ts al on e
”
”
Men s oo n r ecog n i z ed th at B ri ta n ni a and Germani a we re th e
q u eens and thei r resp ect i ve a l li es only th e m i n o r p ie c e s i n th e w a r
g a m e o f th e world W hat th es e nati o ns hav e done a n d what th ey
pu rpos e to do a re th e determ in in g facto rs ; th ei r pa rtne rs a re u s efu l
t o m ake s o me o f th e mov e s
F r o m a n exami n atio n o f th e reco r d tw o p rim a ry fact s a re cle a r :
fi rst that u n d er th e pl ea o f m i li ta ry n ec ess ity b ot h Grea t B ritai n a n d
Ge rm a n y h av e c o mm it t ed vi o lati o n s o f i n te r n a t ional l aw a n d h av e
i nj u red n eutra l rights acco rdi n gly ; s ec o nd th at th e United S tates ha s
pr o tested aga i n s t th es e vi o l a ti o n s d i rectly o n i ts o wn b eh al f a n d
i n di rectly o n b eh al f o f o th e r n eutrals T o G re a t B ri ta in th e e x clu
s i o n from Germa n y o f fo o d an d raw m aterial s h ithe rto n o t regard ed
a s c on t raba n d u n der th e la w o f n at io n s and th e de n ia l o f an y c o m
m e r c i al p ri vi leges wh ateve r o n th e oce a n a re matters appa re n tl y
v i tal T o Ge rmany th e exclu si on from G reat B ri tai n o f m u n i ti o ns
a n d the de stru cti o n o f i ts ove rs ea trade a re m atters n o l ess
o f wa r
v i tal To th e United S tates the p re s ervation o f n eutral ri ghts i n th e
fa ce o f th es e b el l igerent cl aim s i s a m atte r j ust a s v i tal
Convi n ced t h a t physic al a n d fi n a n ci al endu ra n c e i s th e s upreme test
b el i eving a lso th at n ational exi stence m ay depe n d upon th e i s sue o f
th e s t ruggl e G reat B rit ai n an d G erma n y it w o uld s eem a re stri vi n g
t o s ta rve ea ch oth e r o ut I mpel led by s uch idea s th e y tr y t o re n de r
th e pr o ce ss o f exclus i o n e ffectua l by th e only mea n s th at each h a s
at it s d i S p o s al : th e o n e by sh i ps th a t cou rs e O ver th e s ea s th e oth e r
by sh ips th at cou rs e u n de r th e s ea s
Ge rmany h a s n o m e rch antmen l e ft o n th e o c ean fo r B riti sh sub
m a rines to d estroy i f th e oth e r sh i p s o f wa r we re insuffi ci ent i n
strength o r numb e r fo r th ei r captu r e G reat B ritai n th ereup on
sei zes n eutra l v e sse l s, e v e n wh e n b o und fo r n eut ra l p o rts a n d c a rry
i n g no n con t raba n d c argoes
Th e s h i ps m ay b e rel eas ed and th e ca r
i
f
r ; but th e ri gh t o f neutrals n everth ele ss
oes
re
q
ui
sition
ed
pai
d
o
f
g
on
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I N T RO DU CTI O N
tra d e w i th oth e r n eut ral s an d e v en w i th b el l i g erents i n n o n c o n tr a
ba n d a rti cl e s i s a fundame nta l p ri nc ip l e o f th e freedom o f th e s eas
w h i ch cannot and s h o ul d n o t b e b ough t o ff wi th mon ey
G reat B r itai n h as a n eno rmou s num b er o f m erch antm en ava i l abl e
to b ri ng i t a l l th e s upp li e s i t n eeds Ge rm an y ha s no des i r e t o sa c ri
supe rm a ri n e fl eet by a con fl i c t w i th the fa r mor e p o w er ful
fic e i ts
B ri ti sh navy A ccordingly i t u s es i t s subma rine s to des tr o y not o n l y
belli g ere n t wa rsh ips but be ll i g erent m erch antm en and even neutra l
v e ss el s o f th e l att e r s o rt i f th ey a r e k nown to ca rry c o ntrab and
O n beh al f o f th is n ew m o de o f wa r fa r e i t i s a s s erted th at b ecau s e
o f th e s pec i a l natu re o f th e s ubm a ri n es th e y c annot ob s erv e th e ru le s
o f i n te rn ati ona l l aw wh i c h a ppl y s olel y to th e kind o f w a rsh ip s i n
exi sten c e at th e t i m e s u ch ru le s we r e f o rmu l ate d I f b ell i g erent m er
c o ns e q u entl y w er e un a rm ed and w e re th ey ne ith e r to
c h an tm e n
ho i st neutral fl ags no r to attempt e s cap e no r to re s i s t vi s it an d s ea rch
n o r to s umm o n ai d by w i reles s thos e rul e s cou ld b e h eede d s o fa r at
lea s t a s th e s a fety o f h uman l i fe i s con cern ed
Compl i an c e w i th th es e c o ndi tions how ev er m i gh t b e mor e th an
h uman na tu r e unde r th e c i rcum stanc e s wou ld b e d ispo s ed to y i eld
N o r would i t m e et th e cl ea r re g ul ation o f i n t ernati o na l law w h i ch
rovide
s
fo
r
an
a
ss
u
rance
o
f
th
e
s
a
fet
o
f
th
e
pa
s
s
enger
s
a
nd
c
r
ew
y
p
i s d estro y ed T hi s t o o i s a
o f a m erch antm an b e fo r e th e v ess el
fund am enta l p ri nci pl e o f th e freed o m o f th e s ea s wh i ch ca n n ot and
sh ould not b e s ati sfied by expre ss i o n s o f re g ret fo r i ts n o n obs ervan c e
Jus t to wh at extent th e und ou bted ri ght o f n eut ral s to t ravel on a
b ell igerent m erch antman h a v i n g contraband on b o ar d c o n fers th e
p ri v i lege als o o f i nvolvin g th ei r g ove rnment i n g r av e comp l i cation s
i s a q u esti on no ea s i er to a nsw er th an th e o n e th at
o n the i r a cc o u n t
conc e rn s th e exte n t to w h i ch s uch a g o ve rnm en t i s bound to p rot ect th e
p rop e rty o f i ts ci ti z en s i n a re a s contr o l led by b el l igere n ts
Th e fo rc e o f c i rcum stan ce s i n g e n eral and th e ple a o f mi l i ta r y
n ece ss i ty i n p a rti cul a r at a l l ev ent s appea r to m ak e i t imp erati v e th at
G reat B ri tai n s h o uld p roh ibi t n eut ra ls to trade wi th Ge rm an y deny
i ng th em th e pla i n righ t to do s o and ev en depr i vi n g th em o f th ei r
rop
erty
th
rough
th
e
l
o
ss
e
s
i
n
c
i
d
ent
to
s
ei
z
u
re
and
detent
ion
S
i
m
p
i l ar reason s app ea r to m ake i t e q ual l y impe rati v e th at Germ any s h o uld
p r o h ibi t t rade wi th G rea t B ritai n i n v ess el s bel ongi n g t o that c o u n
t ry o r i ts al l i e s o r i n n eutral sh i p s i f th e y c a rr y contr ab and eve n at
th e ri s k to h um an l i fe a ri s in g f rom th e d estru ction o f th e ve s s el s
a ffected
Unde r th e t remendou s p r es s u re o f conten d i n g inte re s t s i n wh i ch th e
v ery exi stenc e o f th e w a rrin g nati on s m ay ha n g i n th e b al an c e each
o f th e two great b ell i ger ents h a s a ccused th e o th e r o f commi tti n g
i llegal and i n h uman acts and ea ch h a s ad o pted m ea su re s o f repri sal
a cc o rdingly I n th e b el i e f th at it i s i nvok ing th e s up rem e l aw o f
s el f p res ervati on each h a s felt i t s el f com pel l ed to s et a s ide an in te r
n ati onal l aw th a t aim s to uphold th e ri gh ts o f neutral s a s e q u al i f
n o t sup eri o r to th e cl ai m s o f b elli gerents
Two v ita l int erests thos e o f G rea t B ri ta i n an d G erman y a re i n
d ead ly c o n fl i ct a n d th ey th r eaten to dra w a th i r d o n e th at o f th e
Un i te d S tate s a s th e repr e sentativ e o f n eut ral nati o ns int o th ei r
toi l s I n al l fai r n es s i t i s qu it e a s absu rd to suppos e th at Gre at B ri tai n
i s d el i b e rat ely v iol atin g th e ri gh ts o f neut ral s f o r th e m er e s ak e o f
d oi n g s o a s i t i s to a s sum e th at G e rm any i s w i l ful ly d estr o ying th e
l i v e s o f non comb atant s fo r th e s he er pl ea su r e o f i t Th e s eriou s
to
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I N T RO DU CTI O N
tha t c on fronts o ur own count ry i s th e extent t o wh i ch i t
c an treat th e a cti o ns o f o n e belli g ere n t w i th due regard to th e acti o ns
o f th e o th er
Y e t whateve r th e s i tu a tion o f th e powe rs at wa r neutrals o ugh t
no t t o b e s a c ri fic ed fo r th e b enefit o f bell igere n ts I f th e dispu t a nt s
ch oo s e t o s e t tl e t h ei r di ffe re n ces by figh ting that i s n o re a s o n why
th e o uts ide r s h o u ld be f o rc ed t o su ffe r f o r th ei r mi sdeeds o r mi stakes
I f i t b e pl eaded tha t b el li ge re n ts h ave a s m uch ti t l e
o r mi s f o rtu n es
t o co n s iderat i on a s neutra ls th e a n s wer i s that th e whol e tre n d o f
i n t erna ti on al agreement i n m o de r n t im es has bee n mov i n g towa rd a n
e ffe cti v e rec o g n iti on o f th e rights o f nati on s that rema i n at p eac e
over agai n s t the c lai ms o f natio n s th a t s ee fit t o w a r
Mi nd fu l o f th es e t ruth s th e United S tates ea rly i n the c o urs e o f
t h e struggl e p rop o s ed to th e belli ge rents th at th ey ad o pt the Decla r a
ti on o f L o ndo n a s a temp o ra ry c o de o f nava l wa r fa re ( N o I )
This
s ugges ti on i t wi thd rew o n le a r n i n g that G re a t B r ita i n i n s i sted up on
m o di ficati on s o f th at cod e wh i ch were quite at va ria n c e wi th it ( N o
The n a fter G reat B rita i n h ad dec l a red th e North S ea a m i li
ta r y a rea fo r th e pu rp o s e O f s hutt i n g out di rect c o mm e rc e w ith G er
m an y ( N o
and Ge rman y h ad reta l i ated by declari n g the wat ers
a r o und Gr eat B r ita i n a w a r z on e w ith a s im i la r obj ec t i n vi ew ( NO
th e United S tate s p r o pos ed the adoption o f certa i n mutua l c on
c es si o ns wh i ch w o ul d so ften th e r ig o rs o f war fa re a n d uph o ld the
ri gh ts o f n eutral s ( N o
Th i s p ropo s al Ge rm an y a ccepted in sub
st a nc e ( N o 2 7 ) a n d Gr ea t B ri t ai n a n swe red n o t only b y rej ecti o n
N
o
but
vi
rtual
ly
p
r
o
h
ib
iting
neu
t
ra
l
t
rade
w
ith
Ge
rma
n
y
b
y
(
a lt o geth er ( N o s 28 a n d
Th e p r o-tes t o f th e U n ited S tates aga ins t
such a p r o h ib i ti o n ( No 3 6 ) rem ai ned unh eed ed fo r nea rly fou r m o nth s
Fi n al ly i n th e note s f o l lowi n g th e G erma n attack s o n
( NO
th e Gu l fli g h t th e C a s h i n g and th e L u s i tan i a ( No s 46 5 0 5 1 5 3 5 6
and
wh e re in th e United S tates p r o tests agai n s t th e l o s s o f i n n o
c ent l i ve s th e i dea o f m utua l c o ncess ion appe a rs o n c e m o re w ith th i s
count ry a s i ts sp o ns o r W h eth e r i t w i l l find favor at th e h ands o f
b o th b ell igerents i s yet to be determ ined
Readi n g th es e d o cum e n ts i n thei r w ide r relationsh ip to th e Eu r o
p ean st ruggl e anoth e r fact i s evide n t
th e fact th at n eve r h a s th e
United S tates be en a ffo rd ed s o wond rous a n o pp o rtu n ity to champio n
th e rights o f n eutral nati o n s To th i s e n d i f i ndividua l p rote sts
cont i n u e unav a il in g i t should a rran g e fo r th e m eeting unde r i t s
a uspi ces o f a congres s o f s u ch na tion s to draw up a statem ent o f
th e p ri n cipl es th at j u sti c e d em and s sh o u ld b e ob se rved by th e nati on s
at wa r W i se ly framed th at statement m igh t utter a w o rd o f m o ra l
p o we r th at would res o und above th e roa r o f c an n on a n d m usk et ry
Th e congr es s al so i f i ts w o rk di d n o t i ndeed hasten th e e n d o f th e
wa r c o ul d contribute i n no sm al l d egre e to th e eventua l triumph o f
n eutral ri gh ts ove r bel lige rent cl ai m s a n d th us pu t a m i l eston e on th e
p athwa y o f p ro g re s s towa rd un iver s al p eac e
d i fli
c u l ty
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C ON TE N TS
P
AGE
1 11
The Declarati o n o f Lo nd on : Ch a p ter I I Con trab an d o f War
No I Americ an not e Aug us t 6 1 9 1 4 sug g esti n g t he a d o p ti on o f th e
Decl a r ation o f L on d on a s a t emp o r a ry c o de o f n av a l w a rf a re
S tat eme nt Au g ust 22 1 9 1 4 r e g a rdi n g t he Germ an re p ly to
No
o 1
No 3 Bri t ish no te Au g us t 22 I 9 1 4 re p lyi n g to N o 1
N o 4 Americ an not e Oc to ber 22 1 9 1 4 wi t hdr a wi n g t he su g g e s t i on
c on t ain ed In N o I an d defi n i n g t he p o licy o f t he U n ited S tat e s
I rres p e c ti ve o f t he Decl a r at i on o f L on d on
NO 5 America n not e Oct o ber 24 1 9 1 4 simil a r t o NO 4
N o 6 B ri t ish p r o cl a m at i on Oct o ber 29 1 9 1 4 revisi n g t he lis t o f
c ont r a b an d o f w a r
N o 7 B ri t ish o rder i n c o u n cil Oct o ber 29 1 9 1 4 a d o p t i n g the De c
l ar ati o n o f L on d on exclusive o f t he lis t s o f c ont r a b an d a n d non
c ont r a b an d an d in clusive o f cert a i n o ther m o dific at i on s
No 8 A nno u n ceme nt o f the Bri t ish Admir a l t y N o vember 2 1 9 1 4
decl a ri ng the N o rth Se a a mili ta ry a rea
N o 9 Germ an no te N o vember 23 1 9 1 4 reg ardi n g t he British an d
Fre n ch m o dific at i on s o f t he Decl a r a ti on o f L ond on
N o 1 0 B ri t ish p r o cl a mati o n December 23 1 9 1 4 a g a i n revisi n g t he
lis t o f c ont raband o f war
No 1 1 Am e ric a n no te December 26 1 9 1 4 i n re fere n ce t o the
se iz ure an d de t e ntion o f Amer i c an c a r g o es des tin ed f o r n eu t r a l
Eur o pe an p o r t s
No 1 2 British no te J an uary 7 1 9 1 5 replyi n g t en t a t ively t o N o 1 1
N o 1 3 Summ a ry o f p r o cl a m at i on o f t he Germa n Fed e r a l Co u n cil
J an u a ry 2 5 1 9 1 5 i n re fere n c e t o f oo dstu ffs
N o 1 4 A nno u n ceme n t o f t he Germ an Admira lty Fe bru a r y 4 1 9 1 5
decl a ri ng the w at ers ar o u n d Gre at B r ita in a w a r zon e
N o 1 5 M em o r an dum o f the Germ an Go ver nment Febru a ry 4 1 9 1 5
reg a rdi n g t he declar a ti on o f a w a r zon e
N o 1 6 S ta tem e nt o f the Bri t ish Fo rei g n O ffice February 7 1 9 1 5
re g a rdi n g t he use o f n eu t ral fl a g s an d t he Germ an decl a r ation
w a r zon e
of a
NO 1 7 B ri t ish no te F e bruary 1 0 1 9 1 5 r e p lyin g fi na ll y t o t he Amer
ic an not e o f Decemb e r 26 1 9 1 4 ( N o I I ) in reg a rd to t he se i zur e
an d de t e nt i on o f Americ an c a rg o es
No 1 8 Americ an not e Febru a r y 1 0 1 9 1 5 r e g a rdi n g t he Germa n
decl a r at i on o f a w a r zon e
N o 1 9 Americ an mem o r an dum F e bru a ry 1 0 1 9 1 5 c on cer nin g t he
use o f t he Americ an fl ag by Bri t ish vessels
N o 20 Am e ric an no te Febru a r y 1 5 1 9 1 5 re g a rdi n g th e Wi l h e l m i na
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26
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28
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II
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41
O
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43
44
C O NT E N T S
P
No
Germ an
not e F e bru a ry 1 5 1 9 1 5 i n refer e n ce to t he p r o c l a
ma tion o f J an u a ry 2 5 c on cer n i n g f oo ds t u ffs ( N o 1 3 )
N o 22 : Germ an s tat eme nt Febru a ry 1 5 1 9 1 5 i n r e g a rd to a rmed
B r iti sh merch ant m e n th e use o f n eu t r a l fl a g s an d t he mi n i n g o f
.
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A GE
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46
,
,
No
.
not e Febru a ry 1 6 1 9 1 5 re p lyi n g to t he Americ an
not e o f Febru a ry 1 0 ( N o
in re g a rd to t he decl a r at i on o f
a w a r zon e
24
B ri t ish mem o r an dum F e bru a r y 1 9 1 9 1 5 c on cer n i n g th e u s e
o f t he Americ an fl ag by B ri t ish vessels
B ri t ish mem o r an d um
Febru a ry 1 9 1 9 1 5 re g a rdi ng t he
25
Wi lhel mi na
Americ an not e Febru a ry 20 1 9 1 5 p r o p o si n g mu t u a l c on
26
cessi on s i n t he c on duc t o f na v a l w a r f a re
27
Ge rm an not e Febru a r y 28 1 9 1 5 a cce p tin g 1 n subs tan ce t he
Amer i c an p r o p o s a l o f Febru a ry 20 ( N o 26 )
28
B ri t ish an d Fre n ch decl a r at i on M a rch I 1 9 1 5 i n res t r a i nt
o f se a b o r n e c o mmerce wi t h Germ any
29
Res o lu t i on o f C on g ress M a rch 4 1 9 1 5 s a fe g u a rdi n g th e
n eu t r a li t y O f Americ an w at ers
e s t r a i nt
i
n
uiri
n
h
o
w
t
he
r
1
1
Americ
an
not
e
M
a
rch
0
q
g
5
5
9
3
u p on se a b o r n e c o mmerce wi t h Germ any is to be e ff e c t ed
n
1
Bri
t
ish
r
o
cl
a
m
at
i
on
M
a
rch
1
1
on
ce
m
o
re
revisi
1
1
g t he
5
9
3
p
lis t o f c ont r a b an d o f w a r
1
1
1
Bri
t
ish
m
o
r
a
dum
M
a
rch
n
m
2
e
9
5 re jec t i n g t he Amer
3
3
ic an pr o p o s a l o f F e bru a ry 20 ( N o 26 )
t
o
1
1
Bri
t
ish
no
t
M
a
rch
re
lyi
n
t he Americ an i n quiry
1
e
g
9
5
p
5
3
3
a b o u t t he res t r a i n t on s e a b o r n e c o mm e rce w it h Ger m an y
23
Germ an
.
,
,
,
.
.
No
.
No
.
No
No
.
.
.
,
.
,
,
,
.
.
,
,
.
.
.
No
.
,
.
,
,
-
No
.
No
.
,
,
,
.
,
,
,
.
.
NO
.
60
61
62
63
,
,
,
.
59
,
,
,
58
,
,
,
.
56
,
,
-
No
54
,
.
No
53
,
,
,
48
-
( bi
No
o
.
30
)
Bri t ish o rder i n c o u n cil M a rch 1 5 1 9 1 5 i n res t r a i nt o f se a
b o r n e c o mmerce wi t h Germ an y
N o 3 5 B ri t ish o rder i n c o u n cil M a rch 23 1 9 1 5 a u t h o ri z i n g th e
re quisi t i on o f n eu t r a l shi p s
N o 3 6 Am e ric an no te M a rch 3 0 1 9 1 5 r e g a rdi n g B ri t ish vi o l at i on
o f n eu t r a l ri g h t s
N o 3 7 F irs t Americ an not e M a rch 3 1 1 9 1 5 i n re g a rd to t he Wi l
.
34
li a m P
.
,
,
,
.
.
Fr ye
1915
mem o r andum A p ril
c on cer n i ng th e B ri t ish
res t r a i nt o f s e a b o r n e c o mmerce w it h Ge rm any an d th e Am e r
ic an ex p o r tat i on o f w a r m at eri a l
N o 3 9 F irs t Germ an n ot e A p ril 5 1 9 1 5 i n r e g a rd to t he l Vi l l i a m
No
.
38
Germ an
.
67
69
,
,
,
.
.
,
,
,
.
.
,
,
,
.
66
72
76
,
,
-
P
No
.
Fr ye
.
B r i ti sm
Wi l h e l mi n a
40
,
,
,
.
.
.
mem o r an dum A p ri l
,
8,
19 1
5,
i n ref e r e n ce to t he
N
o
8
o
1
1
1
2
Americ
an
o
te
A
ril
re
lyi
n
t
3
g
p
n
9 5
p
41
22
E
A
no
u
n
c
m
nt
o
f
t
he
erm
an
mb
a
ss
A
ril
G
p
n
e
e
y
42
w a r n i n g a g a i n s t emb a rk at i on on vess e ls bel on g in g to Gr e at Br itain
o r i t s a llies
N o 43 S ec on d Am e ric an no te A p ri l 28 1 9 1 5 i n re g a rd to t he
W i l li am P F r y e
No
No
.
.
.
.
.
,
,
.
,
,
,
.
.
77
,
79
80
81
,
83
,
84
CO NT E N T S
P
No
No
.
No
No
No
.
.
.
.
not e May 1 0
ex p r e s si n g r e g r e t f o r t he l o ss
o f Amer i c an l i ves t hr o u g h the Sin ki n g o f t he L us i ta n i a
Germ an s tat em e nt M ay 1 1 1 9 1 5 i n r eg a rd to t he t r e a tm e nt
45
o f n eu t r a l vessels in t he w a r zon e
Fi rs t Americ an not e M ay 1 3 1 9 1 5 reg a rdi n g t he l o ss o f
46
Amer i c an l i ves an d the in jury to Americ an c o mm e rce i ncide nta l
t o t he na v a l w a rfare
Bri t ish mem o r an dum M a y 20 1 9 1 5 i n refere nce to the
47
de t e ntion o f Amer i c an ships an d c a rg o e s
S tat eme nt o f t he Secre ta ry o f S tat e M ay 2 1 1 9 1 5 re g a rd
48
i n g a n err o r
i n NO 47
S tat ement o f the Bri t ish Emb a ssy M a y 2 1 1 9 1 5 c o rrec t i n g
49
t he err o r i n N o 47
Firs t Germ an no te M a y 28 1 9 1 5 reg a rdi n g t he l o ss o f
50
Amer i c an lives an d t he i n j ury to Americ an c o mm e rce i ncide nta l
t o the n av a l w a r f a re
Germ an not e J u n e I 1 9 1 5 i n refere n ce to a tta cks on t he
51
Gu lfl i g l z t an d t he C u s h i i i g
Sec on d Germa n not e J u n e 7 1 9 1 5 i n r e g a rd t o t he Wi l l i am
52
44
Germ an
.
,
,
.
,
,
.
.
,
.
,
,
.
.
,
.
.
,
,
No
No
.
.
.
,
.
,
.
P
.
53
.
,
S ec on d
,
,
-
,
,
.
,
,
.
56
Frye
105
,
,
,
.
“
.
.
.
,
,
,
.
,
,
,
.
.
.
,
1 12
,
1 13
,
,
.
th e
n av al
,
w ar far e
.
British not e J uly 23 1 9 1 5 , r e p lyi n g t o t he Am e ric an n o te o f
M a rch 3 0 i n r e g a rd to B r it ish V io l ation o f n eu t r a l r i g h t s
( No 36 )
N o 62 Third Germa n no te J uly 30 1 9 1 5 i n r e g ard t o t he Wi l l i am
.
1 12
Third Americ an not e J ul y 2 1 1 9 1 5 r e g a rdi n g t he l o ss o f
Americ an liv e s an d t he i n jury to Am e r i c an c o mm e rce in c i d e nta l
60
to
No
1 09
a
N e br as kai i
No
I OI
,
S e c on d Germ an not e J uly 8 1 9 1 5 re g a rdi n g t he l o ss o f
Am e ric an lives an d t he i n jur y to Am e r i c an c o mmerce mc rd e n tal
to t he na v a l w a rfa re
”
N o 5 7 Summ a ry o f Americ an
c a ve at
J ul y 1 4 1 9 1 5
g ainst
Bri t ish p ri z e c o ur t p r o cedure
N o 5 8 P a r a p hr a se o f Am e ric an not e J ul y 1 5 1 9 1 5 pr ot es t i n g
a g a i n s t t he sei z ure o f t he c a rg o o f th e N e c h e s
N o 5 9 Germ a n mem o r an dum J uly 1 5 1 9 1 5 i n re g a rd t o t he
No
98
,
,
,
.
liam P
95
96
.
.
93
,
,
.
92
,
America n not e J u n e 9 1 9 1 5 re g a rdi ng t he l o ss o f
Americ an lives an d t he i n j ury to Americ an c o mmerce in c i den t a l
t o t he na v a l w a rf a re
N o 5 4 British mem o ra n dum J u n e 1 7 1 9 1 5 i n refere n ce to t he
treatme n t o f Americ an c o mmerce
N o 5 5 Third Americ an not e J u n e 24 1 9 1 5 i n re g a rd to t he Wi l
No
92
,
F ry e
.
89
,
,
,
,
86
,
.
No
85
,
.
NO
85
,
,
.
A GE
61
,
,
.
1 14
,
1 16
.
P
No
No
No
No
.
.
.
.
Frye
.
63
64
65
.
.
.
.
1 20
Bri t ish not e J uly 3 1 1 9 1 5 re p lyi n g t o N o 5 7
Bri t ish not e J ul y 3 1 1 9 1 5 re p lyi n g to N o 5 8
F o ur t h Americ an not e Au g us t 1 6 1 9 1 5 i n r e g a rd to t he
,
,
Wi l li am
66
,
,
,
.
.
,
,
,
.
,
.
,
,
P
.
t r a ba ud o f war
1 26
,
1 27
Frye
B ri t ish p r oc l a m a ti on ,
1 23
Au g us t
21
,
1915,
d ecl a ri n g c otton c on
P R O T E C T IO N
TH E
N E U TRA L
OF
R IG H T S A T S E A
De c l ar at i o n
Th e
“
W ar f
of
L ondo n
C h ap t e r I I
:
C O N TRA B A N D
OF
A r ti c l e
22
C o n tr ab an d
—
of
WA R
T h e follow in g a rti c l e s m ay with o ut no ti c e b e treated a s c ontra b an d
o f wa r und er th e nam e o f ab s ol ut e c on traband :
,
,
,
A
rm
s
a
l
l
k
ind
s
includin
a
rm
s
for
sporti
n
p
urpos
e
s
and
f
o
g
( )
g
th ei r d i s tinctive com p o nent pa rts
( 2 ) P r o j ecti l es cha rge s and c a rtridge s o f al l k in d s and th e i r d i s
ti n c ti v e c o mp o ne n t pa rts
P
owde
r
and
explo
s
i
es
especi
al
ly
p
rep
a
red
f
o
r
u
s
e
in
w
a
r
v
)
(3
Gun
mountings
l
i
mb
e
r
b
o
xes
l
imbers
m
i
li
ta
ry
wag
o
n
s
fi
el
d
4
)
(
forges a n d thei r d i stincti v e comp on e n t pa rts
( 5 ) Cloth i n g and equ ipm ent o f a di s tinctively m i l ita r y ch a racte r
A
l
l
k
i
nds
o
f
h
a
r
n
es
s
o
f
a
d
i
stinct
ive
ly
mi
l
ita
r
ch
aracter
6
( )
y
S
addl
e
draugh
t
and
pack
a
nim
al
s
su
i
tabl
e
for
u
s
e
i
n
wa
r
(7)
A
rti
cle
s
f
c
amp
e
q
uipm
ent
and
th
ei
r
di
sti
n
ctiv
e
component
8
o
( )
p a rts
A
rmou
r
plates
(9)
( 1 0 ) W ar sh ips i n c l uding b o at s and th ei r di s ti nctiv e comp o nent
n
arts
o
f
su
ch
a
n
ature
th
at
they
o
nly
be
u
s
ed
o
n
a
v
es
s
el
o
f
wa
r
c
a
p
I
I
I
mpl
ement
s
and
app
aratus
desi
g
n
ed
excl
us
i
vely
f
o
r
th
e
m
anu
( )
fa ctu re o f mu n iti on s o f w a r fo r th e m anu fa ctu re o r repa i r o f a rms
o r wa r m ateri al fo r u s e on l and o r se a
1
,
,
.
,
,
,
.
.
,
,
,
,
,
.
.
.
.
,
,
,
.
.
-
,
,
.
,
,
.
A r ti c l e
23
A rticl es exclu siv el y u s ed f o r wa r m ay be added to th e li st o f ab s o
lut e co n t raband b y a decl a rati o n wh i ch m ust b e no ti fie d
S u ch n o ti fica ti o n mu s t b e add re ss ed t o th e Governm e n ts o f o th e r
P o w ers o r to th ei r rep res entat ives a cc red ited t o th e Po w er m ak i n g
th e d ecla ration A notificati on m ad e a fter th e outb reak o f hosti l iti e s
i s addres sed o nly t o n eut ra l P owe rs
f e e n e al l e d t g e th e b y G e at B i ta i n at L d n th e De l a a
A t th N a l C
i g e d F eb u a y 6 9 9 b y al l f th P w e
ep e e te d e e f th
ti
wa
i
G e at B i ta i
F a
p e e t be l l i g e e n t
e R u i a J ap
I t a l y Ge m a y a d
f th
d t h ee
Au t i H u ga y
e u t al
U i t e d S t at e
S p ai
ti
i
th
h i e fl y be au e f B i ti h pp i ti
d e fi i ng
H lla d
L te
th
t
a d
a ti l e
f
f w
i t f ai l e d
L aw e
t i fi ati
e D u m n t I l l u t ati e f
t ab a d
.
,
5
,
.
.
e
s
on
r
s
r
s,
a-
r
n
n
n
.
o
v z
r
a
ar
I n te r n a ti o n al L a w
,
r
2
,
r
r
an
,
o
c
c
r
r
.
r
o
n
con
n
s
n
s r
on
av
,
o
c
o
,
35
1
nd
’
te
.
n
s
o
ra
c
r
o n.
o
s
ons,
on
rs
ss
,
na
r
r
e
nc
r
,
n
e
r
o
.
r
c
,
0
1
r
v z
.
r
nc
,
on
,
s
r
an
,
os
o
r
o
:
n
,
s
v
n
r
.
oc
e
n
n
s,
e
o
e
o
n
n
e
r
c
r
s
c
s
s r
n
v
o
TH E P RO T E CT I O N OF N EUT RAL RI GH T S A T S EA
2
A r ti c l e
24
T h e f o l l o wing a rti cl es s us cepti ble o f u s e i n w a r a s wel l a s f o r p ur
p o ses o f p eac e m ay w i thout n o ti c e b e t reated as c o n t raba n d o f w a r
unde r th e nam e o f conditiona l c o ntraband :
f
Food
s
tu
fs
I
)
(
F
o
rage
and
gra
i
n
su
itable
f
o
r
feed
i
ng
an
i
m
al
s
2
( )
Cl
o
th
in
fab
ri
cs
a
nd
boot
s
a
nd
sh
o
e
s
u
i
tabl
e
fo
r
o r cloth ing
f
s
g
(3)
u se i n w a r
G
o
ld
and
si
l
ver
i
n
coin
o
r
bul
l
i
o
n
pap
e
r
m
on
ey
;
( 4)
us e i n wa r a n d th ei r c o m
V
ehi
cl
es
a
l
l
k
inds
ava
i
l
able
for
o
f
(5)
po n ent pa rts
of
V
es
s
el
s
cra
ft
and
b
o
ats
o
f
al
l
k
inds
fl
oati
n
g
d
o
cks
pa
rt
s
6
;
( )
d o cks and th ei r c o mpo n e n t p arts
ai
lwa
m
at
e
ri
al
b
o
th
fixed
and
ro
l
l
in
s
tock
and
mate
r
ia
l
R
g
y
( 7)
fo r telegraph s wi rel ess telegraph s and teleph o nes
B
al
loons
a
nd
fl
i
n
m
a
ch
i
n
e
s
a
nd
th
ei
r
d
i
sti
n
cti
ve
comp
on
ent
8
y g
( )
pa rts togeth e r wi th a cces sori es and a rti cl e s recog n i sab l e a s i n te n d ed
fo r use i n connecti o n w ith b alloons and fl y in g m a ch i ne s
( 9 ) Fuel ; lub ri cant s
r u se i n wa r
f
o
Powder
and
explo
s
ive
s
not
S
pe
ci
all
p
repa
r
ed
Io
y
( )
I
I
B
a
rb
ed
w
i
re
and
impl
em
ents
f
o
r
fi
xing
and
cutti
n
th
e
s
am
e
g
( )
( 1 2 ) H o rs eshoes and shoei n g m at eri a l s
H
ar
n
es
s
and
saddl
ery
1
( 3)
1
i
eld
gla
s
se
s
tele
s
cop
e
s
ch
ronom
ete
rs
a
n
d
a
l
l
k
inds
o
f
n
au
F
4
( )
ti ca l instrum ents
,
,
,
,
,
.
.
,
,
,
,
.
.
,
.
,
,
,
.
,
,
.
,
,
,
.
.
.
.
.
.
,
,
,
.
A r ti c l e
25
A rti cl e s su s cep ti bl e o f u s e i n w a r as w ell a s fo r pu rpos e s o f p ea c e
o th er tha n th o s e enume rat ed i n A rti cle s 22 and 2 4 m ay b e add ed to
th e l i st o f cond iti o n al co n tra b and by a d ec la ra ti o n wh i ch m ust b e
n o tifi ed i n th e m anne r p rov ided fo r i n th e s econd p ara g raph o f
A rti cl e 23
,
,
,
.
A r ti c l e
26
I f a P ower wa i ves So fa r a s i t i s c o nc ern ed th e ri gh t to t re at a s
c ont raband o f w a r a n a rti cl e c o mp ri sed i n any o f th e cl a s s es
e n umerated i n A rti cl es 22 a n d 2 4 s uch i n t ention s h a l l b e a n n o unc ed
by a decla ra ti o n wh i ch m us t b e not ified i n th e m a n ner p rovided fo r
in th e s ec o nd pa ragraph o f A rti c l e 2 3
,
,
,
,
.
A r ti c l e
27
Ar t i cl es wh i ch a re not su s cepti b l e o f us e i n wa r m ay not
c ont raba n d O f w ar
be
d ecl a red
.
A r ti c l e
28
The f o llowi n g m ay n o t b e decl a red co n traband o f w a r :
( 1 ) Raw c o tton wo o l s i lk j ute fl ax h emp a n d o the r r aw m a
te r i al s o f th e texti l e indu stri es and ya rns o f th e s am e
( 2 ) O i l s eeds and nut s ; c o pra
( 3 ) Rubb er resi n s gum s a n d l ac es ; h ops
( 4 ) Raw h ides and h orns bon es and iv o ry
,
,
,
,
,
,
,
.
.
,
,
,
,
.
,
.
TH E P RO T ECT I O N O F N EUT RAL RI GH T S AT S E A
3
N
atu
ra
l
a
n
d
a
rtific
i
al
ma
n
ures
i
ncl
uding
n
itrates
a
n
d
ph
os
(5)
h
t
e
f
o
r
agri
cu
ltura
l
pu
rp
o
s
es
a
s
p
6
Metal
li
c
o
re
s
)
(
( 7 ) E arth s cla y s li me cha lk s tone i ncluding m arbl e bri cks
s l ates and ti le s
( 8 ) Ch inawa r e and g la s s
( 9 ) P ap e r and p ap er m ak i n g m ate ri al s
1
0
S
o
ap
pa
int
and
c
o
l
o
u
rs
i
n
cludi
n
a
rti
c
le
s
excl
u
s
ivel
used
)
(
y
g
i n th ei r manu fa ctur e and va r n ish
1
1
m
B
l
each
in
p
o
wde
r
so
da
ash
cau
s
ti
c
soda
s
al
t
cak
e
a
( )
g
mo n ia sulph ate o f ammoni a and sulph ate o f c o ppe r
1
2
( ) Agri cu ltu ra l mi n i n g tex ti l e and p ri nti n g mach i n ery
1
i n o th e r o f p ea rl
P
re
c
ious
and
sem
i
p
recious
s
ton
es
pea
rl
s
( 3)
and co ra l
1
( 4 ) Cl o ck s a nd w a tch es o th er tha n ch ronometers
( 1 5 ) Fa sh ion a n d fancy g o ods
1
( 6 ) Feath er s o f a ll ki nds h ai rs a n d b ri stl es
1 ) A rti c les o f hou s eh o ld fu rn itu re a n d de co rat io n ; o f
r
fic
e
f
n
i
u
( 7
tu r e and re q u i s i te s
,
.
.
,
,
,
,
,
,
,
,
.
.
—
.
,
,
,
.
,
,
,
,
,
,
,
.
,
,
.
-
-
—
,
,
,
.
.
,
.
,
,
.
.
A r ti c l e
29
L ikewi s e th e followi n g m ay not b e treated as contra b and o f wa r :
( 1 ) A rti cl es s e rving exc lu si vely to a id th e s i ck a n d w o u n d ed Th ey
howeve r in c ase o f u rge n t m i l i ta ry neces s i ty and subj ect t o th e
c an
paymen t o f c o mpe n s ati o n be re q ui s i t io n ed i f th e i r desti n ati o n is tha t
sp eci fi ed i n A rti cl e 3 0
2
r th e us e o f th e ves s el i n wh i ch th ey a re
A
r
t
i
cl
es
i
n
te
n
ded
f
o
)
(
found as we l l a s th o s e i n tended fo r th e u s e o f he r c rew a n d pa s
se n g e r s duri n g th e voyage
.
,
,
,
,
.
,
.
A r ti c l e 3 0
A b so lute
c o ntraba n d i s l i abl e to captu re i f i t i s shown to b e d esti n ed
to t erri t o ry b elo n gi n g t o o r o ccupi ed by the e n emy o r t o th e a rm ed
f o rc es o f th e en emy I t i s i mm ateri al wh eth e r th e ca rri age o f t h e
g oo ds i s di re ct o r entai l s t ransh ipm ent o r a s ubseque n t t ransport b y
l and
,
.
.
A r ti c l e 3 1
P r oo f o f th e destinat i on spe c ified i n Arti cl e 3 0 i s c o mpl et e i n th e
f o l l o wi n g cases :
h
en
th
e
go
o
ds
ar
e
docum
e
n
ted
f
o
r
di
s
ch
a
rge
i
n
a
n
enem
I
W
y
( )
p o rt o r fo r del iv e ry to th e a rm ed f o rc es o f th e e n emy
o r wh en sh e
h
en
th
e
ve
s
sel
i
s
t
o
c
al
l
at
e
n
emy
p
o
rts
on
ly
2
W
( )
i s t o t o uch at an e n e my p o rt o r m eet th e a rm ed f o rc e s O f th e e n emy
b e f o re reach in g th e n eut ral p o rt fo r wh i ch th e g oo ds i n que s ti on a r e
d o cume n ted
.
,
,
.
A r ti c l e 3 2
W h en a v e s s el i s ca r ryi n g ab solute c on traba n d h er papers a re c o n
,
elu s iv e p ro o f a s to the v o yage o n wh ich sh e i s engaged u n l es s sh e i s
f o u n d cl ea rly o u t o f th e c o u rs e indi c ated by h e r papers a n d unabl e
t o giv e adequ ate re a s o n s to j usti fy su ch devi atio n
,
.
TH E P RO T E CT I O N OF N EUT R A L R I GH T S A T S E A
4
A r ti c l e 33
Conditiona l contraba n d i s l i abl e to c aptur e i f i t i s sh own to b e
des ti ned fo r th e u se o f th e arm ed f o rc es o r o f a gov er n ment d ep a rt
m e n t o f th e enemy S tate unl es s i n thi s l at t er c as e th e C i rcums ta n c es
S h o w that the g o ods ca nn ot in fa ct b e u s ed fo r th e pu rpo s es o f w ar
in p rogres s Th i s l atte r e xcepti on does not appl y to a cons i g nm ent
com in g under A rti c l e 24
,
.
.
A r ti c l e 3 4
Th e d esti nation r e ferre d to i n A rti cl e 3 3 i s p re s um ed to e x i st i f th e
go o ds a r e co n s igned to enemy auth ori ti es o r to a c o n tra cto r e stab
l i s h e d i n th e enemy count r y w ho a s a m atte r o f common knowle dge
s uppli es a rti cl es o f th i s kind to th e en em y A s i m il a r p resu mp ti on
a ri s es i f th e g o ods a re c o ns i gned t o a forti fi ed p lac e belon g i n g t o th e
e n emy o r oth er pl ac e s e rvi ng a s a ba s e fo r th e a rm ed forc es o f th e
enemy No s uch p res umption h o we ve r a ri ses i n th e c as e o f a me r
chant v es s el b o u n d fo r o n e o f th es e pl a c es i f i t i s so ug h t to p rov e
th at sh e h ers el f i s co n t raba n d
I n case s whe re th e ab o v e p resumption s do n o t a ri s e th e dest i n atio n
i s presum ed to b e i n n oc e n t
Th e p resumptions se t up by thi s Arti cl e m ay b e r ebutted
,
,
,
.
,
.
,
,
.
,
.
.
A r ti c l e 3 5
Condi tiona l c o ntra b and i s n o t l i abl e to c apture except wh en fou n d
o n boa rd a v es se l b o und f o r te rrit o ry be lo n gi n g t o o r o c cup i ed b
th
e
y
enemy o r fo r th e a rm ed f o rc es o f th e en em y and wh en i t i s n o t to b e
di sch a rged i n an interven ing n eutra l p o rt
Th e sh ip s pap ers a r e conclus ive p r o o f both a s to th e voyage o n
wh i ch th e ves s el i s engaged and a s t o th e po rt o f di s cha rge o f th e
g o ods unl es s s h e i s f o und cl ea rly o u t o f th e c o u rs e i n di c ated b y h e r
p ape r s an d una b l e to gi ve ade q uat e reason s to j u s ti fy su ch d evi ation
,
,
,
.
’
,
,
.
A r ti c l e 3 6
N otwith s tand ing th e p rov i s ion s o f A rti cl e 3 5 conditi o n a l cont ra
b a n d i f sh o wn t o h av e th e des ti nati o n re ferred to i n A rti cl e 3 3 i s
l i abl e t o captu r e i n ca ses wh ere th e en emy country h a s no s eab o a rd
,
,
,
.
A r ti c l e 3 7
A
ve s s el ca rrying goo d s l i abl e to captu r e a s a b s olute o r condi
ti o n al cont raband may b e captu red on th e hi gh s ea s or i n th e terri
to r i al wate rs o f th e b el li gerents th r o ugh ou t th e whole o f h e r voyage
eve n i f sh e i s to touch a t a port o f cal l be fo re rea ch in g th e hos til e
d est i nat i on
.
,
.
.
A r ti c l e 3 8
A
v e s sel
c o ntrab a n d
at an end
m ay
on
be
captured o n th e gr o und th at sh e h a s ca r ri ed
a p rev i o us o cca si o n i f su ch c a rri age i s i n p o i n t o f fa c t
not
.
A r ti c l e 3 9
C o ntra b and g oo ds a r e li abl e t o condemnati o n
.
TH E P RO T E CT I O N O F N EUT RA L RI GH T S AT S EA
5
A r ti c l e 40
A v es s el c a r ry i n g c on traba n d may be c o nd em n ed i f t h e c o ntraba n d
r ecko n ed ei th er by va lue weight v o lume o r freight f o rms more t ha n
ha l f th e ca rg o
,
,
,
,
,
.
A r ti c l e 41
I f a ve ss el ca rr y i ng co n tr aband i s r el eas ed s h e m ay be co n dem n ed
to p ay th e c o sts a n d exp e n s es i n cu rred by th e capt o r i n resp ec t o f th e
p r o c eedi n gs i n the n a ti on al pri z e cour t and th e custod y o f th e sh ip
a nd ca rg o during th e p roceedin g s
,
.
A r ti c l e 42
G oo ds whi ch b elo n g t o the o wn er o f th e c o n traband and a r e on
boa rd th e sam e v es s el a re l i abl e to co n demnati o n
.
A r ti c l e 43
I f a v es se l i s en c ountered a t s e a whi l e unawa r e o f th e outbrea k
o f hosti liti es o r o f the decl aration o f contraband wh i ch appl ies t o h er
ca rg o th e co n trab a n d ca n no t b e condemned except o n p ayme n t o f
c o mp ens ati o n ; th e ves s el h ers el f and th e rem ainder o f th e ca rgo a r e
n o t l i abl e to co n demnat io n o r to th e co st s and expens es re ferred t o i n
A rti cl e 4 1 Th e s am e rul e appl ie s i f th e ma ster a fter b ecomi n g
awa re o f th e outb r eak o f h os ti l it i es o r o f th e decl a r ati o n o f co n t ra
band h a s h ad n o opportuni ty o f di scha rging th e c o ntraband
A vess el i s d eem ed to b e awa r e o f th e exi stenc e o f a s tat e o f wa r
i f s h e le ft a n eutral p o rt s u b s e
o r o f a dec la rati on o f contrab a n d
qu ently t o th e notification to th e P ow e r to wh i ch s uch p o rt b el on gs
at th e outb re ak o f hosti li ti es o r o f th e d ecl aration o f contrab a n d
resp ective ly p rovi ded th at s uch notific at ion w as m ade i n suffi ci ent
ti m e A v es s el i s a lso deem ed to b e awa re o f th e exi stenc e o f a s tat e
o f wa r i f s h e l e ft an enem y por t a fter th e out b reak o f hos ti l iti e s
,
,
.
,
.
,
,
,
,
.
.
A r ti c l e 44
v es s el wh i ch h as b een s topp ed o n th e ground th at sh e i s c a rr y in g
c o ntraband a n d whi ch i s not l i abl e to co n dem n atio n o n a ccou n t o f
th e p roporti o n o f contraband o n b o a rd m ay wh en th e c i rcumsta n ce s
p erm it be allow ed t o co n ti n ue h e r v o yage i f the ma ste r i s w i l lin g to
h and ove r th e co n traba n d to th e b elli gere n t w a rsh i p
Th e deli ve ry o f th e co n traband m u s t b e enter ed by th e captor on
th e logb oo k o f th e vess el st o pped and th e m aster m ust giv e th e cap to r
dul y c e rti fied cop i e s o f al l rel evan t papers
Th e capto r i s a t l i be rty t o d es tr o y the contraba n d tha t h a s b een
h and ed ov e r to h i m und er th ese c o nditi on s
aw
r
ence
D
o c u m e n ts I l l ns tr a ti v e o fI n te r n a ti o n al L aw 3 3 6 34
L
(
A
,
,
,
,
.
,
.
.
,
No
.
1
A m e r i c an
.
t i o n o f th e
Th e S
,
De c l ar at i o n
e c r e tar y o
A u g u s t 6 1 9 1 4, s u g g e s t i n g th e a d o p
o f L o n d o n as a t e m p o r a r y c o d e o f n av al
t
no e,
,
A
e r i c an A m bas s ad o r
t
t
t
t
h
e
m
a
e
o
S
f
at
L o n do n
.
M r B ryan i n s tru cts M r P age to i nq ui re w h ethe r th e B ri ti sh Go v
e r n m e n t i s w i l l i n g t o ag re e th at th e l aws o f n ava l wa r fa re a s lai d d o w n
S m e t th A m e i a E m b a i e t B e l i n V i e n n a S t P ete r sb u g an d P a i
an d to th e A m e i an L e g at i n at B u
el s
.
a
.
o
r
e
c
n
ss
s
a
r
ss
r
.
r c
o
.
,
,
.
r
r s,
th e Dec la rati on o f L ondo n o f 1 9 0 9 sh all b e appl i cabl e to n aval
w ar fare du ri n g the pres e n t c o n fl i ct i n E u r Op e p rovided th at th e Go v
e r n m e n ts wi th wh om Great B r ita in i s o r may b e a t w a r a lso agree t o
s u ch appl i cation M r B rya n fu rth er i n st ru cts M r P age t o stat e th at
the Gove r n m e n t o f the U n ited S tates b el i eve s th at an ac c epta n c e o f
th es e law s by th e b el li gere n ts w o uld pr ev en t grav e m i s u n d er s t a n di n gs
wh i ch m ay a ri se a s to th e r el ati on s b etween n eutral pow e rs a n d th e
b el ligerents M r B ryan adds th a t i t i s earne s tly hop ed th a t thi s i h
qui ry m ay receiv e favo rabl e con s ideration
r r e s po n d e n c e w i th B e ll i g e r e n t Go v e r n m e n ts r e l a ti ng
l
i
a
t
o
i
D
o
m
c
C
( p
I ss ued by th e Dep a rtme nt o f
to N e u tr al R i g h ts an d C o mm e r c e 5
S tate M ay 27
by
.
.
.
.
.
.
.
,
,
,
No
r ep l y
2
.
~
S t at e m e n t, A u g u s t
.
No
to
1
.
3
1
2 2,
r e g ar
9 4,
1
d i n g t h e Ge r m an
“
Th e A m e r i c an A m b as s ad o r
at
B e r l i n to th e S
e c r e tar y o
a
e
t
S
t
f
.
M r Ge rard re fe rs to Dep artment s A ugus t 1 9 4 p m a n d s ays
h i s Augus t 20 I a m by w ay o f C o pe n h agen states th a t th e G erm a n
G o ve rnm e n t w i l l apply th e Decl a rati o n o f Lo n don p rovi ded it s p r o
v i s ions a r e n ot d is regarded by oth er b ell iger ents
i
r
r
D
C
o
( p
’
.
,
.
.
.
,
.
,
,
,
,
.
.
.
No 3
.
B r i ti sh
.
Th e S e c r e tar y
c an A m bas s a d o r
o
n o te ,
t
t
e
a
S
f
A ug u s t
2 2,
F o r eign
f
or
1
1
r ep l y n g
i
9 4
A ffai r s
,
to
No
.
1
.
i n te r i m to th e A m e r i
ad
.
Y O UR
E $ C ELLEN C Y : O n th e 7th i n s tant y o u w ere s o g ood a s t o
address t o m e a not e inqui ri ng pursuant to in stru ctions from th e
S ecreta ry o f S tate at W ash i n gton wh eth er H i s M aj esty s Gove r n m e n t
we re w i ll in g t o agre e that th e laws o f n ava l w a r fa re a s l aid d ow n by
th e Decl a rat ion o f Lo n don 1 9 0 9 should b e app l i c ab l e to n aval w a r fa r e
du ri n g th e p res e n t European co nfl i ct p rovid ed th at th e Gov er n m e n ts
wi th whom Great B ri ta i n i s at w ar o r w i th wh om h er rel at i on s a re
n o t n o rmal al so agre e t o s uch appl i cation
Y ou r Exc el l ency add ed th at i t w a s th e b el i e f o f you r Gove rnm ent
th at th e a cc epta n c e o f th es e l aw s by the b ell i g e rent s w ou ld p r eve nt th e
p o s si bi li ty o f grave m i s under s tandin g s a s to th e rel ati on s b etw e en
bell ige re n ts and neutral s
I h av e th e h o n o r t o i n form Y ou r Excel l enc y th at H i s M aj es ty s
Gov ernm ent wh o attach great i mpo rt an c e to th e v i ew s exp res s ed i n
Y ou r Exc ell ency s note and a re a n i mated by a k e en des i re to consul t
so fa r as poss ibl e th e i n terests o f n eutral countri e s h ave gi v e n th i s
m att e r th ei r most c a re ful c on s ide rati o n a n d h av e pl easu re i n s tati n g
t h at they h av e dec ided to adopt gen eral ly th e rul es o f th e decl a rati o n
i n qu es ti o n su b j ect to certai n m o d ificatio n s and addit i o ns wh i ch they
j udge i n di spens abl e to th e e ffic i ent c on du ct o f th ei r n aval op erati o n s
A detai l ed expl anati on o f th es e addition s and modificati on s i s contain e d
i n the inclosed m emo ra n dum
Th e n ec es s a ry step s to c a rry th e a b ov e d eci s i on into e ffe ct h av e n o w
b ee n ta k en by th e i s su e o f an o rde r i n c o u n ci l o f wh i ch I h av e th e
h o no r t o i n cl o se copie s h er ein f o r Y o u r Excel l en cy s i n fo rm ati on and
fo r transm i ssi o n t o you r G o v ernm ent
I m ay add th at H i s M aj e s ty s Government i n d eci d in g to a d h e re to
,
’
,
,
,
,
,
,
.
,
.
’
,
’
,
,
.
.
,
’
.
’
,
*
pu
Th e
b l i he d
s
d e p at h
s
.
c
o
f
A u g u st
20
h er ein
r
e fe ed
rr
to
do
e
s
n ot
ap p
e ar
to
h av
e
b
ee n
S EA
TH E PRO T E CT I O N O F N EUT RAL RI GH T S A T
8
B r i t i s h p r o c l am at i o n O c t o b e r
No 6
l i s t o f c o n t r ab an d o f w ar
.
29,
,
.
1
9 4
1
,
th e
i i
r ev s ng
.
th e fou rth day o f August 1 9 1 4 W e did i s su e O u r
R o yal P roc lamation sp ec i fyi n g th e a r t i cl es wh i ch i t w a s O u r i n t e n ti o n
to trea t as contraband o f w a r du ri n g the wa r b etween U s and th e
Ge rma n Emp er o r ; a n d
W h ereas o n th e twel fth d a y o f August 1 9 1 4 W e d id by O u r
R o yal P r o cl am ati on o f th at date exte n d O u r P r o c lam a ti o n a fo r e m e n
ti o n e d to th e w a r b etween Us and th e Emp ero r o f Aus tri a K i n g o f
H u n ga ry ; a n d
W her eas o n th e tw enty fir st d ay o f S eptemb er 1 9 1 4 W e did by
O u r R o ya l P r o clam ati on o f tha t date m ake c ertai n addi t i o n s to th e
l i s t o f a rti cl es to be t reated a s co n traband o f w a r ; a nd
W h erea s i t i s exp edi e n t to consol idate th e s aid l i sts and t o m ak e
c e rta in addi tions th eret o :
N ow th ere f o re W e d o h ereby decl ar e by a n d w i th th e advi ce o f
O u r P ri vy Cou n c i l th at th e l i s ts o f c ont raband c o n ta i n ed i n th e
s ch edul es to O u r Roya l P r o cl am ations o f th e fou rth day o f Au g us t
a n d th e twenty fir st day o f S eptembe r a f o reme n ti on ed a re h e r eby
wi t hdrawn a n d th a t i n li eu the reo f du rin g th e c o n tinuance o f th e
wa r o r unti l W e d o giv e fu rth e r publ i c noti c e th e a rti cl es e n um erated
i n S ch edul e I h eret o wi ll be treated a s ab s o lute c o ntraba nd a n d th e
a rti cle s e nume rate d i n S c h edul e I I h ereto w i l l b e tr eated conditiona l
contrab and
W h ereas
on
,
,
,
'
,
,
,
.
,
—
,
,
,
,
,
,
-
,
,
.
S C H E DU LE
I
A rm s o f al l k ind s i n cludin g a rm s fo r spo rtin g pu rp o s es and th ei r
di s t i n cti ve c o mpon e n t p a rts
2
P roj ecti les ch a rges and ca rtri dges o f al l k i n ds a n d th e i r di s
ti n c ti v e c o mp o n ent pa rts
Po
wd
er
and
exp
los
ives
speci
a
l
ly
p
rep
a
red
for
i
n
w
a
r
u
s
e
3
4 S ulphu ri c a c id
Gun
mounting
s
l
imb
e
r
boxe
s
l
imbers
mi
l
itar
w
a
ons
fi
eld
5
y
g
fo rges and th e i r di stincti ve comp on en t pa rts
6 Range fin d e r s and th ei r d i s t inctiv e c o mp o nent p art s
7 Cloth in g a n d equipm e n t o f a d isti n c t ively m i li ta ry ch a racter
8 S addl e d ra ft and pa ck a n i m al s s u itabl e f o r us e i n w a r
Al
l
kinds
o
f
ha
rn
ess
o
f
a
di
sti
n
cti
vely
m
i
li
ta
ry
ch
a
ract
er
9
10
A rti cl e s o f camp e q uipm ent and the i r di stinct iv e c omp o nent
p a rts
1 1
A rmou r pl ates
12
H aem atite i ron o r e and h aematite p i g i ron
I r o n pyri tes
13
14
N i ckel o r e and n i ckel
I5
Fe rroch r o m e and ch rom e o re
16
Copp e r unw rought
1 7 L ead p i g sh eet o r pip e
18
Alumi nium
19
Fer r o si l i ca
20
B a rbed wi re and implem ents fo r fi x i ng a nd cuttin g th e s am e
21
W a rsh ips includi n g b o ats a n d th ei r di sti n cti ve c o mp o n e n t p a rt s
o f such a natu re that th ey ca n o nly b e u s ed o n a v es s el o f w a r
2 2 A é ropl anes
a i rsh ips b alloon s and ai rcra ft o f a ll k i nds and
1
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TH E P ROT E CT I O N OF N EUT RAL RI GH T S AT S EA
9
th ei r compon ent pa rt s togeth e r w ith acc es so ri e s and a rti cl es rec o g
n i z ab l e a s in t e n ded f o r us e i n c onn ecti o n w ith bal l oo ns a n d ai rc ra f t
23
M o t o r veh i cle s o f al l k inds a n d th ei r comp on e n t parts
24
M o t o r ti res ; rubbe r
25
M i n eral o ils and moto r sp i ri t except lub ri cati n g o i ls
26
Impl em e n ts and appa r at u s desi g n ed exc lus ively f o r t h e m a n u
fa ctu re o f m u n i tions o f w ar f o r the m a n u fa ctur e o r repai r of a rm s
o r wa r m ateri a l for us e o n l and a nd s ea
,
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,
,
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S C H E DU LE
II
Foo d stu ffs
2
F o rage a n d feedings s tu ff fo r a n imal s
3 Cl o th i n g fabri c s fo r c loth i n g and b oo ts and shoes s uitabl e f o r
us e i n wa r
4 G o ld and s i lve r i n coi n o r bul li o n ; pape r m o n ey
f
V
eh
i
cl
es
a
l
l
ki
n
ds
oth
e
r
tha
n
moto
r
v
eh
i
cl
es
avai
lab
l
e
f
o
r
o
5
u s e i n wa r and th ei r c o mp o n ent parts
6 V e s s els c ra ft and boats o f a ll k inds ; fl o ati n g d o cks pa r t s o f
d o ck s a n d thei r compon ent pa rts
7 Rai lway ma t eri a ls both fixed and rol li n g s t ock a n d m a t e ri al s
f o r telegraph s wi rel es s tel egraphs and tel eph on es
Lub ri ca n ts
8 Fuel o th e r th an mi ne ral o i ls
P
owd
er
and
e
x
p
losi
ves
not
sp
ec
ia
l
l
p
repared
f
o
r
u
se
i
n
wa
r
y
9
10
S ulphu r
1 1
Glyc erin e
I2
H o rs esho es and sho ei n g m ate ri al s
H a rnes s a n d s addl ery
13
H ides o f a ll ki nds d r y o r we t ; p i gski n s r a w o r dress ed ; l e a th er
14
u n dres sed o r d ress ed s u i t ab l e f o r s addlery har n e s s o r mi li ta ry b oot s
Fi eld gl as s es t el es cop es ch r ono m eters a n d a l l ki n ds o f n au t i ca l
1 5
i n s trum e n ts
r
I
2
D
o
r
i
C
( p
1
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'
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.
No
,
n c i l , O c to b e r 2 9 , 1 9 1 4 , a d o p t i n g
h
o
B
r
i
t
i
s
o
r
d
e
r
i
n
c
u
7
t h e De c l a r at i o n o f L o n d o n , e xc l u s i v e o f t h e l i s t s o f c o n t r ab an d
an d n o n c o n t r ab an d , an d i n c l u s i v e o f c e r t ai n o t h e r m o d i fi c a t i o n s
.
.
.
Wh erea s by an O rder i n C o unci l dated the 2 oth day
A ugust 1 9 1 4
H i s Maj e sty w a s plea sed to decla re th a t du ri n g th e p re s e n t h o sti l i t ies
th e C o nventi o n known a s th e Decl arati on o f Lond on should subj ect
to c erta in additions and m o d i ficati on s th er ein sp ec ified b e adop t ed
a n d put i n forc e by H i s Maj es ty s G o v ernme n t ; a n d
W h ereas th e s ai d addi ti on s and modifica tions we re rendered n e c e s
s a ry by th e speci a l c on di t ions o f th e p res e n t wa r ; a n d
W h erea s i t i s desi rable and po ssi bl e now to r e e n a ct th e sa id O rde r
i n C o unc i l wi th am e n dme n ts i n o rde r to m i n imi z e s o f a r a s pos si bl e
th e i n ter ferenc e w ith i n n o c e n t neutral t rade occa si o n ed by t h e w a r :
N o w th ere fore H i s Maj es ty by and w i th th e advi c e o f H i s P ri v y
C o unc i l i s pl eased t o o rde r a n d i t i s he r eby ord ered a s f o l l o w s :
Du ri n g th e p resent h o sti l i ti es th e provi s i on s o f t h e C on venti o n
1
k n o w n a s th e Decl a rati o n o f L on d on sh al l subj ec t t o th e e xclusi o n o f
t h e l i s t s o f c on t raba n d a n d n on c o nt raba n d and to the modifica ti on s
h e rei n a fte r s et o ut be adopted a n d pu t i n force by H i s Maj es t y s
G o v er n m e n t
of
,
,
,
,
’
—
,
,
,
,
,
,
,
,
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,
,
’
,
.
TH E P RO T E CTI O N O F N E U T RA L RI GH T S AT S EA
IO
Th e modifi cati on s ar e a s follow s :
i
A
neu
t
ral
v
es
s
el
w
i
th
pape
rs
i
ndi
cating
a
n
eutra
l
destinati
on
( )
wh i ch notw i th sta n di n g th e d e sti n ati on sh o wn o n th e p a
p er s p roc eeds to a n enemy p o rt sh al l b e l i abl e to c aptur e
and condemn ation i f s h e i s e n counte r ed b e fo re the end o f
h e r n ext v o y age
D
o
f
th
e
s
a
i
d
e
cl
ara
A
i
i
Th
e
destinati
o
n
r
e
ferr
ed
to
i
n
rticl
e
33
( )
tion sh al l ( i n additi o n t o th e p res umpti on s l a i d d o w n i n
A rti c l e 3 4 ) be p r esum ed to exi s t i f th e goods a r e c o ns ign ed
to o r fo r a n agent o f th e en emy State
i
i
i
N
otw
ith
sta
n
ding
t
e p rovi s i o n s o f A rti cle 3 5 o f th e s aid De c
h
( )
l ar ati o n c on di ti on a l co n t raband sh al l b e l i abl e t o captu re
o n boa rd a v es s el bound fo r a n eutra l port i f th e g o ods a re
”
c o nsi g n ed to o rde r o r i f th e sh ip s p ape rs d o not sh o w
w h o i s th e cons ig n ee o f th e g o od s o r i f the y s how a c o n
s igne e o f th e go o d s i n te r ri t o r y belonging to o r o ccupi ed
by th e enemy
i
v
I
n
th
e
cas
es
c
o
v
ered
by
th
e
p
reced
i
n
p
a
ragraph
i
i
i
i
t
sh
al
l
)
(
g
( )
l i e upon th e o wners o f th e goods to p rov e th at th ei r de sti
n ati on wa s i nnocent
,
,
,
,
,
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.
,
’
,
,
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W he r e
’
i s s h own t o th e s ati s fa cti on o f o n e o f H i s M aj es ty s
P ri ncipal S ec reta ri es o f S tat e th at the en em y G o v ernm e n t i s d raw i n g
s uppli e s f o r i ts a rm ed f o rc es f rom o r th r o ugh a n eutra l c o u n t ry h e
m ay di re ct th at i n r espect o f sh ip s bou n d f o r a po rt i n th a t c o unt ry
A rti cl e 3 5 o f th e s aid Decla ra tion sh a l l n o t app ly S uch d i r ecti o n
shal l be n o ti fied i n th e L o n d o n Gaz e tte a n d sh a l l O pe rate unti l th e
s am e i s wi thdrawn S o lo n g a s s u ch d i r ection i s i n f o rce a v es se l
wh i ch i s ca rr y i ng condit iona l contrab and t o a p ort i n th at count r y
sh al l not b e i mmun e fr o m capture
1
f
h
Th
e
O
rder
i
n
Counci
l
th
e
ugus
t
d
i
recti
n
g
th
e
o
2o
t
A
1
4
3
9
ad o pti o n and en f o rc em en t du ri n g th e p res ent ho s ti l i ti es o f th e C o n
v e n ti o n k no wn a s th e Decl a ration o f L on do n s ubj ect t o th e ad d iti o n s
a n d m o dification s th ere in sp eci fi ed i s h e reby r ep eal ed
th e De cl a ration o f Lon d on O rder
4 Th i s O rde r m ay b e cited a s
i n C o unci l N o 2
A n d th e Lo rd s Comm i ssi oner s o f H i s M aj e s t y s T rea su ry th e
L o rds C o mm i s s i on e rs o f th e Admi ralty and ea ch o f H i s M aj es t y s
P ri n cipal S ecreta ri es o f S t at e the P res ident o f th e P r o b at e Di v o rc e
a n d Adm i ralty Divi s i o n o f th e H i gh C o u rt o f Jus t i c e al l o th e r Judges
o f H i s Maj esty s P ri z e C o u rts
a n d al l Gover n ors O ffi ce rs a n d Au
th o r i ti e s wh o m i t m ay c on c e rn a r e t o gi v e th e n eces s a r
d
i
recti
o
n
s
y
h ere in a s t o th em m ay respecti vel y app ertai n
( Di p C o r r 1 3 I 4 )
2
.
it
,
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“
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’
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’
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.
No 8
.
,
A n n o u n c e m e n t o f th e B r i t i s h A d m i r a l ty
*
1 9 1 4 d e c l ar i n
h
t
e N o r t h S e a a m i l i t ar
r
a
ea
g
y
.
2,
.
.
,
,
No v e m b e r
.
Du ri n g th e l as t week th e G erm ans h av e s ca tte red m ines i ndi s
i m i n ate l y
in th e O pe n s e a o n t h e ma i n t rade r o ut e fr o m Am eri ca
t o L i verp oo l V i a th e N o rth o f I rel a n d
P e ace ful merch ant s hip s h ave a l re ady b een b l o wn up w i th l o s s
o f l i fe by thi s a ge n c y
Th e W h i te S t a r Li n er Ol y mpi c es caped di s a st er by pu re l u ck a n d
N t p i te d i
Di p l m ti C
d
t
p
cr
,
.
.
,
,
o
.
r
n
n
o
a
c
o r r es
on
en c e ,
e
c
.
TH E P RO T E CT I O N O F N EUTRAL RI GH T S A T S EA
11
but f o r wa rn ings given by B ri t i s h c ru i sers oth er B ri tish a nd n eu t ra l
m erch ant a n d p as s e n ge r v esse ls w o uld hav e bee n de s tr o yed
Th es e m i n es c a n no t h ave b ee n la id by a n y G erm a n s hip o f wa r
Th e y h av e been l a id by s o m e merchant ves sel fly i n g a n eutra l fl ag
wh i ch h as c o m e a l on g the t rade r o u t e a s i f f o r p u r p o s e so f peac e ful
c o m m erc e and wh i l e p rofiti n g t o th e fu ll by th e i mmu n i t y e n j o yed
by neutral me rch a n t s hips h as want on ly and reckl es sl y e n da n g ered
th e l iv es o f a l l who travel o n th e s ea
I n th ese ci rcum s tance s h avin g re g ard to the great i n terests i h
trust ed t o th e B ri ti sh n avy t o th e s a fet y o f p ea ce ful c o mmerce
o n t he h igh seas
a n d to th e m ainte n a n c e w i th in t h e l im i t s o f i nt e r
na ti on al law o f trade b etween n eutral cou n tries t h e admi ral t y feel s
i t n ec ess a ry t o ad o p t exc ep t i on al m ea su res a pp rop ri ate t o th e n o v el
condi ti o ns unde r wh i ch th i s wa r i s bei n g waged
I t th e re f o re g iv es n o ti ce that th e wh o le o f th e No rth S ea must
b e c o n s id ered a m i l ita ry a rea W ith i n th i s a rea m ercha n t sh ipp i n g
o f a ll kinds t rad ers o f all c o untri es fish i n g c r a ft a n d a l l o th er v ess el s
wi ll b e expos ed t o th e gravest da n gers fr o m m i n e s i t ha s b ee n meces
s a ry to l ay and from w a r s h ip s s ea rch ing v i g i lantly by ni ght and d ay
f o r s u S p i c i o u s c ra ft
A l l m erch ant and fish in g v es sel s o f ev ery des cripti o n a re h ereb y
w a rn ed o f th e da n ger s they e n cou n te r by ente ri n g t h i s a rea except
i n s tri ct a cc o rda n c e wi th admi ralty d i recti on s
Ev ery e ffort wi l l be
m ade to co n v ey th is w a r n i ng to n eutra l c o untri es a n d to v ess el s o n
the s ea but f r o m N o vemb er 5 o n ward th e adm i ral t y ann o unc es th at all
sh ip s p as si n g a l in e drawn fr o m the n o rth er n p o i n t o f the H ebri des
th rough th e Fa r n e I sl a n ds to I c eland d o s o at th ei r o wn p eri l
S h ips o f a l l coun t ri es w i sh i n g t o t rade t o and fr o m N o rway th e
B a lt i c Denma rk a n d H o l la n d a r e a dvi s ed to c o m e i f i n ward bou n d
by th e E n gl i sh Chan n el a n d th e S tra it o f Do ve r There they w i l l b e
gi ve n s ai l i n g di r ecti on s wh i ch w i l l p ass th em s a fely s o fa r as G rea t
B ritai n i s c o nc e r n ed up th e east c o as t o f E n gland to t h e Fa r n e
I s lands wh en c e a s a fe rout e w i l l i f pos s ible b e g iven t o Lindes n a s
Li gh th ous e
Fr o m th i s point th ey sh ould tu rn n o rth o r south a ccordi ng to th e i r
d e stin ati o n k e ep i n g a s n ea r the coa st a s pos s ibl e Th e conv ers e
appli es t o v es sel s o utwa rd b o u n d
B y stri ct adh erence t o th es e r o utes th e comm erce o f al l countri e s
wi l l b e abl e t o r each i ts d est i n at i o n i n sa fety so f a r as Great B ri tai n
i s c on c ern ed but a n y strayi ng eve n f o r a few m i l es fr o m t h e c o u rs e
th us i n di c ated m ay b e f o l l o w ed by fatal c on s eque n ce s
.
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,
,
,
,
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,
,
,
,
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.
,
,
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,
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T
r i bu n e , N o v e m b e r 3
Y
o
r
k
T
e
w
N
h
e
(
,
23
1914
e g a r d i n g th e
N
o v em b e r
t
r
9
B r i t i s h an d F r e n c h m o d i fi c a t i o n s o f t h e De c l a r a t i o n o f
Th e G e r m a n A m bas s ad o r to th e S e c r e ta r y o fS tate
A cc o rd i n g to an o rde r i n Cou n ci l o f August 2 oth 1 9 1 4 th e B ri ti sh
G o ve r n m e n t i n t e n ds t o a ct duri n g the p res e n t h o sti li t i es i n a c c o rd
anc e w ith th e p r o v i s ion s o f th e Decla ra t i o n o f L on d o n rel ati ve t o
th e l a w o f naval war fa r e o f Feb rua ry 2 6 th 1 9 0 9 subj ect to s o m e
addi ti on s and m o di ficati on s H o weve r the s e addi t i on s a n d m o d i fic a
ti on s a re o f such a n atu re th at th ey o bl i te rate th e sa id declaratio n i n
Te t
f A m e i an
S e t al t the n u t al p w e
ep l y n t y t p u b l i he d
No
.
.
Ge r m an
no e,
,
,
‘
.
,
,
,
,
,
,
,
.
n
so
o
o
r
e
r
o
rs
.
x
o
r
c
r
o
e
s
.
T H E P R OT E CT I ON OF NEU T R AL R I GH T S A T S E A
12
s everal vital point s an d at th e s am e ti m e e n c roa ch o n th e acc epte d
ru l es o f i n ter n ati onal l aw Fu rth e r modi fications o f gre at c o n s e
2 I st 1 9 1 4
a
re
co
n
ta
ined
i
n
th
e
p
r
o
cl
am
ati
o
n
o
f
S
ep
t
emb
er
n
u
e
c
e
q
Fi rs t Th e mos t v ita l mod ificati on s o f th e Dec la ration o f Lond o n
a r e contai n ed i n th e rul e conc ernin g conditi o nal c o ntrab and u nd er
No s 3 a n d 5 o f th e ab o ve m e n ti o n ed O rde r i n Counci l
A rti cl e 3 3 o f th e Decla ration o f Lond o n define s th at th er e c an b e
n o qu es t i o n o f c o ndi ti o n a l cont rab and except i n th e c as e wh ere c a r g o
i s dest ined fo r th e u s e o f th e adm i n i strat ive d ep artm ent s o r th e m i l i
ta ry fo rces o f the ho s ti l e power M o re o ve r a ccordi n g to A rti cl e 3 5
th e q u esti o n wh eth e r g oods a r e conditio n al contrab a n d o r n o t c an
u n d er n o ci rcum stanc es a ri s e wh en th e v es s el i s s a i l i n g fo r a n eu t ra l
por t
Th e abov e p r o vi s ions w hi ch a re i n th e m ain in acco rdan c e w i th
th e a ccepted rul e s o f i nte r n at io n al l aw and rep res e n t th e outcom e
o f th e j ust w e igh in g O f the i n teres ts o f th e b el ligerent s o n th e o n e
s ide and o f th e neut ra l c o untri es o n th e o th e r s i de a re a s g ood a s
a n nulled by th e s a id O rde r i n Cou n c i l for a c co rdi n g t o i ts N o 3 th e
ho s ti l e d est inati on o f th e ca rgo i s to b e p res um ed i n e v e r y ca s e w h ere
the cons ig n ee o f th e ca rg o i s under th e co n tr o l o f th e autho riti es o f
th e h o sti l e S tat e Th i s h ow eve r m ean s n o th ing els e bu t tha t ea ch
and ev ery ca rg o sh ipp ed to th e h osti l e countr y i s l i abl e to be s ei z ed
becau s e a ll inh ab itants o f th at count ry a r e unde r th e contr o l o f th e
auth o ri ti es Thi s rul e i s s upp leme n ted by N o 5 o f th e s a id o rd e r
wh i ch s ets fo rth th at al l v essel s on th e voyage f o r n eut ra l ports a r e
l i abl e to b e s e i z ed for h av i n g c o n di tio n al c o ntraband o n b o ard Th us
t he ru l e o f th e continuou s v o yage appli cab l e o n l y i n th e ca s e o f
ab s o lute contrab and i s decl a red appl i cabl e al s o w i th r ega rd to co n di
t i o n al cont rab and i n c on t raventi on o f A rti cl e 3 5 o f th e Dec la rati o n
o f L o nd o n
I n thi s m anne r th e mo r e le n i ent r egu l ati o ns w i t h rega r d
to c o nditi ona l c ontraba n d es tabl ish ed by th e Decla rati on o f L o nd o n
a r e si mply s et asid e w i th th e r esul t th at condi tion al cont rab and i s
v i rtually o n th e s am e footin g as abs o lute c o n traba n d I n c o n s e
qu e n c e th e s upply by n eutral s o f o b j ects o f conditional contraband
e speci al ly o f f o odstu ffs d esti ned only for th e con s umpt i on o f th e
i n habi tants o f a b el li ger e n t c o unt ry whi ch i s u n iv e rs al ly c o n si dered
l egi ti mate i n i nte r n ati ona l l aw i s p racti c al ly rende red i l luso ry
wh ereby th e i nte rests o f th e b el l i ger ents a s we l l a s n eutra l s a r e
vi ol ated i n a m ann e r contra ry to th e l aw o f nations
A s eve n ts at th e th eatre s o f n aval wa r fa re p rov e E ngl and p r o
c e e d s i n thi s resp ect in th e most h i gh h anded m ann e r
ev e n en forci n g
a cont rol ov e r suppl i es des ti n ed fo r th e count ri e s adj a c ent to Ge r
m any and th ere b y endange rin g th ei r v i ctual ing
S ec o nd Th e B ri ti s h G o v ernm ent cons id ers it s el f at l i b e rt y to
total ly d i s rega rd th e l ists o f absolute c ontra b a n d a n d o f m e rch andi s e
n o t t o b e d ecl a red contr aband
free
l
i
st
contai
ned
X
X
I
I
i
r
l
n
a
t
i
c
e
s
(
)
X X I V a n d X X V I I I o f th e Decl a rati o n o f London I n i ts defin iti on
o f contrab a n d o f Augu s t
5 1 9 1 4 spe ci ally uph eld b y N o I o f th e
s a id O rder i n Counci l i t h a s decla re d a i rsh ips and p a rt s th ereo f
absolute co n traba n d wh i l e accordi n g t o N o 8 o f A rti cl e X X I V o f
th e Decl a rati o n o f London su c h o bj ects c an o n ly b e r ega rded a s
c o nditi on al contraband Abov e al l by p rocl am ation o f S eptembe r 2 1
1 9 1 4 i t h a s decl a red ru b b er hi de s and s k i n s a s w ell a s v a ri ou s k i n d s
o f i ron o r e
t o b e condi ti o n a l contraband al th ough th es e a rti c l es a re
n o t al l
o r on ly i n an i n di rect way
su itabl e fo r pu rp os e s o f wa r fa re
,
,
.
,
.
.
—
.
.
,
.
,
,
,
,
.
,
.
,
,
,
,
.
.
.
,
,
,
.
,
,
.
,
,
,
,
,
.
,
—
,
,
.
.
,
~
,
.
,
,
.
,
,
.
,
.
,
,
,
,
,
,
,
,
,
,
TH E P ROT E CT I O N OF N EUT RAL RI GH T S A T S EA
13
and we re the re fo r e plac ed i n th e free l ist
A
rti
cl
e
X
X
V
I
I
I
Nos
(
I n th i s ma nn er th e u n i ve rs ally accepted p ri n ci pl e o f
3 4 and
i n ter n atio n al l aw that neut ral trade with o bj ects fo r exclus ively
p eace fu l u s e m us t no t b e di sturb ed by th e belligerents i s wa nton l y
s e t a s ide
Thi rd No 2 o f th e sa id O r d er i n Cou n ci l c on ta i n s a fu rthe r ag g r a
vati o n o f th e rul es concer n ing c o n traband F o r A rti cle 3 8 o f th e
Decl a rati o n o f L o nd o n i n acco rdanc e wi th th e acc ep t ed p r i n cipl e o f
i nte rnati o na l l aw p erm its th e s eiz u re o f a v ess el f o r ca rryi n g c on
t rabaud o n ly as long a s such i s o n b o ard th e ve s sel ; whereas t h e
B ri tish G o ve r n m ent c la i ms th e ri ght o f s ei zi n g th e v ess el duri n g i t s
enti re v o yage i f c a rri age o f c o ntraband h as t a ken plac e u n der f a ls e
sh ipp i n g d o cum ents I n thi s ma n ner n eutral sh ippi n g w ith th e b ell ig
e r e n t territ o ry i s exposed t o consta n t ch i ca n e
Si n c e v essel s m ay b e
s ei z ed n o t only by re as o n o f evident facts v i z t h e exi ste n ce o f c on
tr ab an d o n boa rd but a lso by reas o n o f a fre q u entl y n o t p r o va bl e
a ffi rmati o n w i t h rega rd to th ei r p revious acts
F o urth B y th e ru le establ i sh ed under NO 4 o f the s a id O rd er i n
Cou n ci l th e righ t o f s eiz ure o n acc o u n t O f bl o ckade ru nn i n g i s
unduly exte nded s inc e a cco rd ing th ereto k nowledge o f th e bl o ckad e
i s t o b e a s sumed e ven in th e c a s e th at a fter a certa in ti me s i n ce th e
noti fica ti o n o f th e blockade o f a n en emy p o rt t o th e l o ca l authori t i e s
h as elap s ed a v es se l ha s sai led fr o m an o th e r e n emy port By th i s
rul e th e B r iti sh Gove rnment attempts beyo n d th e l im its draw n by
i nte rnational l aw to put th e auth o riti e s o f th e h o sti l e country i n to
th e s ervi c e o f th e B ri t ish nava l forc es and to en fo rce th i s s ervi c e by
th e captu re o f neutra l ve s sels
Fi fth Ac c o rdi ng to an ac k nowl ed g ed p ri ncipl e o f i nte rnati on al
l a w confi rm ed by th e Decla rati on o f L on don o n ly su ch pe rs on s trav
e li n g o n b oa rd o f m ercha n t ves s el s a r e l iab le t o b e mad e p ri s on ers
o f wa r a s have a l ready i n co rp o rated i n th e h o sti l e mi l it ary forces
Th i s rul e i s cl ea rly es tabl i shed by A rti cl e 4 5 N O 2 i n co n j u n cti o n
w ith A rti cl e 47 o f th e Decla rati on o f Lo n do n and i s m o re o ver
t reat ed i n d etai l i n the gen eral r ep o rt o f th e d ra ft ing c o mm ittee o f
th e Con fe re n ce o f L o nd o n i n th e fi rs t pa ragraph s t o n o tes t o 4 5
A s i t i s s e t f o rth i n th e ge n eral r eport f o r j udic ia l rea s o ns as well
a s fo r p racti ca l co n s iderati o n s i t wa s a gr eed at th e c o n ferenc e th a t
p e rso n s b elongi n g to th e acti v e mi l itary f o rces excl us i vely sh al l
b e l i able to b e m ad e p ri son ers o f wa r wh e n travel l i n g o n n eutra l
s h ips not how eve r p ers on s wh o i n ord e r t o fulfil th ei r m i l ita ry s erv
i c es a r e r etu rn in g to th ei r cou n try a s i n th e ca s e o f m emb ers o f
th e res e rv e A lth o ugh th e s aid O rde r i n Counci l h a s a ckn o wledged
a s bi ndin g th e abov e m enti o ned tw o a rti cle s a s w el l as th e no tes
the B riti sh n aval forces h ave neve rth el es s
o f th e g e n e ra l rep o rt
s ei z ed on m e rch ant ves s el s s ai l i n g u n d er the Dutch N o rwegia n o r
I ta l ian fl ag Germ an s ubj ects l iabl e t o do mi l ita ry s ervi c e bu t n ot
f
o
i
n
c
o
rp
o
rated
i
n
th
e
m
i
li
ta
r
f
o
rces
an
d
made
th
em
p
ri
s
on
ers
y
ye t
wa r I n th i s m ann e r th ey h av e n o t only gravely v i o l a ted th e es t ab
D
principl
e
s
o
f
inte
r
n
ati
o
nal
l
aw
a
s
exp
res
s
ed
i
n
th
e
ecl a rati on
l i sh e d
i e
n
London
but
al
s
o
i
n
frin
ed
a
n
a
ct
o
f
the
i
r
own
l
eg
i
slat
i
on
o
of
g
th e s a id O rde r i n Cou n ci l
A ccordi n g to a de c ree o f th e P resident o f th e French Republ i c
pub li sh ed i n th e J o urnal Ofli c i e l o f August 6 1 9 1 4 Fran c e h a s tak e n
th e s am e s ta n d a s Grea t B ri tai n i n th e sai d O rde r i n C o u n c i l
F
oreove
r
i
n
th
e
s
am
e
m
anne
r
a
s
th
e
B
ri
tish
na
va
l
fo
rc
e
s
the
rench
M
.
.
,
,
.
.
.
g
.
,
,
,
.
,
.
,
,
,
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,
,
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,
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,
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,
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,
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,
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,
,
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,
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,
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,
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-
,
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O
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TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S EA
14
n ava l fo rc es h av e captu re d G e rm an p ers ons l i abl e to d o m il itar y
s ervi c e on neutra l v es s els notably on Dutch and S p a n is h ves s el s
I t i s thu s evi de nt th at th e regulati on s i s s u ed by Gr eat B ri ta i n and
F ran c e and ev en mo re s o th ei r r esp ec t i v e n ava l forc es a r e di s rega rd
i n g i n th e most wa n ton way th e p rovi s i o n s embodi ed i n th e Dec l ara
ti on o f L o n don r ela tive to th e l aw o f n ava l w a r fa re
I t i s Great B ri tai n s a cknowl ed g ed ai m to h i t not onl y th e m i l i ta ry
b u t al so th e c o m merci al pow e r o f th ei r a d v ers a r ie s by w ay o f
pa ralyz ing n eut ra l trade and i n pu rsu i n g thi s pu rp o s e th e y enc roa ch
i n an u n j us tifiable m ann e r n o t onl y up o n th e le g i ti mat e comme rc e
betw ee n th e ne utra l s a n d th e en em y but a l s o up o n th e comm e rc e
am on g th e n eu tra l c o untr i es th ems elves I t i s tru e th at thu s fa r the
Dec la ration o f Lo n d o n h a s n o t b een rati fi ed H ow eve r i n it s p re
a mbl e i t h a s b een sp eci al ly acknowl edged by th e d e l ega tes o f al l i ts
s igna to ry p owers i n cludi ng thos e o f G r eat B ri tai n and F ranc e th a t
i n th e mai n th e p rov i s io n s o f th e Decl a rati o n o f Lo n don a r e i n
a cc o rdance w ith th e g e n erally a ck n owl ed g ed p ri n cipl e s o f i nterna t i ona l
l aw wh i ch mus t b e c o ns id ere d mu ch m o r e s eriou s b eca us e in th e
c o u rs e o f form er w ars i n w hi ch sh e w as n eutra l notab l y i n th e Rus s o
Japane s e W ar Great B ri ta i n h a s a l wa y s p rote s ted m o s t emp h ati ca l ly
aga i n st vi o l ati ons o f i n te rn ati on al l aw o f th e i ndi ca ted o rd er
( See
th e B r i ti s h B l u e B o o k Rus s i a N o 1 1 9 0 3 co r re spond enc e r esp e cti n g
co n traband o f w ar p age 8 etc )
Th e I mperia l G e rma n gove r n ment h a s thus fa r stri ctl y obs e rv ed th e
Dec l a ra ti o n o f Lo n don a n d h a s emb o died th e c on tents o f i ts p rovi
s i o ns in th e Ge rm an p ri z e cou rt r egul ation s o f S ept emb e r 3 0 1 9 1 4
I t h a s n ot ch a n ged thi s a t ti
( c f R e i c hs g es e te bl a tt 1 9 1 4 p age
tud e ev en i n v i e w o f th e fl a g ra nt v iol atio n s o f l aw comm itted by i ts
ad v ers a ri es
H o w eve r Th e I mp e ri al Ge rm an Gov er n m e n t mu s t now s tudy th e
question wh eth er i t wi ll b e ab l e to conti n u e to m a intai n th e abov e
a tti tude i f th e en emy p o we r s ab id e by th e p r o cedu r e O bse rv ed b y
th em and i f th e n eut ral pow ers al l o w s u ch v iol ati o n s o f th e p ri ncip l es
o f neutral ity t o g o o n to th e d etr im e n t o f Germ an i nte re st
T h e I mp eri a l G e rm an G o ve r n m e n t cons i de r s i t the r e fo re o f
interest to l e arn wh i ch p o s i tio n th e n eut ra l pow e rs i ntend to tak e
t o wa rd th e atti tude ad o pted by Gr ea t B ri ta i n and Franc e contra ry to
internati o na l l aw a n d p a rti cu la rl y wh ethe r i t i s th ei r i nte n ti o n to
take m easures aga i n st th e a cts o f v i o l ence co mm i tted o n b o a rd th ei r
m e rch ant v es sel s agai ns t G erma n s ubj ect s an d G e rm a n p r o p ert y
T
h
N
e
e
w
Y
i
o
r
T
k
m e s N o v e m be r 2 4 I 9 I 4 )
(
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’
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‘
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,
NO
.
O
V IS l n g
10
.
,
B r i t i s h p r o c l am at i o n , De c e m b e r
*
i
l s t o f c o n t r ab an d o f w ar
.
th e
23,
1
1
9 4
,
i
ag a n r e
.
W h e reas
th e 4 th d ay o f Augus t 1 9 1 4 w e d i d i s su e ou r ro y al
p r o clam at i on sp e c i fying t h e a rt i cl es w h i ch i t w as our i n t enti on t o
t rea t a s c o ntraba n d o f wa r duri n g th e wa r b etwe en u s and th e G erman
Empero r ; a n d
W he reas o n th e i 2 th day o f August 1 9 1 4 we did by o u r roya l
p r o clam ati o n o f th at d a te e xt e n d o u r p r o cl am a t i o n a f o rem ention ed t o
th
wa r b etween u s and th e Emp e ro r o f Austri a K i n g o f H u n g a ry ;
ane
1
W h erea s on th e 2 i s t d ay o f S eptem b e r 1 9 1 4 w e di d by ou r ro y a l
S ee No 6
on
,
,
,
,
,
,
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,
T H E P R OT E CT I ON OF NE U T R A L R I GH T S A T S E A
16
S u b ma ri ne soun d s i g nal in g app a ra tu s
A é r Op l an e s ai rsh ip s b al l oo n s and a i rc ra ft o f al l ki nds a n d
23
thei r comp on ent p arts t o geth e r wi th ac c e s s o fi e s and a rti cles r ec o g
n i z ab l e a s i nte n ded f o r us e i n conn ecti o n w i th ba l lo o ns and a i rcra ft
Mot o r v eh i cl es o f a ll kinds and th ei r c omp o ne n t p a rt s
24
T i re s f o r m o t o r v eh i cles and fo r cycle s togeth er w ith a rti c les
25
o r m ateri a l s esp eci a lly adapted for u s e i n the m anu f actu re o r repai r
o f t i res
Rubbe r ( i ncludi n g raw was te and re cl a i m ed rubb e r ) and go o d s
26
m ad e wh o lly o f rubbe r
27
I ro n pyrit es
28
Mi n era l oi l s and moto r sp i ri t exc ep t lu b ri cati n g oi l s
2
9 I mpl em ent s and app a ratu s des i g n ed exc lus iv el y for th e m a n u
fac t u re o f munitio n s o f wa r f o r th e m anu fa ctu r e o r rep a i r o f a rm s
o r w a r m ate ri a l fo r us e on la n d a n d se a
22
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S CH
E DU LE
II
Foodstu ffs
2
F o rage a n d feedi n g s tu ffs fo r an imal s
Cl
o
th
in
fab
ri
c
s
fo
r
c
loth
in
and
boots
an
d
s
hoe
s
s
ui
tabl
e
fo
r
3
g
g
u s e i n wa r
l
G
o
d a n d s i lve r i n co i n o r bul l io n ; pap er mon e y
4
5 V eh i cles o f a ll k i nds oth e r th an motor veh i cl e s av ai l abl e for
u s e in wa r and th ei r compon ent pa rts
6 V esse l s c ra ft and boats o f al l k i nds ; fl oati n g d o ck s pa rts o f
d o ck s a n d t h ei r c o mpon ent p a rt s
7 Rai lway m ateri al s both fix ed and rol li ng sto ck a n d m ate ri al s
fo r tel egraph s wi rel es s t elegraph s and t el ephones
8 Fu el oth e r th an m i n e ral o i l s
Lub ri ca n ts
9 Po wde r and exp los i ve s n o t spe ci all y p rep a red fo r us e i n w a r
10
H o rs esh oes and sh oe i n g m ate ri a l s
1 1
H a r n es s a n d s addl ery
12
H ide s o f al l ki n ds dry o r w et ; pi gsk i n s raw o r d ress ed ; l eath e r
u n dres sed o r d res s ed su it ab l e fo r s addler y h a r n e s s o r m i l i ta r y b oo ts
I 3 Field gl as s es t eles cop es c h ronom ete rs and a l l ki nd s o f n auti ca l
i n strum ents
D
i
o
r
I
r
C
p
(
5
1
.
.
.
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,
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,
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,
,
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,
,
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,
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,
,
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,
,
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.
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,
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,
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,
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,
.
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.
No
.
t o th e
,
A m e r i c an n o t e ,
s e i z u r e an d d e t e n t i o n
1 1
.
De c e m b e r
of
2 6,
1
9 1 4,
A m e r i c an c ar g o e s
i n r e fe r e n c e
d e s t i n e d fo r
t r a l E u r o p e an p o r ts
Th e S e c r e tar y o f S tate to th e A m e r i c an A m bas s ad o r at L o n d o n
The pres ent condi tion o f A m eri ca n forei g n t rade re s ultin g from th e
frequ ent sei zu res a n d d etentio n s o f Amer i can ca rgo es d es tin ed t o
n eut r a l Eu r o pean p o rts h as b ecom e s o s eri o us a s t o requ i re a c and id
statem ent o f th e v iews o f th i s G o ve rnm ent i n o rder th at th e B ri ti sh
G o ve r n m e n t m ay b e ful ly in form ed as to th e atti tud e o f th e Uni ted
S tates towa rd th e pol i cy whi ch h as b e en pu rs ued b y th e B riti sh au
th o r i ti e s du ri n g th e p resent wa r
Y o u w i ll the re f o r e commu n i cate th e f o l low ing to H i s M aj es t s
y
p ri n cipal s ec reta ry o f state f o r for ei gn a ffai rs bu t i n do in g s o y o u wi l l
a s sure h i m that i t i s d on e i n th e m o st fri e n dly s pi rit and i n th e b eli e f
D li
d
t L
De e m be
8 a d p u b l i he d th ee d y
d
l at e
*
ne u
.
.
.
’
,
,
,
e
ve r e
.
a
on
on
,
c
r
2
n
s
r
a
s
r
.
‘
TH E P ROT E CT I O N O F N EUT RA L RI GHT S AT S EA
17
th at fran k nes s w i l l better s e rv e the continua n c e o f cor d ia l r el atio n s
b etw ee n th e two countries than s i lenc e wh i ch may b e m i sc on s t rued
i n t o acqui es ce n c e i n a c o u r s e o f co n duc t w h i ch thi s G o ver n m e n t c a n
n o t but co n s id e r to b e a n i n fringem ent up o n the rights o f Ameri can
C i t i z ens
Th e G o ve rnment o f th e United S tate s ha s vi ew ed w ith gr o wi n g c o n
c e r n th e l a rge n umber o f vess el s l aden w i th Ameri can g oo ds des t i n ed
to neut ra l p o rts i n Eu r o pe wh i ch h ave bee n s ei z ed o n t he hi gh s eas
taken i n to B ri ti s h ports a n d de t ai n ed s o m eti me s f o r we eks by t h e
B riti s h a uth o ri ti e s Duri n g th e ea rly days o f th e w a r th i s G o ver n
m ent a s sum ed th at the p o l i cy ad o p t ed by t h e B rit ish G o ve r n m e n t wa s
du e t o th e unexpec t ed o utbr eak o f h o s t i li ti es and t h e n ecess i t y o f
i m m ed i ate a cti o n t o p revent c on traband fr o m reach ing th e e n emy
F o r thi s rea s o n i t w as n o t di sp o s ed to j udge th i s pol i cy h a rshly o r
p r o tes t it vig o rous ly al th o ugh i t was m a n i festly very i n j uri o us t o
Am eri ca n trade with the neu t ral count ri es o f Eu r o pe Th i s G o v ern
m ent relyi n g c o nfidently upon th e h igh rega rd wh i ch G reat B ri t a i n
ha s so o ften exh ib ited i n the pa st f o r th e rights o f oth er n a t i o ns c o n fi
d e n tly awai ted am e n dm ent o f a c o u rs e o f acti on whi ch de n ied t o
neutra l comm erc e th e freedom to wh i ch i t w a s e n titl ed by th e l aw o f
natio n s
Th i s exp ectation s eem ed to be rendered th e more a ssu red by th e
stat em en t o f th e f o rei gn o ffi c e early in Novemb er th at th e B ritish
Gove rnm en t wer e s a ti sfied w ith gua ra n tees o ffe red by t h e Norwegi a n
S wedi sh and Da n is h Gove rnme nt s a s t o non exp o r t ati o n o f co n trab an d
g o ods wh en consi g n ed to nam ed p erso n s i n th e territ o ri es o f th o se
G o v ernm e n ts a n d that o rde rs h ad been gi ven t o th e B ri t i sh fle et a n d
cust o m s authori ti es t o restri ct inter fe r ence wi th n eut ra l v ess el s ca rry
ing s uc h c argoes s o cons ig n ed to v erificati o n o f sh i p s paper s and
ca rgo e s
I t i s the re fore a m atter o f deep r e ret tha t though n ea rly fiv e
month s h av e pa ss ed s inc e the wa r began th e B riti sh G o vernm e n t h ave
not m ate ri al ly changed th ei r p o li cy a n d do no t treat l ess ri g o r o us ly
s h ip s and c a rg o es pa ss ing b etwe e n n eutral p o rt s i n th e peace ful pursu it
whi ch bel l igerent s should p ro t e ct ra t h er tha n
o f law ful comm e rce
i nterrupt Th e great er freedom fr o m detenti o n a n d s ei z ure whi ch
w as c o nfide n tly expe cted t o resul t fr o m c o nsi g n i n g sh ipm ents t o
”
defin ite co n si g n ee s rath er than to orde r i s sti l l awai t ed
I t i s n eedl es s to p o int out to H i s Maj esty s G o ver n m e n t u sually th e
champ i o n o f th e fre ed o m o f th e s ea s a n d the righ ts o f t rade t h at
p ea c e n o t wa r i s th e n o rma l rel ati o n betw ee n na t io n s and t ha t th e
c o mm erc e b etween c o u n tri es whi ch ar e not be ll igere n t s sh o uld n o t b e
i nter fe re d w ith by th o s e a t wa r unl ess such i n ter ferenc e i s ma n i
fe s tly a n i mp erativ e n ec es s i ty to p rote ct thei r n at i on a l sa fety a n d
th en o nly to th e extent th at i t i s a n ec essity I t i s w i th no lack o f
app rec iati o n o f th e m o m ent o u s natu re o f th e pre s ent struggl e i n wh i ch
G rea t B ri ta in i s e n gaged a n d w ith n o s elfish desi r e to g a i n u n due
c o mm e rci al adva n tage th at th i s G o ver n m e n t i s reluc t a n tl y f o rced to
th e c o nclu s i o n th at th e p rese n t p o l i cy o f Hi s M a j es t y s G o ve r n me n t
towa rd n eutra l sh i ps a n d ca rg o es exc eeds th e m a n i fe s t neces sity o f
a bel li ge ren t a n d consti tutes re st ri cti on s up on th e rights o f Am erican
citiz en s o n th e h igh ,s e a s wh i ch a re n o t j ustified by th e rul es o f i n te r
n ati on al l a w o r requ i red unde r th e p ri n ci pl e o f sel f p res ervat io n
Th e G o v ernm e n t o f th e U n ited S tates d o es no t i n t end a t th i s tim e
to di s cuss th e p ropri ety o f incl u d in g c ertai n a rti cles i n th e li s ts o f
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18
TH E P ROT E CT I O N O F N EUT RAL RI GH T S A T S EA
a b solute and con d i ti ona l cont raband wh ich h av e b e en p ro cl ai m ed by
H i s M aj es ty Op en to o bj e c t ion a s s o m e o f th es e s e em t o t hi s G o v
th e ch i e f grou n d o f p res ent c o mp la int i s the t r eatm ent o f
e r n m e nt
carg o es o f b o th c l as s es o f a rti cles wh en b o und t o n eut ra l p o rts
A rti cl es l i sted a s abs o lute contraba n d sh ipp ed fr o m th e Un i ted
S tates a nd c on s ig n ed t o neutra l c o u n tri es h ave b een s ei z ed and de
tai n e d o n th e gr o u n d th at t h e c o u n tri es t o wh i ch th e y w ere de s ti n ed
h ave n o t p r o h i b i t ed t h e exp o rta t i on o f s uch a rti c l es U nwa r ranted
a s s uch det e n ti on s a re i n t h e o pi n i o n o f t h i s G o vernm ent Am e r i can
exp o rters a re fu rth er p erpl exed by th e app are n t i ndec i s i o n o f th e
B ri t i sh a uth o ri ti es i n applying th e i r o w n ru le s to neutra l ca r g o es
F o r exampl e a sh ipm e n t o f coppe r from thi s countr y to a sp ec ified
c o nsi gne e i n S wed e n wa s detai n ed b ec aus e a s w as s tated by G reat
B rita in S w eden h ad placed n o emba rg o o n c o pp e r O n th e o th er
h and I taly n o t o n ly p r o hi bited the expo rt o f coppe r bu t a s th i s Gov
put i n fo rc e a d ec ree th at s h i p m e n ts to I ta li an
e r n m e n t i s i n f o rmed
”
c on s ignees o r
t o o rde r w h i ch a rr ive i n po rt s o f I tal y c ann o t b e
exp o rted o r t ra n ssh ipped Th e onl y excepti o n I ta ly m ak e s i s o f c o p
pe r wh i ch pa s s es th rough th at countr y i n tra ns it t o a n ot h e r c o untry
I n spite o f th es e dec re es how ev er th e B riti sh Fo re i g n O ffice h a s
thu s fa r d ecl ined t o a ffi rm th at copp e r s hi pm ent s con sign ed t o I ta l y
w i l l n ot be m o l ested o n th e hi gh s ea s S e iz ures a r e s o nume r o u s and
del ays s o p r o l on ged th at exp o rte rs a r e a fra i d to s end th e i r c o pper t o
I taly steamsh ip li ne s decl i n e to a cc ept i t a n d i n su re rs r e fus e t o i s sue
pol ici es upo n it I n a w o rd a l egi t im ate t r ade i s be in g g reatly i m
pai red th r o ugh unc ertainty as t o th e tre atm ent wh i ch i t m ay exp ect at
the h a n d s o f th e B riti sh auth o rit i e s
W e feel that w e a r e abu n dantly j usti fi e d i n a s k i n g f o r i n fo rmati o n
a s to th e manne r in wh i ch th e B ri t i sh Gove rnm e n t p ropos e t o c a rry
o ut th e poli cy wh i ch th ey h ave ad o pted i n o rd er th at w e m ay dete r
m ine the step s n ecess a ry t o p r ot ect o u r ci ti z en s enga ged i n f o rei g n
t r a de in thei r ri gh ts and from th e s e riou s los s e s to wh i ch th ey a r e
l iabl e through i gno rance o f th e h az ard s to whi ch th ei r ca r g oes a r e
exposed
I n cas e o f conditi o n al c ontrab and th e pol icy o f Grea t B rita i n ap
p ea rs t o th i s G o v ernment to b e e q ual l y unj u stified by th e est ab l i sh ed
rul es o f i n ternati o n al co n duct A s evi d e n c e o f th i s atte n tion i s
di rected to th e fa ct that a numb er o f th e Am eri ca n c a rg o es wh i ch
h ave been s ei z ed cons i st o f foodstu ffs a n d o th e r a rt i cle s o f comm on
u s e i n al l c o untri es wh i ch a re adm itt edly r elati v e c o nt raban d I n
s pi te o f th e p resumpti on o f i nnoc e n t u s e b ecaus e de s tin ed t o neut ra l
territ o ry th e B riti s h auth o r i ti e s m ade th es e s ei z u res and de te n ti o n s
wi th o ut s o far as we a re i n fo rm ed being i n pos s ess i on o f fa cts wh i ch
wa rranted a reas on abl e bel i e f th at th e sh ipm e n ts h a d i n r eali ty a
bel li g erent desti n ation a s th a t term i s us ed i n i nte rna tio n al l aw
Me r e suspi c i on i s n ot ev idenc e a n d doubt s sh o uld b e resol v ed in favo r
o f n eutral commerc e not agai n s t i t Th e e ffect up o n t rad e i n th es e
a rticl es b etw ee n neutra l na t i on s r esulti ng from i nte r rupted voyages
and detained ca rgo es i s n o t enti rely cu red by r ei mbu rs em ent o f th e
owne rs fo r the dam a ges wh ich th ey h av e s u ffe r ed a fte r i n vest i gation
h a s fai l ed to establ i sh an en emy desti n ation Th e i nj u ry i s to Am er
i can c o mm erc e with n eutral cou n tri e s a s a wh o l e th r o ugh th e h a z a rd
o f t ill enterpri se and th e r ep eated di versi o n o f g o ods from es tabl ish ed
m ar :ets
I t al so appea rs th at cargoe s o f th i s ch ara cte r h av e be en s ei z ed by
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TH E P RO T E CT I O N O F N EUT RAL RI GH T S A T S EA
19
th e B ri ti sh authoriti es becaus e o f a beli e f th at though no t o riginal ly
s o intended by th e sh ippe rs
th ey w i l l ultim at e ly rea ch t h e t er ri to ry
o f th e e n em i es o f G re a t B ri ta i n
Y e t t h i s beli e f i s frequen t ly r e
d u c e d to a m ere fea r i n v i ew O f the emba rg o e s wh ich hav e b ee n
dec reed by the n eu t ra l c o untri es to wh ich t hey a re de s t i ned on th e
a rti cl es c o mp o s i n g th e c a rg o es
”
That a c o nsi g n me n t to orde r o f a rti cle s l i sted a s c o ndi ti on al
c o nt raba n d and sh ipped t o a neutra l p o rt ra is es a l ega l p re sump t i o n
o f enemy d esti n at i on appe a rs to b e d i rec t ly c ont ra ry t o th e doc t ri n es
p revi o u sly h eld by Gre a t B rita in and thu s s ta t ed by Lo rd S a l i sbury
du ri ng th e S o uth A frican W ar :
,
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’
Foodstu ffs th o ugh h aving a h o sti l e de stina tion c a n b e c o nside re d
a s co n t raba n d o f wa r o nly i f t h ey a r e f o r t h e enemy s f o rc es ; i t i s
n o t su f
fi ci ent tha t th ey a re capabl e o f bei n g s o u s ed i t mus t b e sh o w n
”
th a t th i s was i n fa ct th e i r des ti nati o n at th e t im e o f th e i r s e i zu r e
,
,
’
,
.
W ith thi s s tatement a s
c o nditiona l c on traba n d th e v i ews o f th i s
Gove r n m e n t a r e i n enti re a ccord and up o n t h i s h i s to ri c d o ct ri n e c o n
s i s te n tl y ma i n ta i n ed by Great B ritai n wh e n a belli gerent a s w ell as a
n eutra l Am e rican sh i pp ers w e re e n titled t o re ly
Th e Gove rnment o f t h e U n i t ed S ta t e s readi ly adm it s the ful l righ t
o f a bel l iger e n t t o v i s i t and s earch o n th e h igh s ea s th e ve sse l s o f
A m eri can ci ti z en s o r o th er n eutra l v essel s c a rryi n g Am eri c an g oo ds
a nd t o detai n th em w h e n th e r e i s s u ffic i e n t ev i d e n c e to j u s ti fy a b e l i e f
th a t c o n tr aban d a r ti c l e s ar e i n th e i r c ar g o e s ; but H i s M a j es ty s G o v
e r n m e n t j udging by th ei r o w n experi enc e i n t h e pas t mu st real i z e th at
th i s G o v er n m ent cann o t w ith o u t p r o test p erm i t Am eri can sh ip s o r
Am eri can ca rg o es to b e taken i nt o B ri ti sh p o rts a n d the r e d et a i n ed
f o r th e pu rp o s e o f s ea rch i n g gene ral ly fo r evid enc e o f c ont raba n d
o r up o n p resumptio n s c reated by sp ec ia l muni c ipa l e n actme nt s wh i ch
a re c l early a t va ria n ce wi th i nte rn a t i on a l l aw a n d p racti ce
T h i s G o ve rnment b el i ev es a n d ea rnest l y h o pes H i s Maj esty s Gov
e r n m e n t wi l l c o m e to th e s am e b el i e f that a c o urs e o f c on duc t m o re
in co n form ity w i th the rul es o f inte rnati o n al us age wh i ch G reat
B rita in h as s tr on gly s anctio n ed for m any yea rs w i l l i n th e e n d
b ette r s erve th e in t eres t s o f bel ligerents a s wel l a s th o s e O f n eut ral s
No t o n ly i s th e situation a c ri t i ca l o n e t o th e c o mm e rci a l i n t e res t s
but m a n y o f t h e grea t i n dust ri es o f thi s c o u n
o f th e U n i ted S tates
tr y a r e su ffe rin g b ecaus e thei r p r o duc ts a re den ied l on g es t abl i sh ed
m a rk ets i n Eu r o pe a n c o u n tri es wh i ch though n eutral a re c on tiguou s
to th e nati o ns a t wa r P r o duc ers and expor t ers s t eam sh ip a n d i n s u r
anc e c o mpan i es a r e p ress ing a n d n o t wi t h o ut re a s on fo r rel ie f fr o m
t h e m e n a c e t o t ra n s Atla n ti c trade whi ch i s gradual ly but su rely
de s tr o yi n g th ei r bus in ess a n d th re ate n i n g th em w i t h fi n a n c i al di sa s t er
Th e G o v er n m e n t o f t h e United State s s t i l l relyi n g up o n th e d eep
s ens e o f j u sti c e o f th e B ri ti sh N atio n wh i ch ha s bee n s o o ften m a n i
fe s te d i n th e i nte rcou rse b etw ee n th e tw o cou n tri es du ri n g s o many
yea rs o f uni nter rupted fri e n dsh ip expresses c on fide n tly t h e h o pe th at
H i s Maj esty s G o ver n m ent w i l l real i s e th e o bst a cle s a n d d i fficul t i e s
wh i ch th ei r p resen t p o l i cy h a s plac ed i n th e way o f c o mme rc e b e
tween th e U n i ted St ates a n d th e n eu t ra l cou n tri e s o f Eu r o p e a n d
w i l l i n struct i ts o ffici al s t o re fra i n f r o m a l l u nn eces sa ry i n ter fe re n c e
with th e freed o m o f t rade b etwee n n a ti on s wh i ch a re su ffe re rs th o ugh
n o t pa rti ci pants i n th e prese n t c on fl i ct ; a n d wi ll i n th ei r t reatm e n t
to
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TH E P RO TE CT I O N O F N EUT RAL RI GH T S A T S EA
20
neutra l sh ip s and c a rgoes c o n fo rm mo r e c l o s el y to thos e rul es
g o ve rni n g the m ari tim e r el ati o ns b etw een bell i gerent s a n d n eutra ls
wh i ch h a ve rec ei v ed th e sa n c t i o n o f th e c iv i l i z ed w o rl d and wh i ch
G re a t B ri tai n h as in oth er w a rs s o strongl y and s ucc es s ful l y a d y o
o
f
,
,
,
,
c ate d
.
’
I n con clus ion i t sh o uld b e i mp re s s ed u pon H i s M aj e st y s Gove rn
m ent th at th e p r es e n t co n di tio n o f A me ri ca n trade w ith th e n eutra l
Eu r o pean c o u n tri es i s s uch th at i f i t d o e s n o t i mp rov e i t m ay a rou s e
a feel i n g c on t ra ry t o th at wh i ch h a s s o l o ng exi sted be twe en th e
Am eri can a n d B riti sh p e o pl es Al ready i t i s bec o m i n g m o re and
m o r e th e s ubj ec t o f publ i c c riti ci s m and compl a i n t T h er e i s an
i n c reas i n g b el i e f d o ubtles s not e n ti rely u n j ustified th at th e p re s ent
B riti sh p o li cy t o ward A m eri ca n trad e i s re sp on si bl e fo r th e d ep r es s ion
i n c ertai n ind us tri es wh i ch dep e n d up o n Eu r o p ea n m a rk ets T h e
attenti o n o f the B riti sh G o v ernm e n t i s c al l ed t o th i s p o s s ib l e r es ult
o f th ei r p res e n t p o l i cy to S h o w how wi d esp read th e e ffect i s up o n th e
indu s tri al li fe o f th e U n i t ed S tates and to emph as iz e th e i mportan ce
o f r em o vin g th e caus e o f compl a i nt
B RYA N
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YOUR
E $ C ELLEN C Y : I h av e th e hono r to a c k nowl ed g e r e c eip t o f
y o u r n o te o f th e 2 8 th o f Decemb er
I t i s b ei n g ca re fu l ly exam ined a n d th e poi nts ra i sed i n i t a r e r e c e i v
i n g c o n s i de rati on a s the resul t o f whi c h a reply s h al l b e addres s ed
t o Y ou r Exc el l e n cy deal i n g i n deta i l w ith th e i s su es ra i sed a n d th e
p o i n t s to wh i ch th e U n i ted S tates G o vernm e n t h av e drawn att ent ion
Th is c on si derati on a n d th e p repa ration o f th e r eply w i ll nec es s a ri l y
requ i r e s om e ti m e and I th e re for e d es i r e to s end w ithout fu rth er
del ay som e p rel i mi n ary ob s e rvatio n s wh i ch w il l I tru st he lp to c l ea r
th e ground and rem o v e s o m e m i s c o nc ept ions th at s e em to exi s t
Let m e s ay a t on ce th at we en t i r ely r ecog n i z e th e m o st fri en d l y
S pi ri t re fe rred to by Y our Excell e n cy and tha t w e d es i r e to r eply i n
th e s am e sp i ri t a n d i n th e bel ie f tha t a s Y ou r Exc ell ency s tates
frank n e ss w i l l b est s erv e t h e co n ti n uanc e o f cord i a l rel ation s b etw e en
th e two cou n tri es
H i s M aj e sty s Gove r n m ent c o rdi al ly co n cu r i n th e p rin c ipl e e nun
c i ate d by th e G o ve rnm e n t o f th e U n it ed S tat es t h a t a b ell i ge r ent
i n deali ng wi th t rade b etw een n eutra l s sh ould n o t inte r fere u n l es s
such inter fer en c e i s n ec es sa ry to p rotect th e b el li geren t s n ati o nal
s a fety a n d th en on ly to th e exte n t t o wh ich th i s i s n eces s ary W e
shal l e n deavou r to k eep o u r action w ith i n th e l i m i ts o f th i s p rinc ipl e
o n th e understa n ding th at i t adm its o u r ri gh t to i nte r fe r e wh e n su ch
i n te r ference i s n o t wi th b o n a fid e t rade b etween th e Un ited Sta te s
a n d an ot h er n eu t ral c o untry bu t w ith t rade i n co n traband d estin ed
fo r th e e n emy s cou n try a n d w e a r e ready wh eneve r o u r a ctio n m ay
u n i n te n ti on ally exce ed th i s p ri ncipl e t o m a k e r ed re s s
W e th i n k th at mu ch m i sc on ception exi sts a s to th e extent to wh i ch
we h av e i n p racti c e i nt er fered w ith t rade Y o u r Exc el lency s n o te
s eem s to hold H i s Maj es ty s Gove rnm ent res p o ns ibl e fo r th e p re s ent
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TH E P RO T E CT I O N OF N EU T R AL R I GH T S A T S E A
21
c ondi tion o f t rad e wi th neutral countri es a n d it i s stated that th rough
th e a ct ion o f H i s Maj esty s G o ver n m e n t t h e pr o ducts o f t h e grea t
i n dustr i es o f th e Un i t ed S t ates h ave been d e n i ed l o ng establ ish ed
m a rkets i n Eu r o pean c o untri es wh ich t h o ugh neu t ral a re c o ntigu o us
t o th e s ea t o f w a r S uch a resul t i s fa r fr o m b ei n g t h e i nt en t i on o f
H i s M a j esty s G o ver n ment a n d t hey w o uld exceedi n gly regret th at
i t shou ld b e due t o th ei r a cti on I h ave b ee n u n able to o b t ain c o m
e
l
e
t
o r c o nclus i ve figu res sh o wi n g wh at th e s t at e o f trade wi t h t hese
p
n eu tra l c o u n tri es h a s be en rece nt ly and I can t he re f o re o nly ask
th at s o m e fur t h er c o ns idera t i on sh o uld b e give n to th e ques t i o n
W h eth e r Un it ed S tates trade wi th th es e n eu t ral c o u n trie s h a s bee n
s o s eri o us ly a ffe cted
Th e on ly figu res a s t o th e t o tal v o lum e o f trade
that I h ave s een a re th o s e f o r t he exp o rts fr o m N ew Y o rk f o r th e
m o nth o f N o vemb er 1 9 1 4 a n d th ey a re a s f o l l o ws c o mpared w i th
th e m onth o f N ovembe r 1 9 1 3 :
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fr o m N e w
Yo r k
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,
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000
I t i s tru e th at th ere m ay h ave b ee n a fall ing o ff in c o tto n exp o rts
a s t o wh ic h N ew Y o rk figu res would be n o guide but Hi s M aj es t y s
G o ve rnm ent h ave b ee n m o st c a reful n o t t o i nt er fe re w i t h c o tt on a n d
its p lac e on th e fre e l i st h a s bee n s c rupu l o us ly mainta i n ed
W e d o n ot w i sh t o lay t oo much stress up o n i n c o mpl e t e s tati s t i cs ;
th e figu r es ab o v e a re n o t put fo rwa rd as c o nclus i ve ; a n d w e a re p re
p a red to exam i n e any fu rth er evi de n c e wi t h rega rd t o th e s t at e o f
t rad e w i th th es e n eutra l c o u nt ri es w h i ch may p o i n t t o a di ffere n t
c o nclu s io n o r s h o w th a t i t i s th e a cti on o f H i s Maj esty s G o ver n m e nt
i n p a r t i cu la r a n d n o t th e exi ste n c e o f a state o f wa r a n d c on s eque n t
di minu t i o n o f purch a si n g p o wer a n d s h ri n kage o f trad e wh i ch i s
resp o n s ib l e fo r advers e e ffects upon trad e wi t h th e n eutr a l countri es
Th at the exi stenc e o f a state o f wa r o n su ch a s cal e h a s had a very
adve rs e e ffect up o n c erta i n great i n dustr i es su ch a s cotto n i s o bv i o us ;
but i t i s subm itted th at th i s i s du e to th e gen era l caus e o f di mi n i sh ed
pu rch asi n g p o wer o f su ch countri es a s France Germa n y a n d t h e
U n i ted K ingd o m ra t h e r th a n t o i n te r ferenc e wi t h trade w i t h n eu t r a l
c o u n t ri e s I n th e matter o f cott o n it m ay b e recal l ed that th e B ri t i sh
Government gav e sp ec ial as si sta n c e th r o ugh t h e Liverp oo l C otto n
Exchange t o t h e r e n ewal o f tra n sa cti on s i n th e cott o n trade o f n o t
only th e U n i ted K i n gdom but o f ma n y n eu tral c o u n tri es
Y o u r Exc ell ency s n o te re fe rs i n pa rti cul a r to th e dete n ti on o f
C o ppe r Th e fi gu res taken fr o m o fficia l retu rns f o r the export o f
c o pp e r from the U n i ted S ta t es f o r Italy f o r t h e m ont h s duri n g wh i ch
th e wa r h a s b een i n p r o gres s up t o th e end o f th e fi rs t th ree weeks o f
Decembe r a re as fol lows :
N i n eteen th i rteen : Fi fte en m il l ion tw o hundred two th ousand
pounds N i n ete en fourtee n : Th i rty si x m i l l i o n tw o h u n dred eighty
N o rway Swede n De n ma rk a n d S wi tze rl an d
fiv e th o usand p o u n d s
a re n o t sh ow n s epa rately for th e wh o le peri o d i n th e Un ited S tate s
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22
TH E P ROT E CT I O N O F N EUT RA L R I GH T S A T S EA
”
retu rns bu t a re i ncluded i n th e h eadi n g O th er Eu rop e
( th at i s
Europe o th e r th an t h e U n ited K i ngdom Ru s s i a F ra n ce B elgi um
Th e c o rresp o ndin g figu res
A u str i a Ge r m an y Holland a n d I tal y )
unde r th i s h eadi n g a re a s f o l l o ws :
N inete e n thi rteen : S even m i ll ion tw o h u n dred s ev enty o n e thou
s a n d p o unds N i netee n fou rt een : Th i rt y fiv e m i l l ion th re e h und re d
forty s eve n th o usa n d p o unds
W ith su ch figu res th e p re s umpti on i s v e r y st r o ng th at th e bul k o f
c o ppe r co n si gned to th es e c o u n t ries h a s recentl y b een i n te n ded n o t
f o r th ei r o w n u s e b ut for that o f a be l li gerent wh o ca n n o t i mp o rt i t
di rect I t i s th e re f o re a n i mp e rativ e n e c es si ty fo r th e s a fety o f th i s
countr y wh i le i t i s a t wa r th at H i s M aj esty s G o ve rnmen t s h ou ld
d o a ll i n th ei r powe r t o st o p su ch p a rt o f th i s i mpo rt o f coppe r a s i s
n o t genui n ely desti n ed f o r n eutral c o untri es
Y o u r Excel l ency doe s not quot e a n y p a rti cul a r sh ipm e n t o f coppe r
to S weden wh i ch h a s b ee n de tai n ed T h e re a r e h o w ev er f o u r c o n
s i g n m e n ts to Sweden at th e p re s ent ti m e o f c o pp er and a l um in i um
wh i ch though d efin i tel y c o n s ign ed to S w ed e n a r e a c c ord ing t o po s i
ti ve ev idence i n th e po s s es s i on o f H i s M aj est y s Gov e rnm ent defi n i te ly
de s tined fo r Ge rm any
I can no t b el i ev e th at w i th s u ch fi gu res b e fo re th em a nd i n s u ch
cas es as thos e j us t m e n tio n ed th e G o ver n m e n t o f th e U n i ted S tates
w o uld ques t ion t h e p rop ri ety o f th e a ct i o n o f H i s M aj e s ty s Gov e rn
m e n t i n taki n g su sp ected c a rg o es t o a p r iz e c o urt a n d w e a r e c o n
v i n c e d tha t i t can n o t b e i n a cc o rd w i th th e wi sh e ith e r o f th e G o v e rn
m ent o r o f th e p eople o f th e Un ite d S tates to s t ra i n th e i nte rnatio n a l
code i n fav o u r o f p ri vate i nte rests s o a s to pr ev e n t G rea t B ri tain fro m
taki n g such l egi tim at e m ea n s fo r th i s pu rp o s e a s a r e i n he r p o w e r
W i t h rega rd t o th e s ei zu re o f f oo dstu ffs t o wh i ch Y o u r Exce l l e n c y
r e fers H i s M aj esty s G o ver n m ent a re p r epa red to adm it th a t fo o d
stu ffs shou ld n o t b e deta i n ed a n d put i n to a p ri z e cou rt w i th ou t p r e
sumption th at th ey a re inte n ded f o r t h e a rm ed f o rce s o f th e en em y
o r th e e n emy g o ver n m ent
W e b el i ev e th at th i s ru le h a s b een ad
h ered t o i n p ra cti ce h i t h erto b ut i f th e United S tat e s G o v ernm ent
h ave i n sta n ces t o th e co n tra ry we a r e p r epa red t o exam i n e th em
and i t i s o u r p res ent int e nt i on to adh e r e t o th e rule though we c annot
gi ve a n u n l imi ted a n d un c on di t i on al u n d ertaki n g i n v i ew o f th e d e
pa r t u re by th o s e against whom w e a r e fi gh ti n g fr o m h i the rto a c c epted
rules o f ci v il i z ati on and h um a n ity a n d th e unce rta i n ty as to th e extent
to wh i ch su ch rul es m ay b e vi ol ated b
th
em
i
n
futu
re
y
Fr o m th e 4th o f Augu st l a st t o th e 3 d o f J a n ua ry th e n umb e r o f
steam sh ips p r o ce edi ng fr o m th e U n i ted S tat es fo r H ol land Denm a rk
N o rway S w ede n and I t aly h as b een s even h und red a n d s ev enty
th ree O f th es e th e re a re forty fiv e wh i ch h av e h ad cons i gnm e n t s or
ca rg o e s pl a ced i n th e pri z e court w h i l e o f th e sh i ps th em s el ve s on l y
ei gh t h av e b een pl ac ed i n th e p ri z e c o u rt and o n e o f th es e h as s i n ce
b ee n released I t i s h o wev er es s enti al und er m o de rn conditi o n s th at
wh e re th e re i s real gr o u n d f o r s u sp ect ing th e p re s e n c e o f co n trab and
th e ves s el s sh o uld b e b r o ugh t into p o rt fo r exam i n at i o n : i n n o o th er
way can th e righ t o f s ea rch b e exerci s ed and bu t fo r th i s p ra cti c e
i t w o uld h av e to b e c o mpl etely aband on ed I n f o rm ati on w a s rec ei ved
by u s th at speci al instruc t i on s h ad b een giv en to sh ip rubb er from the
Uni ted Stat es u n der an o th e r de sign ati on t o es cape noti c e and s u ch
ca ses h a ve o ccur red i n s everal i n stanc es O n ly by s earch i n a po rt
c an
s u ch cas es when s usp ected b e d i s cov ered and p roved Th e
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P RO T E CT I O N OF N EUT RA L R I GH T S A T S E A
TH E
24
We en d eavor i n th e i nterest o f ou r own national s a fet y
p re v ent
t h i s dange r by i nte rcepting g o o ds really des ti n ed fo r th e enem y with
o ut i n ter fe ri ng with th o se wh i ch a re bo n a fid e n eutra l
S i nce t h e o utb reak o f th e wa r th e Gov er n m ent o f the United S ta tes
h ave ch a n ged th e i r p revi o us p racti ce and h ave p r o h i bi ted th e publ i
catio n O f m a n i fes ts ti l l 3 0 days a fte r th e d epa rtu re o f ves s el s fr o m
”
th e U n i ted S ta t es port s W e had n o locu s standi fo r c o mp la i n
i ng o f th i s change a n d di d n o t c o mp la in B ut th e e ffec t o f i t mu s t
b e to i nc re ase th e di fficul ty o f a s c e rta ini ng th e p res enc e o f contra
band a n d t o render n ec es sa r y i n th e i n tere s t s o f ou r n ati onal s a fety
th e exa minati on and detention o f mo re sh ip s th an would h av e be en
th e cas e i f th e fo rme r pra ct i ce h ad continu ed
P endin g a mo r e detai l ed repl y I would concl ud e b y s a y i n g th at
H i s M aj esty s Gove r n m en t do n o t des i re to co n tes t th e g ene ra l p ri n
c i p l e s o f law o n whi ch th e y unde r s tand the n o te o f th e Un ited S tat e s
to be ba sed a n d des i re to rest ri ct th ei r a cti o n sol el y to i nter ferenc es
wi th c o ntraband d est ined fo r th e en emy H i s M aj e s ty s Governmen t
a re p repa red wh enev er a ca r g o c o ming fr o m th e Un i ted S tates i s
d eta i n ed to exp la in th e ca s e o n wh i ch s uch de tenti o n h a s ta k en p l ac e
and would g ladly ente r i nt o any a r rangem ent by w h i ch m i stak es c an
b e av o ided and repa rati on s ecu red p rompt ly wh en a ny inj u ry t o th e
n e ut ra l o wners o f a sh i p o r c a r g o h a s b ee n i mp rope rly c aus ed fo r
th ey a r e most des i rous i n th e int erest both o f th e U ni ted S tates and
o f o th er n eutral c o u n t r ie s th a t B riti sh a ct i o n s h ould n o t inte r fe re
w ith th e n o rma l i mport ati on and u s e by the n eutra l countri e s o f g oods
from th e United S tate s
I h av e etc
E GRE Y
D
4
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r
1
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to
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No
.
S u m m ar y
c l am at i o n o f th e Ge r m an F e d e r al
C o u n c i l J an u a ry 2 5 1 9 1 5 i n r e fe r e n c e t o fo o d s t u ffs
Avai labl e s upp l i es i n th e emp i r e o f w h eat rye both unm i xed and
m ixed wi th o the r p r o du cts a ls o unth res h ed a re s ei zed f o r w a r
G rai n c o mp any l im ited and wh eat rye o ats an d b a rley flo u r a r e
s ei z ed f o r th e mu n i c ipal i ty o r di st ri c t wh ere th e p r o duct s a r e found
Flou r i n t ran sp o rtation i s to b e s eiz ed fo r the m uni cipa li t y i n th e d i s
triet o f desti n a ti o n
Exempted from s ei zu re a r e supp l ie s b el o ngi n g to th e Gove rnm ent s
nava l o r m i lita ry dep a rtm ent s m un i ci p al i ti es w a r grai n c omp a n y
c entra l pu rch asing c o mpany o r ind ivi dua l am ounts o f fl ou r o f th resh ed
gra i n n o t exce eding t o geth er 220 pounds
Attach ed suppl i es m ay n o t be t o u ch ed and l e g a l p roce edi n gs i n
th e i r r e g ar d ar e nul l a nd void
T h e feedi ng o f ani m al s w ith su ch
suppl i es i s pa rti cul arly fo rb idden O wn e rs m us t tak e th e n ec e s sa r y
step s to c o ns erv e the i r s uppl i e s
S ale s t o the wa r grain comp any an d to m uni c ipali ti es a re al l o wed
S ales fr o m o n e muni cipal i ty t o anoth er requ i re th e co n s e n t o f h i gh er
adm i n i strati v e auth o riti es and m u s t be r eported to the c entra l d i s
t r i but i ng bur eau An agri cu ltu ri s t m ay h o wever giv e h i s emp loye rs
n i ne kil o s o f br eadstu ffs p er month each an d m ay k eep su ffic i ent s eed
fo r sowing
Th e Admi ralty m ill s a re to ful fil contra cts fo r Fe b ru a r y 1 9 1 5 and
d el i ve r fl o u r Deal ers a n d p ri v a t e m i ll s m ay s el l up t o h al f o f th e
fl o u r b o ugh t fr o m Ja n ua ry I t o 1 5 B akers m ay p repa re th re e qua r
.
1
3
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TH E P RO T ECT I O N O F N EUT RAL RI GH T S A T S EA
25
t e r s o f th e ave ra g e d a i l y con s umpti on o f Janua r y I to 1 5 Th e s am e
appl i es t o fl ou r n o t s ei zed
I n fri ngem e n ts a re puni shabl e wi th on e yea r s impri s o nme n t o r
m a rks fin e P ers o ns having o n Feb rua ry 1 suppl i es o f m ate
r i a ls m e n ti o n ed and o ats mus t r ep o rt th e amount and owners h ip
Th e suppli es o f se eds must b e pa rti cula rly give n Th e wa r gra i n
c o mp any and th e c e nt ral pu rcha s i n g c o mpa n y n eed n ot m ake a r e
p o r t Th e G o ver n m ent and m i li tary s uppl i es mus t a ls o be rep o rted
B ake rs and m il ls mu s t report h o w much i s us ed from J a n ua ry 1 t o
J an u e r y I 5 and th e ch anges in sto res V erification by o ffic ial s i s p er
m i tte a
Comp etent autho ri ti es w i l l re g ul at e th e p roc es s o f di spos s es s i on
An adequate p ri c e must b e p aid but th e sto res not rep o rted a re n ot
p aid f o r wh en take n Th e p er so n di spos se s s ed mus t l oo k a fte r t h e
m at eri al s unti l th e di sposses s o r i s ready t o t a ke the sam e over F o r
thi s the p e rs on d i sp o ss ess ed obtai n s r ec o mp ens e A tta chm ent a n d di s
pos s es s i o n app ly a ls o t o straw o f unth resh ed gra in
Th e wa r gra i n company o n request i s bound t o s upply to th e m u
n i c i p al i t
y a p a rt o f a l l grai n all o tted to the di stri c t o f th e latter o r t o
t ra ns fe r th e titl e i n s a id gra i n I t i s a lso bou n d to tak e o ver s ei z ed
fl o u r at th e r equ es t o f th e m uni cipal ity fo r th e l atte r as fa r as p o s
s i bl e and t o o ve rs e e th e s al e o f th e same I t i s a ls o bou n d at th e
w is h o f th e muni cipal i ty t o keep th e quanti ty o f th e gr a i n i n t h e
d is tri c t up t o th e a mount ass i g n ed and to gi v e i t t o b e m i l led by th e
di stri ct m i ll s
Th e m i ll s wi l l gri nd th e grai n given by th e wa r grai n company a n d
by th e central pu rch as ing c o mpany o r by th e m un i cipal i ty
P aym ent f o r grind i n g i s s et by th e G o ver n m e n t o ffici al s Mi lls m ay
de l i ve r th e fl o u r and th ei r p roperty o n ly to th e wa r gra in c o mpa n y o r
t o th e m uni ci pal ity Th e wa r gra i n c o mpa n y m ay fu r n i sh fl o u r t o th e
muni cipal itie s a rmy o r n avy auth o ri ti es o nly The p ri c e i s s ubj ect
t o regul ati o n by th e G o v ernm e n t o ffic i al s
B ran fr o m su ch grai n i s t o b e del i ve red p e r Go v ernment o rde rs
a n d p ri c e fixed for s ame A n i mperia l di stributi on o ffic e i s estab
l i s h e d to apporti o n w i th th e h elp o f the wa r gra in company th e exi s t
i n g supp l ies unti l th e n ext h a rv es t
A body composed o f s ixteen m embe r s o f the B y n fe s r at ( s i c )
e
B
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d
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t
Federa
l
Counc
il
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$
$
Agri cu ltu ral A dvi so ry B o ards a n d th e Germ an Nati o n al Chambe r
o f Comm erc e
and th e Mu n i cipa l A s soci atio n Th e mu n i c ipal itie s
m us t fu r n i s h t o th i s b o dy facts rega rdi n g th ei r grai n s uppli e s
Mun i c ipali ti es w i ll regulate th e am o u n t u s ed o f suppl i es i n th ei r
di st ri ct pa rti cul a rly th e am o unts give n t o b ake rs a n d r eta i l e rs but
w ithi n th e l imi t s et by th e ce n t ral d i s tributing bu reau Mu n i cipal i ties
c an a ls o p res c ribe a l l rul es a n d regul ati on s f o r maki n g and s elli n g
b re a d Muni cipal i ti es rec ei v e a b on us o f te n pe r c e n t o f the val ue
o f t h e am o u n t retu rned o f the u n u s ed quantity a ll o tted th em f o r a ny
s tated p e ri o d Th es e bonu ses t o b e u sed f o r f oo d f o r pe o pl e Mu n i c
i p al i ti e s w i l l fi x th e pri c es f o r flou r as si gn ed by th em
Th e fo regoi n g re g ulati on s do not a pply to th e gra i n a n d fl ou r i m
ported a fte r Ja n u a ry 3 1 I 9 I 5 I mp o rted grai n a n d fl o ur may be
gi ve n o ve r by i mp o rte rs o nly to th e w a r gr a i n company th e ce n tra l
pu rcha s ing c o mpa n y o r th e m u n i cipal i t i es
Ci t i es and c o mmu n i t i es o f m o re th a n
soul s a re t o tak e me a s
u res fo r cons ervation o f m eat a n d arran g e f o r th e supply o f pres erved
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TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S EA
26
meat To th i s en d comm uniti es m ay take ov er th e o wn e rsh i p
swi n e a n d fix th e p ri c e th er e f o r
.
o
f
.
Y
o r k Ti m e s F e br u ar y 1 8 ,
T
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n c e m e n t o f t h e Ge r m an A d m i r a l ty F e b r u ar y
n
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n d Gr e at B r i t ai n a w ar z o n e
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1
1
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g
4, 9 5
No
.
1
,
.
.
,
Th e w aters s u rrou n di n g Grea t B ri tai n and I reland i n cludi n g th e
wh o l e Engl is h cha n n el a r e h ere by decl a red t o b e w a r z o n e O n and
a fter th e i 8 th o f Februa ry 1 9 1 5 every e n em y m e rch a n t s hip f o u n d
i n th e s aid wa r z on e w i l l b e d estr o yed with o ut its b ei n g alw ays p o s
s ible t o ave rt th e da n g e rs th r eate n in g th e c r ews and p as s engers o n
th at a cc o u n t
Eve n n eutra l sh ip s a r e exp o s ed t o d a n ger i n th e w a r zon e a s in
2
vi ew o f th e m i s us e o f n eutra l fl ags o rd ered o n Janua ry 3 1 by th e
B ri t ish G o ver n ment a n d o f th e a c ci dents o f nav a l w a r i t c a n n o t
always be av o ided t o s tri k e ev en neutral s h ip s i n atta cks th at a re
di rected a t e n emy sh ips
No
rthwa
rd
n
av
igation
a
round
th
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tern
3
wa ters o f th e N o rth S e a and i n a stri p o f n o t l es s th an 3 0 m i le s
width along th e N eth erland s coa st i s i n no dan g er
r 52
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ar y 4 1 9 1 5 r e g ar d i n g t h e d e c l ar at i o n o f a w ar z o n e
S i nc e th e c o mmencem ent o f th e p r es ent w a r G rea t B ri tai n s con
duct o f c o m me rc i a l w a r f a r e aga i ns t Ge rma n y h as b een a m o ck e ry o f
al l th e p ri n cipl es o f th e l aw o f n ati ons W h i l e th e B r i ti sh G o v er n
m e n t h av e by s ev eral o rde rs decl ared th at the i r n av al f o rc es sh o uld
b e gui ded by th e stip ula ti o n s o f th e Decl aration o f Lo n d on th ey h ave
i n real i ty repudi at ed th i s Decl a ration i n th e m o st e ss enti al p o i nts
no tw ith standi n g th e fa ct th at the i r own d el e g ates at th e M a ri tim e
Co n fere n c e o f L o n do n a ckn o wl edged i ts a ct s a s formi n g p a rt O f
exi sti n g inte r n a t io n al l aw Th e B r iti s h G o ve rnm e n t h av e pl ac ed a
numb er o f a rti cl es o n th e c o ntrab and li s t wh i ch a r e n o t at a ll o r
on ly v e ry i n di rectly cap abl e o f u s e i n wa r fa r e and cons e q uen t ly can
no t b e trea t ed a s c on trab a n d ei th e r under th e Dec l aratio n o f L on d o n
o r under th e gen e ral ly ackn ow l edged ru l es o f i n te rn ati on al l aw I n
additi on they h ave i n fac t o b li te rated th e d i stincti o n b etween ab s o
lut e a nd c on diti o n al c o nt raband by c o n fis c ati n g al l a rti cl es o f c on di
ti o n al cont rab an d d es ti n ed fo r Ge rm any wh ateve r m ay b e th e po rt
wh er e thes e arti cl es a re to b e unl o ad ed and w i thou t r ega rd to wh eth er
th ey a re d e s ti n ed for u s e s o f w a r o r p ea c e T h ey h av e n o t even
h es itated t o v i o l at e th e Decl arat i o n o f Par i s s in ce th ei r n av a l forces
h ave captu red o n n eut ral s h ip s Germ an p rope rty w hi ch w as not c o n
trabaud o f wa r Fu rth ermor e th ey h av e go n e fu rth er th a n th ei r
o wn o rde rs resp ecting th e Decl a rati o n o f L o nd o n and c aus ed n um er o u s
Germa n s ubj ec t s cap ab l e o f b ea ri n g a rm s t o b e tak en from n eut ral
sh ips a n d m ade p ri s o n ers o f w a r Fi nal ly th ey h ave decl ared th e
N o rth S ea i n i ts wh ol e exte n t t o b e th e Seat o f wa r the reby re n deri n g
di ffi cul t a n d extrem ely danger o us i f n ot i mposs ibl e al l n av igation o n
th e h igh s ea s b etwee n S c o tl and a n d N o rw ay s o th at they h av e i n a
way es tabl i sh ed a blockade o f neutral c o a st s and p o rts whi ch i s
c o nt ra ry to th e el ementa ry p ri n cip l e s o f gen eral ly a cc epted i n tern a
ti o n al l aw
Cle arly al l th ese m ea s u re s a re pa rt o f a p l an to strik e no t
No
.
1
,
.
,
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,
’
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,
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-
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,
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,
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,
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,
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,
,
,
,
,
,
.
TH E P RO T E CTI O N OF N EUT RAL RI GH T S AT S EA
2
7
only th e Ge rman m i l i tar y ope rati ons but al s o th e economi c system
o f Ge rma n y
and I n th e end t o del ive r th e whole G erm a n pe o pl e to
reducti on by fam i n e by i ntercepting l egitimate n eutra l comm erc e
by me thods co n t rary to i nte r n ati on a l law
Th e n eutra l p o wers hav e i n the m a i n acquiesc ed i n th e measu res
o f th e B riti s h G o ve r n m e n t
; i n par t i cula r th ey h ave no t bee n s ucces s
fu l i n s ecu ring th e rele as e by th e B ri tish Gover n m en t o f t h e Germ a n
s ubj ects a n d German m ercha n di s e i l l egal ly take n fr o m th ei r ves s el s
To a c erta i n exte n t they h ave eve n c on tri buted to wa rd th e execu t i on
o f th e mea su res adopted by E n gla n d i n d efia n c e o f th e p ri n c ipl e o f
th e freed o m o f th e s e as by p r o hi biting th e exp o rt and t ra n si t o f
g o o ds desti ned fo r p ea c eabl e pu rp o ses i n Germa n y th us evi dently
The Ge rman G o v er n me n t h a ve
y ielding to p ress ure by E n gl and
i n va in ca lled th e attenti o n o f th e n eutral p o w ers t o t h e f a ct th at
Germ a n y mu st s e ri o u sly qu esti o n wh ethe r i t c a n a n y l on ger adh ere
to the s ti pulati on s o f th e Decla ra ti o n o f L on d on h i t h er t o s t ri ctl y
o bse rved by it i n case E n gla n d c on tinues t o adh ere to its pra cti ce
and th e n eutra l powers pe rs i st i n l oo ki n g with i n dulge n ce up o n al l
th es e vi ol ati o ns o f n eut rali ty t o th e d etrim e nt o f Germany Gre a t
B rita i n i nv o ke s th e v ital i n teres t o f th e B ri t i sh Empi re wh i ch a r e
a t stake i n j usti ficati o n o f its v i o l ati on s o f th e l aw o f n ati o ns an d
th e neutral p o wers app ea r to b e s ati sfied wi th th e o reti cal p r ot es t s
thu s a ctua lly admitti n g th e v ital i n terests o f a b ell igere n t a s a s u ffi
ci ent excu s e fo r m e t h o ds o f wagi n g wa r o f wh a tever des cr iption
Th e tim e h as com e fo r Germa n y al s o t o invok e su ch vi t a l i nt erests
I t th e re fo re finds i ts el f u n de r th e n ecess i ty to its regre t o f t aki n g
m i l i t ary m ea su res a g ai n s t Engl a n d in retal i a ti on f o r t h e p racti ce f o l
l o wed by E n gla n d Jus t a s Engl a n d d ecl a red t h e wh o l e N o rth S ea
b etween S c o tl and and N o rway t o b e c o mp ri s ed w i t h i n th e s eat o f
w a r s o d o es Ge rma n y n o w decl a re th e waters su rr o u n d ing G re at
B ri tai n and I rel a n d i n clud i n g the wh o l e E ngl i sh Ch an n el t o b e c o m
p ri sed wi th i n th e S eat o f w a r and wi l l p reve n t by al l th e m i li ta ry
m ean s at i ts di sp o sa l a l l nav igati o n by th e e n emy i n th o s e wa t ers
To th i s e n d it wi l l ende av o r to d estr o y a fte r Feb rua ry 1 8 n ex t
a n y m erchant ves sel s o f th e enemy whi ch pres e n t th ems elves a t th e
seat o f wa r a b o ve i n d i c a ted a lth o ugh i t may n o t always b e p o s sibl e
to av ert the dangers wh i ch m ay m enace p ers on s a n d m erch a n di s e
N eutral p o w e rs a re a ccordi n gly f o rewa r n ed no t t o co n ti n u e t o e n t rus t
the i r c rews p a s s enge rs o r m erch a ndi se to such ves s el s Th ei r at
tenti o n i s fu rth e rm o r e call ed to th e fa ct tha t i t i s o f u rge n cy to
recomm e n d t o th ei r o wn v es sel s to ste er cl ea r o f th ese wa t e rs I t
i s tru e th a t th e G e rm an n avy h a s rece ived i nstructions t o abs t ai n
from al l vi ole n ce against n eutra l v es s els r ec o g n i zabl e as s uch ; but
in v i ew o f th e h az a rds o f wa r and o f th e mi sus e o f th e n eu t r a l fl a g
o rder ed by th e B riti sh G o v er n ment i t w i l l no t always b e p o ssi bl e
t o p revent a neutral vess el fr o m b ec o mi n g th e v i cti m o f a n a tta ck
i n tended to b e di rected agai n st a v es s el o f th e e n emy I t i s ex
p res sl y de c l a red th at n avi gation i n th e wate rs n o rth o f th e S h etl a n d
I sl ands i s o uts ide th e da n ge r z o n e as wel l a s n avi ga ti on i n th e ea s t
ern pa rt o f th e No rth S ea and i n a zon e th i rty m a r in e m i l es W i d e
a l o n g th e Dutch c o as t
Th e Ge rm an Gove r n m ent a n nounces th i s m easure a t a t i m e per
m i tting e n emy and ne utral S h i ps to make th e n ec es sa ry a rr a n gem e n t s
t o r ea ch th e p o rts si tu a ted at th e seat o f w ar Th ey h o p e t h a t th e
n eutral p o we r s wi l l a cc o rd c on s iderat i on to th e V i tal i n terests o f
“
,
,
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,
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,
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-
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,
,
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.
.
TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S EA
28
Ge rmany equally w ith tho s e o f Engla n d and wi l l o n th ei r pa rt
a s s i st i n keep i n g th ei r subj e cts a n d t h ei r go o ds fa r from th e s eat o f
wa r ; th e m o re s o s i n c e t h ey l ik ewi s e h av e a grea t i nte r est i n s ee i n g
the te rm inati o n at an ea rly d ay o f th e w a r now rava g in g
r
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7,
6
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S t at e m e n t
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r e ga
9 5,
1
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r d ing
of
th e
t h e B r i ti s h F o r e i g n
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o f n e u tr al
use
O fli c e , F e b r u ar y
an d t h e Ge r m an
d e c l a r at i o n o f a w ar z o n e
Th e u se o f a neut ra l fl ag i s w i th c erta i n l i mi tati o ns w ell estab
Th e onl y e ffect i n th e c as e
l i s h e d i n p ra cti c e a s a ru s e de gue rr e
i s to
o f a m erch a n tm a n w ea ri n g a fl ag oth er th an h e r nati o nal fl ag
compel the e n emy to f o l l o w the o rdi n ary ob l igatio n s o f n av al w a r
far e a n d s ati s fy h i m a s to th e n ati o na li ty o f th e v es s el and th e
ch a ra ct e r o f h er c a rg o by exam i n ati o n b e for e c aptu ri n g h e r and
taking he r i nt o a p ri z e court f o r a dj udi cation
Th e B ri ti s h G o v e rnm ent h as al ways c o n s i de red th e u s e o f th e B ri t
i sh col o rs by f o reig n v e ss el s l egiti m at e fo r th e pu rpo s e o f es cap ing
captu re S uch p ra cti c e not o nly i nvo lv es no b rea ch o f i nte rnati o nal
l aw but i t i s specifica l ly rec o g n i z ed by th e l a w o f th i s c o unt ry i n the
M erch ant S h i pp i n g Act O f 1 8 9 4
I n i nstru cti on s to B ri ti s h C o n s ul s i n 1 9 1 4 i t i s s tate d :
A sh ip
i s l i abl e t o capture i f a B ri ti s h ch a ra cte r i s i mp rop erl y a s s um ed
”
except f o r th e pu rp o s e o f es capi n g captu re
A s w e h av e i n p ra cti c e n o t obj ect ed to for ei g n m e rch ant v e s sel s
u s i n g the B ri t i s h m erch a n t fl ag a s a ru s e f o r th e pu rp o s e o f evad i n g
captur e at s e a a t th e h and s o f a b el l i ge re n t s o w e sh ould m a inta in
th at i n th e c o nve rse c as e a B riti sh m e rch ant v es s el com m i tt ed n o
breach o f i nte r n ati o n al l aw i n a s sumi n g n eutra l col o rs f o r a s im il ar
pu rpos e i f sh e th ough t fi t
B y th e rule s o f i n t ernati o na l l aw th e cu st o m s o f w a r and th e d i e
tates o f human ity i t i s obl igat o ry upon a b el l i ge r ent t o a sc erta i n th e
ch a racte r o f th e m ercha n t ves se l a n d c a rg o be fo r e ca ptu re G er
m a n y h a s n o ri gh t to di s regard th i s ob l i gati o n
T o destr o y a sh ip n o n c o mbatant c r ew and ca r g o a s Germ an y
a nn o unced h e r i nt e n ti o n o f d o i n g i s noth i n g l e s s th an an a c t o f
p i racy o f th e h i gh s eas
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F e b r u a r y I O , 1 9 1 5 , r e p l y i n g fi n al l y t o
n o t e o f De c e m b e r 2 6 , 1
i n r e g ar d
9 1 4 ( No
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g
Th e S e c r e tar y
b as sad o r
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F o r e i g n A f ai r s to th e A m e r i c an A m
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YoU R
E $ C ELLEN C Y : Y o u r Exc el l e n cy h a s al ready re ceiv ed th e
p rel i m i n ary answe r wh ich I h a n ded to you o n th e 7 th J anua ry i n
reply to y o u r n o t e o f th e 2 8 th Dec emb e r o n th e subj e ct o f th e s ei zu res
a n d detenti o n s o f Am eri ca n cargoes des tin ed fo r n eut ral Eu rop ea n
port s
S i n ce th at date I h ave h ad furth e r opp o rtuni ty o f exam i nin g i nto
th e t rad e sta t i s ti c s o f th e U n i ted S t ates a s emb o died i n th e cu s t o m s
retu r n s i n o rder t o s e e wh eth er th e b el l i gerent a cti o n o f Great B ri ta in
S ee N
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T H E P R OT E CTI O N O F N EUT RA L RI GH T S A T S EA
2
9
h a s b een i n any w ay th e cau s e o f th e trad e dep ressi o n wh i ch Y o u r
Exce lle n cy describes a s exi sti n g i n th e Uni t ed S tates a n d a ls o
wh eth e r t h e s ei zu res o f ve s s el s o r carg o e s whi ch h a ve bee n m ade
by th e B riti s h navy h ave infl i cted a n y l o ss o n Ame ri can ow n er s f o r
wh i ch o u r ex is t i n g mach i n ery p r o vides n o me a n s o f redress I n
s etti n g o u t th e res ul t s o f my i n ves t iga t i on I t hi nk i t w ell to t ak e th e
o pp o r t u n i t y o f giving a ge n e ra l revi ew o f th e me t h o ds empl o yed by
H i s M aj esty s G o ver n me n t t o i nt e rcep t c o n t raband trade w i t h th e
e n e my o f th ei r c on s i s t e n cy w ith th e adm i tt ed right o f a b elligerent
t o i nt erc ep t such t rade a n d al s o o f the ex t e n t t o wh i ch th ey h ave
e n d ea v o red t o m ee t th e repres e nt ati on s a n d c o mplai n ts fr o m tim e
to ti m e add ress ed t o th em o n behal f o f th e United S tate s Govern
m ent
T o w ard th e cl o s e o f y ou r note o f th e 28 th Decemb er Y our E x
c e l l e n cy
des c ribe s th e s ituati o n p roduc ed by th e a cti o n o f Great
B rit ai n a s a p iti ful o n e to th e c o mmerci a l i nteres t s o f th e Uni t ed
S t ate s a n d s ai d th at m a n y o f th e gre at i n du s t ri es o f the c o u n t ry
w e re su fferi ng b ecaus e th e i r p r o duc t s we re de n i ed l o n g e s tabli sh ed
m ark ets in n eutra l Eu rop ean c o untrie s conti guou s to th e n ati o ns
a t wa r
I t i s un fortunately tru e th at i n th ese da y s wh en trade and fina n ce
a re cosm o p o litan any w a r
p ar t i cularly a w a r o f an y m ag n i t ud e
must resul t i n a grie v o us di sl o cati on o f c o mme rce i n cluding th at
o f th e n ati o n s wh i ch take n o pa rt i n th e wa r
Y ou r Exc ell e n c y w i l l
rea l i z e th at i n th i s tremend o us s truggl e f o r t h e o u t b reak o f whi ch
G re at B ritai n i s i n n o way resp o nsibl e i t i s i mposs ibl e fo r th e t rade
c o u n t ry t o es cap e al l inj u ry a n d l o s s but for such H i s
o f any
M aj e sty s G o ve r n m e n t a re n o t t o blam e
I d o n o t u n derstand th e pa ra g raph wh i ch I h av e q uoted from Y o ur
Exc el le n cy s n o t e a s re ferring t o th es e i n d irect co n seque n c es o f t h e
s tate o f wa r but t o th e m o re p r o ximat e and di rect e ffect o f o u r
b ell i ge ren t a cti o n i n dea l ing wi th n eutral sh ip s a n d ca rg o es o n th e
h igh s ea s S uch a cti o n ha s b een li mi ted to v esse l s o n t h ei r way to
e n emy p o rts o r p o rts i n n eutra l c o un tri es adj ac e n t t o t h e th ea t re o f
w a r becaus e i t i s o nly th r o ugh su ch p o r t s t h a t th e en em y i ntr o duce s
th e suppli es wh i c h h e requi res f o r c a rryi n g o n th e wa r
In m y ea rl i er n o te I s e t o u t th e number o f sh ip s whi ch h ad sai l ed
fr o m th e U n i ted S t ates f o r H o ll a n d De n ma rk N o rw a y S w ede n
a n d I ta ly and I the r e st a ted that o n ly 8 o f th e 7 73 h ad bee n pl ac ed
i n th e p ri z e c o u rt and that o n ly 4 5 h ad been temp o ra rily deta i n ed
t o enabl e pa rti cul a r c o nsi g n me nt s o f c argo t o be di scha rged f o r t h e
pu rp o s e o f p ri z e c o u rt pr o c eedi n gs T o m easu r e th e e ffe ct o f such
n av al a cti o n i t i s n eces sa ry t o t ak e i n t o c on sid era t i on th e ge n e ral
s tati s t ic s o f th e expo rt t rade o f th e U n i ted S t ates du ri n g t he m on t hs
p rec eding th e o utb reak o f wa r a n d t h o s e s i n c e t he o utbreak
Taki ng th e figur es i n m i ll io n s o f d o ll a rs th e exp o rt s o f m erch a n di se
from th e U n i ted S tate s f o r th e s even m on th s o f Ja n ua ry t o July
a s c o mpa red wi th
i n t h e c o rrespo n d
1 9 1 4 i n clus i v e w e re
i ng m o nth s o f 1 9 1 3 a d rop o f 1 2 6 m i ll i on s o f d o ll a rs
F o r th e mo n th s o f August S eptembe r O c to b er a n d Novembe r
th at i s t o s ay f o r th e f o u r m onth s o f th e wa r p recedi n g th e del ivery
o f Y ou r Exc el lency s n o te th e figures o f th e exp o r t s o f m ercha n di s e
we re ( aga i n i n mi l l i on s o f d o l la rs ) 66 7 a s c o mp a red with 9 2 3 i n th e
co rresp o ndi ng m o n th s o f 1 9 1 3 a d r o p o f 2 5 6 m i l l i o ns o f d o l l a rs
I f h o weve r th e si ngl e a rti cl e o f c o tt on b e el im i n a t ed fr o m th e
,
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TH E P RO T E CT I ON OF N EUT R A L RI GH T S A T S E A
0
3
comp ari so n th e fi g u r e s s how a v e ry di ffe rent r e s u lt Th us th e e x
p o rts o f a ll a rt i cl es o f m erch a n di s e o th e r th an co tton from th e Un i ted
S ta t es duri ng th e fi rs t s even m onth s o f 1 9 1 4 w e r e 9 66 m i l l i ons o f
dolla rs a s a g a ins t
m i l li o n s i n 1 9 1 3 a d r o p o f 1 6 1 m i ll i ons o f
dollars or
p e r cent O n the oth e r hand th e exp o rt s o f th e s am e
a rti cl es du ring th e m o nth s A ugu st t o N ov emb er amounted to 60 8
m i ll ion s o f d o l la rs a s compa red w ith 63 0 m i lli on s i n 1 9 1 3 a d rop o f
only 2 2 m i l li o n s o r les s th a n 4 p e r c e n t
I t i s the re for e c l ea r th at i f cotton b e excluded th e e ffect o f the
w a r has been not t o i ncr eas e but p ra cti cal l y to a rr e s t th e d ecl i ne o f
A m er ican exports whi ch w as i n p r o gres s e arl i e r i n th e y ea r I n
fa ct any dec reas e i n A m e ri can expor t s whi ch i s a tt ri butab l e to th e
w ar i s es s e nt i a lly du e to cotton C o tt o n i s a n a rti c l e wh i ch c annot
p oss ib ly h av e b ee n a ffected by th e ex erc i s e o f o u r b ell i ge rent r i g hts
f o r as Y o ur Excell e n cy i s awa re it h as not b een d ecla red b y H i s
M aj e s ty s Gov e rnm ent to b e c o n trab and o f w a r and th e rul e s und e r
wh i ch w e a r e a t p resent co n ducti n g o u r b el li g e r ent O p erat ion s g i v e
u s n o powe r i n th e ab s enc e o f a bl o ckad e to s ei z e o r inte r fe r e w i th
i t wh en o n i ts way t o a b ell i ge re n t country i n n eutra l s h ip s Con
s eque n tly no cotton h a s b een t o uch ed
I nt o th e cau s e s o f th e dec re as e i n th e expo rt s o f c otton I d o n o t
feel th at th ere i s any n eed f o r me to ente r b ecau s e wh at e v e r m ay
h av e b een th e cau s e i t i s n o t t o b e found i n th e ex erci s e o f th e
b ell igere n t r ights o f v i s i t s ea rch and captu re o r i n o u r g eneral
r igh t wh en a t w a r to i ntercept th e c on traba n d t rade o f o u r enemy
I mp o rts o f cott o n to th e U n i ted K i ngdom fel l as h e av i l y a s th os e
t o oth er countri es N 0 pl ace felt th e outb reak o f w a r mo r e a cutel y
th a n th e c o tton d i s tri cts o f Lanca sh i r e w h er e for a ti m e an i mmens e
numb er o f S pi n dl es w ere i dl e Though th i s cond ition h as n o w to a
l arge ext ent pas s ed away th e co n s umption o f th e r aw m ate ri al i n
G reat B ri tai n wa s t empora ri l y m u ch dim i ni s h ed Th e s am e i s n o
doubt t ru e o f F ra n c e
Th e gene ral re sult i s to sh o w c onvinci ngl y th at th e n aval op e r a
ti on s o f Great B ritai n a r e n o t th e cau s e o f a n y di m inuti o n i n th e
v o lum e o f Am e ri c a n exports and th at i f th e c o mm erc e o f th e Un i ted
S tates i s in th e u n favou rabl e condi ti on wh i ch Y ou r Ex c ell ency de
s c rib es th e c aus e o ugh t i n fa i rn es s t o b e sought el s ewh e re th an i n
th e a cti viti es o f H i s Maj e sty s n aval f o rc es
I m ay add th at th e c i rcul a r i ssu ed by th e Depa rtm ent o f Comm e rce
a t W ash i n gt o n o n th e 2 3 r d Janua ry adm it s a m ar k ed i mp rovem ent
i n th e f o reign t rade O f th e U n i ted S tates wh i ch w e h av e n o te d w i th
gr eat s ati s fac tion Th e fi r s t p a ragraph o f th e c i rcul a r i s wo rth q uot
i n g v erb ati m :
A m ar k ed i mp rov ement in ou r fo reign t ra d e i s i n d i cate d by th e
l ates t rep o rts i ss u ed by th e Depa rtm ent o f C o mme rc e th rough i ts
B u reau o f Fore ig n and Dom esti c Comm erc e s al es o f fo o dstu ffs a nd
c ertai n l in es o f m anu factu res h avin g b ee n u nu su al ly l a rge i n N o v em
h e r th e l ate s t p eriod f o r wh i ch detai l ed i n f o rm ati on i s at h and
In
t h at m o nth exp o rts aggregated
d o lla rs o r d o ub l e th e total
f o r Augu st l a st wh en by r eason o f th e ou tb rea k o f wa r o u r f o reign
t rade fel l t o t h e l o wes t l evel r each ed i n m a n y yea rs I n Dec emb e r
th er e was furth er imp r o v em ent th e m onth s exp o rts b e ing v alued a t
d o l la rs c o mp a red wi th
i n Dec emb e r 1 9 1 3 and
o f th e h i g h reco rd establ i sh ed i n Decembe r
w ithi n
A bet t er vi ew o f th e s i tuation i s obta in ed by loo k ing at the figu re s
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TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S E A
2
3
O n e o f th e m any i n conv eni e nces to wh i ch th i s gre at w ar i s e x
p o s i n g th e c o mme rc e o f al l n eutral c o untri es i s u n doubte d ly th e
s e ri o u s sh o rtage in sh ip ping ava i labl e f o r o cean t ran s port a nd th e
c o n s eque n ti al res ult o f exce s s iv e fr eights
I t ca n no t fa i rl y b e s a id th at th i s shorta g e i s c au s e d b y Gr eat
B ri tai n s i n t er fere n c e w ith neutra l S h ips A t th e p resent ti m e th ere
a r e o n ly s eve n n eutral v essels awa i ti n g adj udi catio n i n th e p ri z e
c o u rts i n th i s c o u n try a n d th ree i n th o s e i n th e B r i ti s h d om ini o ns
A s Y o u r Excel len cy i s awa re I hav e al r ead y i nstructed o ur a mbas s a
d o r at W ash in g ton t o r em i n d th e p a rti es who a r e i nte rested i n th e s e
v es s el s th at i t i s O p e n t o th em to apply t o th e cou rt fo r th e r el ea s e
o f th es e sh ips o n b a i l and i f an app l i cation o f th i s sort i s m ade b y
them i t i s n o t l ikely to b e opp o s ed b y th e C rown T h er e i s th er e f o re
n o reas o n why su ch an app l ic ati o n shoul d n o t be favou rab ly ente r
tai n e d by th e cou rt and i f a cc ed ed t o a l l the s e ves s el s w i l l aga i n b e
avai l abl e f o r th e ca rriage o f comm er ce O nly o n e n eut ral v es sel i s
n o w detai n ed i n th i s countr y i n a dd i tion to those awa itin g adj udi c a
t i on i n th e p ri z e cou rt
Every e ffo rt h a s b ee n m ade i n ca s es in wh i ch i t h as b een found
nec ess a ry to i nst itute p r o ceedi ngs aga i n s t portion s o f th e c a r g o t o
s ecu re th e sp eedy d is ch arge o f the ca rgo and th e r el ea s e o f th e s hi p
G re at B ritai n i s s u ffe ri ng fro m
s o a s to e n ab le i t t o r es um e w o rk
th e sh ortage o f shi pp i n g and th e ri s e i n frei ghts a s acut el y a s i f
not m o re th an oth er n ati o ns a n d H i s M aj esty s Gov ernm ent h a v e
taken ev ery st ep tha t th ey c o uld c o n si st ently w ith th ei r bel li g eren t
i nterest s to i n crea s e th e t o n nage a va i labl e fo r th e t ransp o rt o f s e a
b o rne c o mm erc e The enemy shi p s whi ch h av e b een condem n ed i n
th e p ri z e c o u rt s i n th i s c o unt ry a re b ei n g sol d a s rap i dly a s pos s i b l e
i n orde r tha t th ey m ay b ecom e ava i l ab l e fo r u s e ; a n d tho s e wh i ch
h av e be en co n demned in th e p ri z e c o u rts o v ers e a a re b eing b r o u gh t
t o th i s c o u n try i n o rde r th at the y m ay b e di spo s ed o f h er e and agai n
p laced i n act iv e empl o ym ent
Th e di ffi culti es h av e b e en a ccentuated by th e un forse en c o n s e
u
e
n
c
e
s o f th e c on v enti o n wh i ch wa s s i gned a t The H a u e i n 1 0
q
9 7
g
relativ e t o th e statu s o f enemy m erch a n t v essel s at th e o utb re a k o f
w a r Th i s c on v e n ti o n wa s a w el l i nt enti on ed e ffo rt t o di m ini s h th e
l o s se s wh i ch w a r must i mp o s e up o n i nnoc e n t p ersons and p rovid ed
th at enemy m erch ant sh ip s s e iz ed by a b ell i ge rent i n whos e p o rt s
th ey l ay a t th e o utb reak o f wa r sh ould n o t b e condemn ed b ut sh o ul d
m e rely b e d eta i n ed f o r th e pe ri od o f th e w a r unles s th e y w ere l i b
c rated i n the days o f gra c e W e could com e to no a rra n g em e n t w i th
the G e rm an G o v er n men t fo r th e rec ip r o c al gra nt o f days o f gra c e
a n d the Ge rm an m erch ant v es s el s lyin g i n B ri ti sh po rt s wh en th e w ar
b r o k e o ut h av e th er e fo r e be en s ente n ced t o det enti o n i n l i eu o f c o n
d e m n ati o n
Th e n o rmal resul t would h av e b een sti ll furth e r t o r ed uc e
th e v o lum e o f sh ipp ing ava il ab le f o r th e comm erce o f th e wo rl d To
e a s e th e Si tuation h o wev er H i s M aj es ty s Gove rnm ent a r e res o rtin g
t o th e p o wer o f requi s itioni n g wh i ch i s gi v en b y th e conventi on s o
that th es e sh ip s m ay agai n be placed i n a cti v e s ervi c e
Y ou r Exc el l ency wi l l s e e th ere f o r e th at H i s M aj est s Gove rnm ent
y
a r e d o m g al l in th ei r p o w e r t o i nc rea s e th e volum e o f sh ippi ng ava i l
a bl e I h o pe i t W i l l b e real i z ed th at th e dete n ti on o f n eutra l s h ip s
by H i s Ma j esty’s Gov ernm ent w ith a vi e w to th e captu r e o f c on tra
b and t rade o n i ts w ay to th e enem y h a s no t c o nt ri bu te d n ea rly s o
muc h to th e sh o rta ge o f sh i p p in g as h a s the de s tr uc ti on o f neutra l
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TH E P RO TE CT I O N O F N EUT RA L RI GH T S AT S EA
33
es s els by subma rine m ines i ndis crim i n ately la id by th e enemy o n
th e h i gh s eas m a n y m i le s fr o m the c o as t i n th e track o f m ercha n t
v es s els Up t i l l n ow 2 5 n eu t ra l ves sel s hav e bee n rep o r t ed as d e
s tr o yed by m i n es on th e high s ea s ; qui t e apa rt fr o m a l l questi on s o f
th e b rea ch o f treati es a n d th e d estruc t i on o f li fe t he r e i s fa r m o re
reas on fo r p r o te st o n the s c o re o f bell ige re nt i nt e r fere n c e wi t h i n no
c e n t n eutra l t rad e th r o ugh th e m i n es s c a t t ered by t h e e n emy th an
th r o ugh th e B r iti sh exerci s e o f th e right o f s ei z ing co n traba n d
I tru s t th a t wha t I h av e sa id ab o ve w il l b e su ffici e n t t o c on vi n ce
Y o u r Excel lency s G o ver n m ent that th e c o mplai n ts th at th e n ava l
p o li cy o f G reat B ritai n h a s i n te r fered wi th th e sh ipm e n ts o f Ame ri can
p roducts to l on g establ i sh ed ma rkets i n n eut ra l Eu rope an c o un t ri es i s
founded o n a m i s c on c eption
I n j u sti c e t o th e p eopl es o f b o th cou n tri es I feel that th i s Op p o r
tu n i ty s hould be take n t o explai n th e li n es o n wh ich H i s M a j e sty s
Gov er n m ent h ave b een acti n g h ither to s o as t o sh o w th a t t h e l i n e
th ey h av e fol l o we d i s i n n o way i n c o ns iste n t with th e ge n eral funda
m enta l p rinciple o f i nt er n ati o nal l aw and t o i n d icate th e ca re wi th
wh i c h th ey h av e e n d eav o red t o m eet t he rep res e n tatio n s wh ich h ave
b een m ad e by th e United S tates Gov ernm ent fr o m time to ti m e dur
i ng th e wa r o n th es e questi on s
N o o ne i n the s e days wi l l d ispute th e ge n eral p r o p o s iti o n th at a
b el l ige re nt i s enti tled to captur e c on tr a band g oo ds on th ei r way t o
th e enemy ; th at ri ght ha s n o w b ec o m e c on s ecrated by l o n g u s a ge
and ge n e ra l acqui escenc e Th o ugh the right i s a n c ient th e m ea n s
o f exerci si n g i t a lte r and devel o p w i th th e changes i n t h e m eth o ds
and ma ch in e ry o f c o m merc e A ce n tury ag o th e di fficul t i es o f l and
t ranspo rt rende red i t imp ra ctic a ble f o r t h e bell igere nt to o b t ai n sup
pli es O f s e a b o rn e g oo ds th r o ugh a n ei ghb o ri n g n eu t r a l c o un t ry
Con sequently th e b el ligere n t acti o ns o f h i s o pp on ents n ei t h er requi red
no r j usti fied a n y i n ter ferenc e w i t h sh ipme n ts o n th ei r way t o a n eutra l
port Thi s p ri n cip l e was rec o gni z ed and acted o n i n th e deci s ions i n
w h i ch Lord S t o well lai d down th e l ine s o n wh i ch captures o f s uch
go o d s sh ould b e deal t w ith
T h e advent o f s team p o w er h a s re n de re d i t a s easy f o r a bel l igeren t
to s upply h i ms el f th rough th e p o rts o f a n eu t ral c ont i gu o us c o un t ry
a s t h r o ugh h i s o w n and ha s th ere f o re re n de red i t i mp o s s ibl e f o r h i s
opp o n e n t to r e frai n fr o m i n te r feri n g wi t h c o mme rc e i n te n ded f o r
th e enemy m erel y becaus e i t i s on i t s way t o a n eutr a l p o r t
N o bette r i n sta n c e o f th e n ec es si t y o f c o unte ring n e w d evi ces f o r
despatch ing c o ntraband g o od s t o a n e n emy by n e w m ethod s o f apply
i n g th e fundam ental p rincipl e o f th e ri ght to c a pture su ch c ont r a b an d
c an b e give n th an th e steps wh ich t he G o ver n m e n t o f t h e U n i t ed
S t ates f o und i t n ecess a ry t o tak e du ri n g t h e Ameri c a n Civi l W a r
I t w a s at th at ti m e t h a t the doctri n e o f c on ti n u o u s v o yage wa s fi rst
appl i ed to th e captu re o f c o ntraba n d th at i s t o s ay i t w a s th e n f o r
th e fi rs t tim e th at a b el l ige re n t f o u n d hi m s el f o bli ged t o c a p t ure c on
t ra b a u d goo ds on th e i r way to th e en emy eve n t hou g h a t th e ti me
o f captu r e th ey w e re e n r o u t e f o r a n eutral p o rt fr o m wh i ch th ey we re
i ntended subs equ e n tly t o conti n ue th ei r j o ur n ey Th e p o l i cy th e n f o l
low ed by th e U n ited S tates G o ver n m e n t w a s n o t i i i e o n S i s te n t W i t h
th e gene ral p ri n cipl es al rea d y s a n c t i on ed by i n ter n a ti on a l l a w a n d
m et w i th n o p r o test from H i s M a j es t y s G o ve r n m e n t t h o ugh i t wa s
up o n B ri ti sh ca rg o es and upo n B ri t i sh sh i p s t h at t h e l o s se s an d th e
i nconve n i en c e du e to thi s n ew d evel o pme n t o f the appl ic at i o n o f t h e
v
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TH E P RO T E CT I O N OF N EU T R A L R I GH T S A T S E A
34
old rul e o f inter n ational l aw pri ncip al ly f el l Th e c ri ti ci s m s wh i ch
have b ee n di rected aga i n s t the s t ep s th e n take n by th e United S tate s
cam e a n d c o m e fr o m thos e w h o s aw i n t h e m ethods employ ed i n
N ap o l e on i c t im es f o r th e p reve n t i on o f co n traband a l i mi tati o n upon
th e righ t i ts el f and fa i l ed to s e e th at i n N apol eo n i c ti m es goods on
th ei r way to a n eut r al p o rt we r e i mmun e f rom captu re n o t b ec aus e
th e imm edi ate desti n at i o n c on fe r r ed a p ri vi l ege but be c au s e captu re
und er su ch ci rcumsta n c es w as unn ec e s sa r y
Th e fa ci li ti es whi ch th e i ntr o du ctio n o f s teame r s a n d ra i lw a y s h av e
gi ven to a bel li ge rent t o i n troduc e co n traba n d g o o d s th r o u g h n eu t r al
p o rts h av e imp o s ed upon h i s o pp o nent th e addition al d i ffi culty wh en
e n deav o u ri n g t o interc ep t s uch t rad e o f di sti ngui sh i n g b etwe en th e
g oo ds wh i ch a re r eal ly des tin ed f o r th e c o mme rc e o f th at neutra l
c o untry and th e g oo ds wh i ch a re o n th ei r w ay to th e en emy I t i s
fi cul ti es w ith wh i ch th e Un ited S tate s Gov ernm ent
o n e o f the m a n y di f
f o u n d th em selve s c on fr on ted i n th e days o f th e C i vi l W ar and I
c ann o t d o b ette r th an quot e th e wo rds wh i ch M r S ewa rd wh o w a s
the n S ecr eta ry o f S tate u s ed in t h e cou rs e o f th e diplom ati c di s cu s
s i o n a ri si n g o u t o f th e captu re o f som e good s on th ei r w ay to
M atamo r o s wh i ch w e re be l i ev ed to b e fo r th e i n s u rgent s :
N eutral s e n gaged i n ho n est trad e w ith M a tam or o s mus t exp ect
to experi e n c e i n c on v en i e n c e f rom th e exi stin g b l o ckade o f B r o wns
v i ll e a n d th e adj a ce n t c o a s t o f Texas W h i l e th i s Gov ernm e n t u n
fei g n ed ly r egret s th i s i n c o nven i enc e i t cannot reli n q u ish an y o f i t s
bel li ge re n t right s to favou r c o nt rab and trad e wi th in su rgent te r ri t o ry
B y i nsi sting up o n thos e r ights h o w ev e r i t i s s ur e th at th at n e ces s i ty
f o r th ei r exe rci s e a t al l w h i c h m u st b e deplo red by ev er y fri endl y
”
c o mme rci al Po w e r w il l th e m o r e spe edi ly be te rm i nat ed
Th e o ppo rtun iti es now e n j o yed b y a b ell i g ere n t fo r o bta in ing s up
pli es th r o ugh n eu t ral p o rts a re fa r gr eater th an th ey w e re fi fty y e a rs
ag o and th e ge o gr aph i cal condi tion s o f th e p r es ent s tru g gle l end
additi o nal a s si stanc e to th e en emy i n ca rryi ng out s u ch imp o rt ati o n
W e a r e faced w i th th e p r o b l em o f inte rcep ti ng s u ch suppl i e s wh en
a rra n ged w i th a l l th e adva n tages th at fl ow fr o m el abo rate o rgan i sati o n
a n d unstint ed expe n di tur e I f o u r b el l iger ent ri g hts a r e to b e m ai n
ta i n e d i t i s o f th e fi rs t imp o r t anc e f o r u s to di sti n gui sh b etween
wh at i s r e al ly b on a fid e t rade i n te n ded fo r th e n eutral country c o n
c ern ed and th e t rade i n t e n ded fo r th e en emy count r y Eve ry e ff o rt
i s made by o rga n i z ers o f th i s t rade t o c o n ceal th e true de sti n ati on
a n d i f th e i n no ce n t n eut r a l tr a d e i s to b e d i sti n g ui she d from th e
e n emy trade i t i s es s enti al th at H i s M aj esty s G o v er n m e n t sh ou ld b e
entitl ed to m ak e a n d sh o uld m ake c a re fu l e nq ui ry wi th r ega rd to
the desti n ati on o f p a rti cu l a r sh ipme n ts o f g oo ds even at th e ri sk o f
s o m e S l igh t d el ay to th e p a rti es i nt e r est ed I f s uch enqui ri es w ere not
m a de ei th er th e exerci s e o f o u r b el l igeren t r igh ts w o ul d h ave t o b e
a b a n d on ed t endi n g t o th e p rol ongati on o f th i s w a r and th e i n cr ea s e
o f t h e l o s s a n d su fferi n g wh i ch i t i s enta i l ing up o n th e wh o l e wo rld
o r el s e it would b e necess ary to i ndulge i n i n di s c ri m i n at e c apture s o f
n eutra l go o ds and th ei r detenti on th roughout al l th e p eri od o f th e
r esulti n g p ri z e cou rt proc eedings U n der th e sys tem now adopted
i t h a s b ee n f o u n d poss ib l e t o rel eas e w ith o ut del ay a n d co n s equ e n tl y
w i th o ut app reci abl e l o ss t o th e p arti es i n te rested a l l th e good s o f
wh i ch th e desti n ati on i s sh o wn a s th e result o f th e en q u i rie s t o be
i n no c ent
I t m a y w el l b e th at th e system o f m a k ing s uch enqu i ri es i s t o a
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TH E P RO T E CT I O N O F N EUT RAL RI GH T S AT S EA
35
c ertai n exten t a new i ntrod ucti o n in that it h as bee n p racti sed t o a
f a r grea t e r ex t e n t th an i n p revi o us wars ; bu t i f it i s c o rrec t ly de
s c ri b ed a s a n ew dep a rtu re i t i s a dep a r t u re which i s wh o l ly to t h e
adva n tag e o f n eutra l s a n d wh i ch h a s bee n made f o r t h e pu rp o s e o f
rel i e ving th em s o fa r as p o s si bl e fr o m l o ss and i n c on ve n i e n ce
The r e was a p assa g e i n a no te wh ich th e S t ate Depa rtme n t ad
d res sed to th e B ri t is h ambass ad o r a t W a sh i n g ton o n t h e 7 th N o vem
be r t o wh i ch I t h ink i t may b e wel l t o re fe r :
I n th e o p i n i o n o f th i s Gover n me n t th e bel lig e rent righ t o f v i s it
and s ea rch requi res th at th e se a rch sh o uld be m ade o n t h e hi gh s e a s
at th e ti m e o f the V i s i t a n d th at t h e c on clu sio n o f th e s e a rch should
rest up o n th e ev ide n c e f o u n d o n th e sh ip u n de r i n ves t i g a t i on a n d n o t
”
up on ci rcums tances as certa i n ed from exter n al sou rces
Th e p ri n cipl e h er e enu n ci a t ed app ears t o m e to b e i n c on s i stent w ith
th e p ra cti ce i n th es e m atte rs o f th e U n i ted S t ates G o ve r n ment as
w el l a s o f th e B ri t i sh G o vernm e n t I t c ertai n ly w a s no t t h e ru le
upon whi ch th e U n i ted S tates G o ver n m e n t acted eith e r du ri n g t h e
Ci v il W a r o r du ri n g t h e S pa n i sh Am eri ca n W ar n or h a s i t ever b een
th e p ra cti c e o f th e B riti sh Gover n me n t n o r s o fa r a s I a m awa re
o f any oth e r G o ver n me n t wh i ch ha s h ad to ca rry on a gre at nava l
war ; a s a p ri n ci pl e I th ink i t i s i mp o s s ibl e i n m o de rn t imes Th e
n ece ss i ty fo r gi v i n g th e b ell i gerent cap to r ful l l ibe r t y t o e s ta bl ish
by a l l th e ev ide n c e a t h i s di sp o s al th e e n emy desti n a t i o n wi th wh i ch
th e g oo ds w e re s hi pped w as rec o g n i s ed i n a l l the l eadi n g deci si on s
i n th e p ri z e cou r t s o f th e United S t at es du ri n g th e Civi l W ar
N o c l ea rer insta n c e c o uld b e gi v e n th a n th e reporter s s tatem en t
o f th e c as e o f the B e r m u d a ( 3 W al l ace 5 1 4 )
Th e fi n al desti nati on o f th e carg o i n th i s parti cul a r v o yage w a s
l e ft so sk i l fully O p e n
th at i t w a s not quit e easy to pr o ve with
th at c ertai nty wh i ch Am e ri can c o ur t s requ i re the i n t e n ti on whi ch i t
se em ed pl ai n must h ave real ly exi s t ed Thu s t o p r o ve i t requi red
that tru th should b e c o ll ated fr o m a va ri ety o f s o urc es da rke n ed and
di sgui s ed ; fr o m ot h ers O pened a s th e cau s e adva n ced a n d by accid e n t
on ly ; fr o m c o i n cidenc es u n des i g n ed a n d facts t h a t wer e c i r c u m s tan
ti a l Coll o ca t i o ns a n d c o mpa ri s on s i n s h o rt b r o ught la rgely the i r
”
c o l l ec t i v e f o rc e i n ai d o f evide n c e th at wa s m o r e di rec t
I t i s no t i mp o ss ibl e th a t th e c o u rs e o f th e p res e n t s t ru g gl e wi l l
S h o w th e necess ity f o r b el lige re n t act io n t o b e t a ke n i n va ri o us ways
wh i ch may at fi rs t s igh t b e regarded a s a departu re fr o m o ld pr a c t ic e
I n my n ot e o f th e 7 th Janua ry I d e a l t a t s o m e l e n g t h wi t h t h e ques
t i o n o f th e n eces s ity o f tak i n g v es sel s i nto p o r t f o r th e pu rp o s es o f
ca rryin g o u t a n e ffec t i ve se arch wh ere s ea rch wa s n eces sary ; t o
th a t subj ect I feel t h at I n eed n o t agai n recu r
Th e gr o wth i n th e s i z e o f s team sh ip s n eces si t a t es i n m an y ca s es
th at th e V es s el sh o uld g o i n t o c a l m wa t er i n o rde r t h a t eve n t h e ri gh t
a s a pa rt fr o m t h e ri gh t o f sea rch sh o uld b e exe rci s ed I n
o f v i s it
m o der n times a steam e r i s cap a bl e o f pu rsui n g h er v o y a ge i rrespecti ve
Ma n y o f t h e n eu t ral m ercha nt me n
o f th e co n diti o ns o f th e wea t h er
wh i ch ou r n aval o ffi ce rs a re c a l led up on t o vi s i t a t s ea a re e n c o u nt ered
by o u r c rui s ers i n pla c es a n d u n der co n di t io n s wh ich re n der t h e
l aunch in g o f a b o at imp o ss ible Th e c on di t i on s duri n g wi nt er i n th e
N o rth A t l a n ti c frequ e nt ly render i t im pr a cti cable f o r days t o ge t h er
f o r a n aval O ffic e r t o b o ard a v ess el on h e r w ay t o S ca n d i n avian c o u n
t ri es I f a bell i gere n t i s t o b e d e n i ed t h e righ t o f tak in g a neu t ral
m erch an t m an me t wi t h under such c o ndi t i on s i n t o cal m water i n
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6
3
TH E P RO T E CT I O N OF N EU T R A L R I GH T S A T S E A
o r d e r th at th e vi si tin g o ffic er m ay g o aboa rd th e r igh t o f v i s it and
o f s earch w o uld b ec o m e a n ul l i ty
Th e p res e n t c on fli c t i s no t th e fi rst i n wh i ch th i s n ec es s i t y h as
a ri sen A s l on g ag o as th e Ci vi l W a r th e U n i ted S tate s f o und i t
n ec es sa ry t o take v es s els t o Un ited S t a tes p o rts i n o rde r to dete rm i n e
wh eth e r th e c i rcum sta n c es j u s t i fied th ei r de te n ti o n
Th e s a me ne ed a r o s e du ri n g th e Rus so J ap a n e s e W ar and al so
du ri n g th e s ec o nd B alkan W a r w h en i t som eti m es h app e n ed th at
B riti sh ve s s el s we r e m ade to devi at e fr o m th ei r c o u rs e and f o l l o w
th e c rui s e rs t o s om e s pot wh e re th e ri gh t o f Vi s i t a n d o f sea rch
coul d b e mo re c o nve n i e n tly ca r ri ed o u t I n both c a s es th i s ex erci s e
a l th o ugh qu est io n ed a t fi r s t b y H i s M aj e s ty s
o f b ell ige rent ri ghts
G o v ernme n t w as u ltim ately a cqui es c ed in
No P owe r i n th es e d ays c an a ff o rd du r ing a g r eat wa r to fo re g o
th e exerci se o f th e ri ght o f v i s i t an d s ea rch V e s s el s wh i ch a re
app arently h a rml e s s m e rch antm en c an b e u s ed fo r ca rryi n g and l ay
i n g mines and even fitted t o di s ch a rge torpedo es S uppl i e s f o r sub
m ari n es can w ith out di fficu lty be co n c eal ed u n de r oth er c a rg o T h e
o nly p r o tection aga i n st thes e r i sk s i s to v i s it and s ea rch th o r o ugh ly
ev e ry v es s el app ear i n g i n th e z o n e o f op e rati on s a n d i f th e c i rcum
stanc es a re s uch a s to r end er i t i mpos s i ble to c a rry i t o u t a t th e s pot
wh e re th e v es s el w as m e t wi th th e o n ly p racti c abl e cou rs e i s t o tak e
th e sh ip to som e mo r e conveni ent local it y f o r th e pu rp o s e To d o s o
i s n o t to be looked upo n a s a n ew bel li ger ent ri gh t but a s an adapta
ti o n o f th e exi st i n g ri gh t to th e m o de rn c on diti on s o f c o mm e rc e
Lik e al l bel l iger en t ri gh ts i t m u s t b e exerci s ed w i th du e rega rd f o r
n eutral in t erests and i t woul d b e u n rea son ab le to exp ect a n eut ra l
v es sel t o m ak e lo n g devi ati on s fr o m h e r c o u rs e fo r th i s pu rpos e I t
i s f o r th i s reas on th a t w e h av e don e al l we ca n t o encou rage n eutra l
m erch a n tmen on th ei r w ay to p o rt s contigu o u s to th e enemy c o untr y
t o vi s it s om e B riti sh po rt l y in g on th ei r l in e o f route i n o rder th at
t h e ne ces sa ry exami nati on o f th e sh i p s p ap er s and i f requ i red o f
th e c a r g o can b e made u n de r co n di ti o n s o f conve n i enc e to th e s hi p
h ers el f Th e al te r n ati v e woul d b e to k eep a v es sel wh i ch th e n aval
o ffice rs de s i red t o b o a rd wa i ti ng i t m i gh t b e fo r days to g eth er u nt i l
th e weath e r condi ti o ns enab l ed th e v i s i t to b e ca r ri ed o u t at se a
N o wa r h as yet b een waged i n wh i ch n eut ral i nd i vi du al s h av e n o t
oc ca si o nal ly su ffered fr o m u n j us tifi ed b el l i gerent a cti o n ; no n eutral
n ati o n h a s exp eri enc ed th i s fact mo r e frequ ently i n th e p as t th an
G reat B ri ta in The onl y m eth o d by wh i ch i t i s p o s si bl e to h a rm o ni s e
bell i gerent a cti o n w ith th e ri gh ts o f n eutral s i s fo r th e b ell i ge rent
n atio n to p rov id e som e adequ ate m a ch in ery by w h i ch i n an y s uch
cas e th e fa cts can b e i nv esti gat ed and app ropri ate redres s can b e
o btai n ed by th e neutral i n di vidual I n th i s c o untry s u ch m ach i n e r y
i s p r o vided by th e p o we rs wh i ch a re gi v en to th e p ri z e cou rt to deal
n o t only w ith captu res but a l so w i th cl a im s fo r c o mp e n sati o n
O rd er V rul e 2 o f th e B ri ti sh p riz e cou rt rul es p r o vi de s th at wh ere
a shi p h a s b een captu red as p ri ze but h a s b een su b se q u ently rel eas ed
by th e capto rs o r h a s by l oss d e s t ruction o r oth erwi s e c ea s ed t o b e
detai n ed by them wi th o ut p r o c eedi n gs f o r cond em n ati o n h av ing b een
tak e n any pers o n i n t e rested i n th e sh ip ( wh i ch b y O rde r I rule 2
i n cludes g oo ds ) wi sh i n g to m a k e a clai m fo r costs and dam ages i n
resp ect th ere o f sh all i s su e a w rit a s p r o v ided by O rder I I A w ri t
so i s s u ed w i l l i n i ti ate a p r o ce edi ng
whi ch wi ll f o ll o w i ts o rdina ry
c o u rs e i n th e pri z e c o u rt
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TH E P RO T ECTI O N O F N EUT RA L RI GH T S AT S EA
37
Th i s rul e gi ve s th e priz e cou rt ampl e j uri sdictio n t o deal w ith any
cl a i m fo r c o mp e n s at io n by a n eu t ra l a ri s i n g fr o m t he i nt er fere n c e
wi t h a shi p o r g oo d s by our n av a l f o rc es The bes t ev idenc e t h at
can b e g i v e n o f t h e d i s cri mi n ati on a n d t h e m o dera t i on w i t h whi ch
o u r n ava l o ffic e rs h ave ca rri ed o u t t hei r d u t i es i s to be f o u n d i n
t h e fact th a t up t o th i s ti m e n o p r o ceedi n gs f o r th e rec o very o f
c o mp e n sat io n h av e bee n i n i t i a t ed u n de r t h e rul e wh ich I h ave
qu o ted
I t i s the c o m mon expe ri ence o f every wa r th at n eutr a l s wh o se
a ttempts t o e n g a ge i n s uspi ci o us tradi n g a re frus tra t ed by a bel l igere n t
a r e w o n t t o h a ve r ec o urs e t o t h ei r G o ve r n me n t t o u rge th a t dipl o m a t i c
rem o n stranc es sh o u ld b e made o n th ei r beh a l f a n d th at redres s
sh o u ld b e o bta i n ed fo r th e m i n thi s way W h en a n e ffec t ive m o de
o f red re ss i s O pe n to th em i n t h e c o u r t s o f a c ivi l i z ed c o u nt ry by
wh i ch th ey can o b t ain adequate s ati s f a cti o n fo r a n y i n va si o n o f t h eir
r ights wh i ch i s co n tr a ry to th e l a w o f n atio n s th e on ly c o urse wh i ch
i s c on si ste n t wi th s o u n d p ri n c ipl e i s th at th ey should b e re fe rred
t o th a t m o de o f red ress a n d th a t n o dipl o ma t i c ac t i on sh o uld be
t a ken u n ti l t h ei r l egal rem edie s h ave b een exhausted a n d th ey a re
i n a posi ti o n t o s h o w pr i m a f ac i e de n ial o f j usti ce
Th e c o u rs e ad o pted by H i s Maj es t y s G o v er n me n t dur i n g th e Am e r
i can C ivi l W ar was i n stri ct a cc o rd a nc e wi th th i s p ri n ci pl e I n spi t e
o f rem o nstra n ces fr o m m a n y qua rte rs th e y p la ced ful l rel ia n c e on t h e
Am eri can p ri z e c o u rts to g ra n t redres s to th e pa rt i e s i nt e res t ed i n
ca s es o f al leged w r on g ful capture by Am e ri can ship s o f w a r a n d
put fo rwa rd n o cl a ims u n til th e o pp o rtu n i t i es fo r red res s i n th o s e
cou rts h a d bee n exh a usted Th e s a m e c o urse was ad o p t ed i n t h e
S pa n i sh Am eri ca n W a r wh e n a l l B ri ti s h subj ects wh o c o mpl ai n ed
o f captu res o r detentions o f th ei r ship s w ere r e ferred t o th e p riz e
c o u rts f o r r el i e f
B e f o re l eavi n g th e subj e c t may I rem i n d Y o u r E xcell e n cy o f th e
fa ct th at a t y o u r requ es t y o u a re now suppl i ed i mm edi a t ely by th i s
depa rtm e n t w i th pa r t icula rs o f ev ery sh ip u n d er Ameri c a n c o l o rs
wh ich i s detai n ed and o f eve ry S hipm e n t o f c a r g o i n wh i ch a n Ame r
i can ci ti zen appea rs t o be th e pa r t y i n t e rest ed N o t o n ly i s th e fac t
but so fa r a s i s p racti cable
o f dete n tio n n ot ified t o Y o ur Exc elle n cy
th e g r o und s up on whi ch th e ve ss el or carg o h a s bee n detai n ed a re
a ls o c o mmun icated t o y o u ; a c on c ess i o n wh i ch e n abl es a n y U n i t ed
S tate s citiz e n t o take step s at onc e t o p r o tec t hi s i n terests
H i s Maj es ty s G o ver n m ent h av e al s o d on e al l th at l i es in the i r
pow er to i nsu r e rapid a ction wh e n sh ip s a re reported i n B riti sh p o r t s
Th ey real i z e th at t h e shi p an d c a rgo ow n ers m ay rea s on ably expec t
a n i mm edi ate d ec is ion t o b e tak e n a s t o wh e t her th e shi p m ay b e
a l low ed to p roceed and wh eth e r h e r ca rgo o r any pa rt o f i t must
Real i z i n g th at th e o rd i
b e di s ch a rged a n d put i n t o th e p ri z e c o u rt
n a ry m eth o ds o f interdepartm e n tal corre sp o nde n c e m ight c a us e del a y s
wh i ch c o u l d b e o bviated by a no th er m e t hod o f p r o cedur e th ey estab
l i sh e d s eve ra l m on th s ag o a spec i a l comm i tt ee on whi ch a l l th e depa rt
m ents conc e r n ed a re repr es e n ted Th i s c o mmi ttee s its da ily a n d
i s p r o vid ed wi th a sp eci a l cl e ri ca l sta ff A s s oon a s a sh ip reach es
p o rt ful l pa rti cul ars a r e te legraph ed t o Lo n d on a n d th e ca s e i s de a l t
with at the n ext m e eti n g o f th e c o mm i ttee i mmed i at e steps be i n g
tak en to c a rry o u t th e acti o n deci ded up on B y th e ad o pt i o n o f t h i s
p r o c edure i t h as bee n fou n d p o ssi ble t o redu ce t o a m i ni mum th e
d e la y s to wh i c h n eutra l s hi ppi ng i s expos ed b y th e exerc i s e o f
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TH E P RO T E CT I O N O F N EUT R A L RI GH T S A T
38
S EA
b el l igerent rights and by th e ne ce s s i ty i mp o s ed by m o d ern condi ti ons
o f exam i n i n g w i t h c a re th e desti n ation o f c o n t raband a rti cl e s
P a rti cula r atte n ti on i s d i rected i n Y o u r Exc el l ency s not e t o th e
p o l i cy we are pu rs ui n g with rega rd to co n di ti o n al c on t rab and es p e
fs a n d i t i s th e re stat ed th at a numb er o f Am er i can
c i a l l y f o odstu f
ca rg o es h av e been s ei z ed w i thout s o fa r a s Y our Exc ell ency s GO V
o u r be in g i n p o s s es s i o n o f fa cts wh i ch wa r
e r n m e n t ar e i n f o rmed
ranted a rea sonable be l i e f th at th e s h ipm e n ts h ad i n r ea li ty a b e l l i g e r
e n t destina t i on a n d i n sp ite o f th e p re sumptio n o f inn o cent u s e due
to th ei r b ei n g d estin ed to n eutral t errito ry Th e not e d oe s n ot
sp eci fy a n y p a rti cul a r s ei z u res as thos e wh i ch f o rm ed th e b asi s o f
t hi s c o mpl a i n t a n d I a m th ere f o r e no t awa re wh ethe r th e pa ss age
re fe rs t o c a rgoes whi ch w er e d etai n ed b e fore or s in c e th e ord er i n
c o u n ci l o f the 2 9 th O ct o b e r w a s i s su ed
Y o u r Exce l l e n cy w i ll n o d o ubt rem embe r th at so o n a fte r th e o u t
b re ak o f wa r a n o rde r o f H i s M aj es ty i n coun c i l wa s i ssu ed unde r
wh i ch n o di sti n cti o n wa s d rawn i n th e appl i cati on o f th e d o ctri n e o f
c on t i n uou s v o y a ge b etw een a bs o lute c o ntr aband a nd c o ndi ti on al c o n
t r a ba ud and wh i ch a l so i mp o s ed upon th e n eutra l owne r o f co n tra
b a n d somewh at dra sti c co n di ti o n s a s to th e bu rden o f p roo f o f th e
gui l t o r in n o cenc e o f th e sh ipm ent
The p ri n cipl e th at th e bu rden o f p roo f s h ou ld al wa y s b e i mpos ed
up o n th e c apt o r h a s usu ally b een adm itted a s a th eo r y I n p ra cti c e
h o w ev e r i t h a s a lm o st a lways b een oth erwi s e a nd an y student o f
t h e p ri z e c o u rt s deci s i o n s o f th e p a s t o r eve n o f m o de rn w a rs w i l l
fi n d th at g o od s s eldo m e s cap e c o ndemn ation u nl es s th ei r own er w as
i n a p o s iti on t o p r o ve th at th ei r de sti n at io n w as i n n o c ent A n attempt
wa s m ade som e few ye a r s ag o i n the u n r ati fie d Decl a rat i o n o f L o n
do n t o fo rmulate s o m e defini t e ru l es up o n thi s s ubj ect bu t ti me al on e
c a n sh o w wh e th er th e rul es the re l ai d down w i l l stand th e t est o f
m o der n w a r fa re
T he rul e s wh i ch H i s M aj esty s Gove rnm ent p u b l i sh e d i n th e o r d e r
i n counc i l o f th e 2 oth August 1 9 1 4 w ere c ri ti ci s ed by th e U n i ted
S tates G o ve r n m ent a s co nt ra ry to th e ge n e ral ly re cogni s e d p r in ci
pl es o f i n ter n ati o nal l aw a n d a s i n fl i cti ng u n nec e s s ar y h a rdsh i p up o n
n eut ral c o mm erc e a n d Y o u r Exc ell ency w i ll r em emb e r th e p rol o nged
di scus s i o n wh ich t oo k p la c e b etwe en u s th r o ugh th e m o n th o f O ctob e r
with a v iew t o fi n di n g s o m e n ew f o rm ul ae w h i ch sh ould enabl e u s
t o r est r ict supp l i es t o th e e n emy fo rc es a n d t o p rev ent th e s upply
t o th e e n emy o f m ate ri al s es se n ti al fo r th e m aki n g o f mu n i ti o n s o f
wa r wh i l e i nfl i cti n g th e m i n i mum o f i n j u ry and i nte r fer ence w ith
n eut ral c omm erc e It w as wi th th i s obj ect th at th e o rde r i n cou n c i l
o f th e 2 9 th O ct o b er wa s i ss u ed
u n de r the p rov i s io n s o f wh i ch a fa r
greate r m easu r e o f i mm u n i ty i s c on ferred upon n eutral com m erce
I n th at o rd er th e p rincipl e o f noni n ter ferenc e w i th co n diti ona l c o n
traba u d on it s w ay t o a n eutral p o rt i s i n l a rge m eas u r e a dm itted ;
o nly i n th ree c a s es i s th e righ t to s ei z e m a inta i n ed a n d i n al l th o s e
cas es th e o ppo rtuni ty i s giv en to th e cl aimant o f th e good s to es tabl i s h
th ei r i nn o c enc e
Two o f th o s e cas es a re whe r e th e sh ip s p ap ers a ffor d no i n fo rm a
t i on as to th e pe rs on fo r whom th e goods a r e i ntended I t i s o nl y
rea son a b l e th at a bel l igere n t sh oul d b e enti tl ed to rega rd as s usp i c i o u s
c as es wh ere the sh ippers o f th e go o ds d o not ch oo s e to di s cl o s e th e
nam e o f th e i n d i V Id u al who i s t o re c eiv e th em Th e th i rd c as e i s
h at o f goods address ed to a pe rson i n th e enem y t errito ry I n th e
,
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’
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t
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TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S E A
40
th e ci vi l p o pulation and tho s e fo r th e a rm ed fo rc es o r en emy
G o v ernme n t d isappea rs w h en th e di s tin ction b etw e en th e c iv i l p o p u l a
ti o n and th e a rm ed f o rce s i ts el f di s appe a rs
I n a n y c o u n tr y i n wh i ch th ere exi sts s uch a t rem e n dous o rga n i s a
ti on fo r w a r a s no w obtains i n Germ an y th er e i s n o cl ea r d ivi s i o n
b etwe en thos e whom th e G o ve rnm ent i s r esp on s i ble f o r feed ing an d
th o s e w hom it i s n o t Exp e ri e n c e s how s th at th e powe r to requ is i ti on
w i l l b e us ed to th e ful l es t exte n t i n o rde r t o m ak e s u re th at th e want s
o f th e mi l i ta ry a re s uppl i ed and h o w ev er m u ch good s may b e i m
p o rted fo r civ i l us e i t i s by th e m i l i ta ry th at th ey w i l l b e con sume d
i f m i l i ta ry exi genc i es re qu i r e i t e sp ec i al ly now th at th e G erm an G o v
fs i n th e cou n tr y
e r n m e n t h av e take n c on trol o f a l l th e food stu f
I d o n o t w i sh to o v e rbu rden th i s note w i th stati sti cs b ut i n p roo f
o f my statem ent a s t o th e unp rec ed e n ted exte n t to wh ich suppl ie s a r e
rea chi n g neut ra l p o rts I s h o uld l ike to i n s tan c e th e figu r es o f th e
expo rts o f c ertai n m eat pr o ducts to Denma r k du ri n g th e m on th s o f
S eptembe r and O ct o b e r Denma rk i s a country w h i ch in no rm a l
ti m es i mp o rts a ce rta in qua n tit y o f s u ch p roducts b ut expo rts s ti l l
m o re I n 1 9 1 3 du rin g th e ab o v e two month s th e U n i ted S t ate s
expo rts o f l ard t o De n m a rk we r e n i l a s c o mpa r ed wi t h
pounds i n th e s am e two m o n th s o f 1 9 1 4 Th e cor res p o nd i n g figu re s
w i th rega rd t o ba c o n w ere : 1 9 1 3 n i l ; 1 9 1 4
p o unds ; c ann e d
bee f 1 9 1 3 ni l ; 1 9 1 4
pou n ds ; p i ckl ed a n d c u red b ee f
pounds ; 1 9 1 4
pounds ; pi c k l ed por k 1 9 1 3 n i l ; 1 9 1 4
pou n ds
I n th e s a m e tw o m o nth s th e Uni te d S tates exp o rted t o Denma r k
gal lons o f m in era l lub ri cati ng O i l i n 1 9 1 4 a s comp ar ed w ith
i n 1 9 1 3 ; t o N o rway
gal lo n s i n 1 9 1 4 a s agai n s t
gal l on s i n 1 9 1 3 ; t o S wed en
ga l lon s i n 1 9 1 4 a s a g ain s t
ga ll on s i n 1 9 1 3
I h ave al ready me n tioned th e fram ing o f th e o rd e r i n coun c i l o f
th e 2o th O ct o b e r and th e t ran sm i s s i o n to Y ou r Exc el l e n cy o f p a r
ti c u l ar s o f sh ips a n d ca rg o es se iz ed as i n sta n c es o f t h e e ff o rts whi c h
w e h av e m ad e th r o ugh out th e c o u rs e o f th i s wa r to m e et al l re as o n
a b le compl ai n t s m ade o n beh al f o f Am e r ican ci ti z e n s and i n m y
no te o f th e 7 th Ja n ua ry I al lud ed t o th e dec i s i on o f ou r p ri z e c o u rt i n
th e c as e o f th e M i r am i c h i a s ev iden c i n g th e l ib eral p ri nc ipl e s ad o pted
towa rd n eutral c o mm erc e
I shou ld al so l ik e t o re f er t o the s tep s wh i ch w e to ok at th e b egi n
n in g o f th e wa r to i ns u r e th e speedy rel ea s e o f ca rgo c la i med by
n eut ral s on b oa rd enemy shi p s wh ich w er e c aptu r ed o r deta i n ed a t
th e outb re a k o f wa r Unde r ou r p r i ze c o u rt rul es rel eas e o f s u ch
g o ods c an b e o bta i n ed w ithout th e ne ces s i ty o f e n te ri ng a c la i m i n
th e p ri z e cou rt i f th e d o cum ents o f titl e a re p r o duc ed t o th e o ffi ce r
rep rese n ting H i s M aj esty s G o ve rnm e n t and th e ti tl e to th e g oo d s
i s establ ish ed t o h i s s a t i s facti o n I t w a s s h o rtly found h ow e v e r
th at th i s p r o c edu re d id n o t p r o vi d e fo r th e ca s e wh er e th e av ai l abl e
evidenc e w as s o s canty th at th e o ffice r r ep res enti n g th e Cr o wn wa s
n o t j u stified in c o ns e n ti n g to a rel ea s e I n o rd er th e re f o r e t o
am el i o rate th e s i tuat i o n w e es tabl i sh ed a spe ci al c o m mi ttee w i th fu l l
p o w e rs to auth o ri s e th e rel eas e o f go o d s w i thout ins i s ti n g on ful l
evi de n c e o f ti tl e b e i n g p r o duc ed Th i s c o mmi ttee de alt w ith th e
u tmost expedi ti o n with a l a rge num b e r o f cla i m s I n th e great m a
I n addi ti o n
j o r i ty o f cas es th e g oo d s clai m ed w er e r ele as ed at o n ce
to th e c as e s d ea lt w i th by t hi s com mi tt ee a very l a r g e a mount o f c a r go
fo r
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T H E P ROT E CT I O N O F N E U T RAL RI GH T S A T S EA
41
was releas ed at o nce by th e pr o curat o r gene ra l o n pr o ducti on o f
d o cum ents Claima n ts the re f o re o btai n ed th ei r g oo d s wi th o u t t h e
n ec ess i ty o f applying to th e p ri ze c o u rt a n d o f i n cu rri n g t h e expe n s e
i nv o lved i n retai n i n g lawyers a n d wi th o u t t h e ri sk whi ch was i n
s o m e ca ses a c on s ide rabl e on e o f the g oo ds bei n g eventu a l ly h eld to
b e enem y pr o pe rty and c on demned W e have reas on to kn o w t h a t
o u r a ct io n i n th i s matte r wa s h igh ly app reci a t e d by m a n y Am e rica n
C i t i ze n s
An o th e r i ns ta n c e o f th e e ffo rts wh i ch Hi s Maj esty s G o ve r n ment
h av e made to d eal a s l e n i e n tly a s p o ssi bl e with n eutra l i n terests m a y
f
o
und
in
th
e
p
o
l
i
cy
whi
ch
we
have
f
o
ll
o
wed
w
i
th
rega
rd
to
t
h
e
be
t ra n s fe r t o a n eutral fl a g o f enemy ship s b el o ngi n g t o c o mpa n i es
wh i ch we re i n c o rp o rated i n th e e n emy c o u n try bu t al l o f wh o s e
sh a reh o lde rs were n eutra l Th e rule s appl i ed by th e B riti sh a n d by
th e Am e ri can p ri z e c o urts h ave a lways t reated th e fl ag as c o n clus iv e
in fav o u r o f t h e capt o rs in spi te o f n eutral p ropri eta ry i nt eres t s ( see
th e cas e O f the P e d r o 1 7 5 U S
I n s eve r a l cas es h o weve r
w e h av e co n s e n ted to wa ive o u r be ll igere n t rights to t reat a s e n emy
vess el s sh ips bel o ngi n g to c o mpani es i n c o rp o rat ed i n G erma n y wh i ch
w ere sub s idi a ry t o a n d owned by Am eri ca n c o rpo rati on s Th e on ly
c on di ti o n wh i ch we h ave imp o sed i s th at th es e v es sel s sh o uld tak e
n o fu rth er pa rt i n t rad e w i th th e e n emy c o u n t ry
I h av e give n th es e i n di catio n s o f t h e p o l i cy wh i ch w e h ave f o l l o wed
b ecaus e I ca n n o t h elp fe eli n g th at i f th e facts we re m o re ful ly k no w n
a s t o th e e ffo rts wh i ch w e h ave m ad e to avoi d i n fl ic t i n g a n y av o id
abl e i nj ury o n n eutra l i n te rests m a n y o f t h e c o mpl ai n ts whi ch h ave
b een rece i ved by th e adm i n i strati o n i n W ash i n g ton a n d wh i ch l ed
t o the p r o t est wh i ch Y o u r Exc ell e n cy h a n d ed t o m e o n t h e 2 9 th
Dec emb er w o uld n ever h av e bee n m ad e My h o pe i s that wh en t he
fa cts wh i ch I h ave s et o u t abov e a re real i s ed a n d wh en i t i s s ee n
th a t o u r n aval o pe rati on s have n o t dim i n i sh ed Am eri can t rad e wi t h
n eut ra l cou n tri es a n d th at th e li n es on wh i ch w e h ave a cted a re
c o ns i stent w i th th e fundam ental p ri n cipl es o f i n te rnati on al la w i t
w il l b e appa re n t t o t h e G o vernm e n t a nd peopl e O f the Uni ted S tates
th a t H i s M a j esty s G o v er n ment h av e h i th ert o e n deavou red t o exerci s e
th ei r belli ge re n t ri gh t s with every pos s ibl e c o nside ration fo r th e i nt er
ests o f n eu tral s
I t w i l l sti l l b e o u r endeavou r to avoi d inj u r y and los s to n eutral s
bu t th e a n n oun cem e n t by th e Ge rma n Gove r n m e n t o f th ei r i n te nt i on
t o s i n k m e rch a n t v es s el s a n d thei r ca rg o es w ith o ut veri fica t i on o f
th ei r n ati on a l i t y o r ch a ra cter a n d wi thout m aki n g any provi si o n f o r
th e s a fety o f n o n c o mbata n t c rews o r gi ving th em a cha n c e o f sav
i n g th ei r l ives h a s m ad e i t necess a ry f o r H i s Maj esty s G o vernme nt
t o co n s ide r wha t m ea su re s th ey sh o uld a d o pt to p r o tec t th ei r i n t er
e sts It i s im p o s si bl e f o r o n e bell ige re n t t o d epa rt from rul es a n d
p rec ed e n ts and f o r th e o th e r to remain b o und by them
I hav e th e h on o u r etc etc
S
i
gned
E
G
R
E
Y
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44
or r
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1
Ge r m an
Th e S
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A m e ri c an n o t e F e b r u a r y
d e c l ar a t i o n o f a w ar z o n e
8
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r e g ar d i n g
th e
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e c r e ta r y
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t
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at
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P l eas e addres s a n o te i mm edi a tely to th e Imperi al Germa n Gov
e r n m e n t to th e f o l lowi ng e f
fect
42
TH E P RO T E CT I O N OF N EUT R A L R I GH T S A T S E A
The Gov ernm ent o f th e United S tate s h aving h a d i t s attention
d i rected to th e p roclam ation o f th e G e rm an Admi ral ty i s su ed on th e
f o u rth o f Februa ry th at th e waters su rr o undin g Gr eat B ri ta in and
I rela n d i n cluding th e wh o le o f th e Engl i sh Ch a n n el a re to b e c o n
s i d e r e d a s c o mp ri s ed w ith i n the s eat o f wa r ; th at al l en emy m e rch ant
v es sels found i n th o s e w at ers a ft er th e ei ght e enth i n stant w i l l b e
d es tr o yed alth o ugh i t m ay n o t a lways b e p o ss ib l e to s av e c r ews a n d
p as se n gers ; and th at n eutra l v es s el s exp o s e th em s elv es to da n ge r
wi th i n th i s z o n e o f wa r b eca us e i n V i ew o f the m isus e o f n eut ral fl ags
s ai d to h av e bee n o rder ed by th e B riti sh G o v ernm ent o n th e th i rty
fi rs t o f Janua ry and o f th e co n ti n genc i es o f m a ritim e w a r fa r e i t m ay
not b e pos si b l e a lways to exempt n eut ra l v es s el s f rom atta ck s i n
t e n d ed t o s trik e e n emy sh ips feel s i t to be i ts duty to cal l th e att en
tion o f th e I mperi al Ger m an G o ver n m ent w ith s i ncere r espe ct and
th e most fri e n dly s entim ents but v e ry c andidly and ea rne s tly t o th e
v ery s e riou s p o ss i bi l iti es o f th e cou r s e o f a cti on app arentl y contem
plated under th at p roclam ati o n
Th e G o vernm ent o f th e Uni te d S tat es Vi ews those pos s ib i l iti es w ith
s uch grav e co n c er n th a t i t fe el s i t t o b e i ts p ri vi lege and i ndeed i t s
duty i n th e c i rcum sta n c es t o requ es t th e Im p eri a l G erm an G o v ern
m ent to consi de r b e fo re a cti on i s tak en th e c r iti ca l s i tuati o n in re s p ect
o f the r el ati on s b etw ee n thi s c o unt ry and G erm a n y wh i ch m i gh t a ri s e
were th e Germa n n aval fo rces i n ca r rying o ut th e pol i cy fo r e sh ad
ow ed i n th e Adm i ral ty s p r o cl amati on to de s t r o y any m e rch ant v es s el
o f th e Un ited S tates o r cau s e th e d e ath o f A m eri can c iti z en s
I t i s o f c o u rs e not n ec es s a ry to rem ind th e German Gove rnm ent
th at th e so le righ t o f a b el li g e re n t i n d eal i ng w ith n eutra l v es s els o n
th e h igh s ea s i s li mi ted t o v i s i t and s ea rch unl es s a b lockade i s p ro
cla imed and e ffectiv ely m ai ntai n ed wh i ch th i s Gov ernmen t doe s not
understa n d to b e p r o pos ed i n th i s cas e To d ecl a re o r exe rci s e a
ri ght to atta c k a n d destroy any v es s el ente ri n g a p res c ribed a rea o f
th e h igh s ea s w ith out fi rs t c e rtai n ly dete rm i n i n g i ts b elli g e rent n a
ti o n ali ty a n d th e cont rab and ch a ract e r o f i ts ca rg o w o u ld b e an a ct
s o unprec ede n ted i n n aval w a r fa re th at th i s G o v ernm ent i s r el uctan t
t o b el i eve th at th e I mp eri al Gov ernme n t o f Ge rmany i n th i s c as e
c o ntempl ates i t as poss ibl e Th e su spi ci o n th at e n emy s hi ps a r e u si n g
n eutral fl ags i mp r o pe rly c an c re at e n o j u st p res umpti o n th at a l l sh ip s
trav ers ing a p res c ri bed a re a a r e s ubj ect t o th e s am e s usp i ci o n I t
i s to determ i n e exa ctly su ch qu esti o n s th a t th i s G o v er n m ent unde r
stands th e ri gh t o f V i s i t and s ea rch to h ave b e en re c o g n i z ed
Thi s Governm e n t h a s ca re ful ly noted th e exp lanat o ry s tat em ent
i s sued by th e I mp eri al G e rm an Gove rnm ent a t th e s am e ti m e w ith
t h e pr o cl am ati o n o f th e G erman A dm i ralty a n d ta k es th i s occa s i o n
t o rem ind th e Imperi a l Germ a n G o vernmen t v ery re s p ect fully th at
th e G o ve r n m e n t o f th e U n i ted S tates i s o p en t o non e o f th e c r iti c i s m s
f o r u n n eutra l a cti o n t o wh i ch th e Germ a n Governm ent b el i eve th e
g o vernm ents o f c ertai n o f oth er n eut ral n ati on s h av e l ai d th em s elves
O p e n ; th at th e G o ver n m ent o f th e U n ited S tat es h a s n ot c o n s e n ted
t o o r acqui e s c ed i n a n y m ea sur es whi ch m ay h av e b een taken by
th e o th er b el l i gere n t n ati o n s i n th e p r es ent war wh i ch ope rate to
res t rai n neutral trad e but h as o n th e c on t ra ry tak en i n a l l s u ch
matters a p o s i ti o n wh i ch war rants it i n h oldin g th os e g o v ernm e n ts
resp on s ibl e i n th e p r o pe r w ay f o r a n y unt o wa rd e ffects up o n A m er
i ca n sh ipp i n g wh ich th e accepted p ri n cipl es o f i nternat i o na l l aw d o
n ot justi fy ; a n d t h at it t h e re f o re rega rds its el f a s fre e i n th e p resent
,
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TH E P RO TE CT I O N OF N EUT RAL RI GH T S AT S EA
43
i nstan c e to tak e wi th a clear cons cience an d upon a ccepted p ri n c ipl es
th e p o s i ti o n i n di ca t ed i n thi s n o te
I f the c o m ma n ders o f Germa n vess el s O f wa r sh o uld act up o n t h e
p resumpti o n that th e fl ag o f th e Uni ted S t ates w a s no t bei n g us ed i n
g oo d fait h a n d sh o uld destr o y on the hi gh s e a s a n Ame ri ca n v ess el
o r th e l i ves o f Am eri ca n cit ize n s i t w o uld be di f
ficul t f o r t h e G o ver n
m en t O f th e U n i ted S tates t o V i ew th e a ct i n a n y o th er light t h a n
as a n inde fe n s ibl e V i o l a ti o n o f n eu t r a l rights wh i ch i t w o uld b e v ery
ha rd inde ed to r econci l e wi th th e fri e n dly relati o ns n o w so happi ly
s ubs isting b et w een th e tw o G o ver n ments
I f su ch a depl o rabl e S ituati o n s hould ari s e th e I mpe ri al G erma n
G o ver n m ent ca n readi ly app reci at e t h at th e G o ve r n m e n t o f t h e U n i t ed
S tates would be co n stra ined t o h o ld th e I mperi al G erma n G o v er n me n t
to a st ri ct acc o u n tabi l ity for su ch acts o f th ei r n aval auth o ri t i e s a n d
to take any step s i t mi ght be nec es sa ry t o take to s a feguard Am eri ca n
l i v es a n d p r o p erty and t o secu re t o Ame ri ca n c i t i z e n s th e ful l enj oy
m ent o f th ei r ackn o wledged rights o n th e high sea s
The G o ve r n m ent o f th e Uni t ed S tate s i n vi ew o f th es e cons ide ra
t ion s wh i ch it u rges wi th the greates t respect and wi t h th e s ince re
p u rpos e o f ma k i n g su r e that n o m i su n ders t a n di n g may a ri s e a n d n o
ci rcumstan ce o ccu r th at m ight ev e n cl o ud the i nt ercours e o f th e tw o
Gov ernm ents expres s es th e confident h o pe a n d expectati o n th a t th e
I mp eri a l Ge rma n G o ver n me n t ca n and wi ll give a ssu ra n c e t h a t
A m e ri can citi zens and th ei r ves sel s w il l n o t b e m o le st ed by t h e naval
fo rces o f G erm any o th erwi s e tha n by vi s i t and s ea rch though th e i r
v es s el s may b e trave rs i n g th e s e a a rea delimi ted i n th e p roc lam a t io n
o f th e German A dm i ralty
I t i s added f o r th e i n fo rmati o n o f the Imp eri a l Governme n t that
rep res entati on s h av e be e n made t o H i s B ri tanni c Maj e s ty s Gover n
m ent i n resp ect t o th e unwa rranted u s e o f th e Am eri can fl ag fo r th e
p rotect ion o f B riti sh sh ips
B RYA N
4
or r
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A m e r ic an m e m o r an d u m F e b r u ar y
No 1 9
c e r n i n g th e u s e o f th e A m e r i c an fl ag b y B r i t i s h
.
Th e S
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1 0,
1
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e A m e r i c a n A m bas s ad o r
t
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L o n do n
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Th e departm ent h as b ee n advi s ed o f th e Decl a rati on o f t h e Germa n
A dmi ralty o n Feb rua ry f o urth indi cati n g tha t th e B ri t i s h G o ver n
m en t had o n Ja n ua ry thi r t y fir s t expl i c i t ly au t h o ri zed t h e u s e o f
n eutral fl a g s on B riti sh m ercha nt vesse l s p resum a bly f o r th e pu rp o se
o f av o idi n g r ecog n iti o n by Germ a n naval f o rces Th e depa r t me n t s
a ttenti o n h a s a ls o b een di rected t o rep o rts i n t h e p res s tha t th e cap
tai n o f th e L us i tani a a cti n g up on o rders o r i n f o rma ti on rece i v ed
fro m th e B rit i sh authori ti es ra ised th e Am eri c a n fl ag a s h i s ves sel
appr o ach ed th e B riti sh co a sts i n o rde r to esca pe a nt i cipat ed a t ta cks
To day s p ress rep o r t s al s o C OII Il l l a n al
by German subma ri n es
l e g e d o ffici al statem ent o f th e F o reig n O ffi ce d e fe n d in g t he us e o f
th e fl ag o f a n eut ral count ry by a bell ige rent ves sel i n o rde r to escape
captu r e o r attack by an ene my
A s sum in g th at th e fo re g oi ng reports a r e t rue th e G o ve r n m ent
o f th e U n i t ed S tate s
res e rvi n g f o r futu re c o ns i de rat i on th e legal it y
and p r o p ri ety o f th e dec epti v e u se o f th e fl a g o f a n e u tr al p o wer i n
any c as e f o r th e pu rpos e o f av o idi n g captur e des i res v ery respect
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44
T H E P R OT E CT I O N OF N EU T RA L R I GH T S A T S E A
fully to poi nt o ut t o H i s B ri tann i c Maj e s ty s Gov ernm en t th e s er iou s
c o n s eque n ce s wh ich m ay result t o A m eri can v e s sel s and Am er i c an
ci t i z e n s i f thi s p ra ctic e i s co n tinued
Th e o cca s i o na l use o f th e fl ag o f a n eutral o r an en emy und er th e
s t res s o f i mm ed iate p u rsu it and to d ec e iv e a n app roa chi ng e n em y
wh i ch appe a rs by th e p ress r ep o rts t o b e repr e s e n ted a s th e p rec edent
a n d j u sti fic ati o n u s ed to s upp o rt th i s a cti on s e em s to th i s Gove rn
m ent a v ery di fferent th i n g fr o m an expl i c i t s anct i o n b y a be lli g e rent
governm ent for i ts m erch a n t s h ip s gene ral ly to fly th e fl ag o f a n eutral
pow er wi th in cer t a i n p o rt io n s o f the h igh se a s wh i ch a r e p r esum ed
T h e f o rm al decla rati o n o f
t o be f requented w i th h o sti l e wa r s h i p s
s uc h a pol i cy o f gene ral m i s us e o f a neutra l s fl ag j e o p a rdi z es th e
ves s el s o f th e n eutral vi s itin g th o s e wate r s i n a p ecu l i a r d egr ee by
rai sing th e p re s umptio n th a t th e y a r e o f b el l i g e ren t n ational i t y
r ega rdl e s s o f th e fl ag wh i ch th e y m ay ca rr y
I n vi ew o f th e a n n o unc ed pu rpos e o f th e Ge rm an A dmi ra lty to e m
age
n a cti ve n ava l o p e rati o n s i n c e rt a in del i m i ted s ea a rea s adj a cent
i
g
t o th e coa s t s o f G re at B ritai n a nd I re land th e Gove rnm ent o f th e
Uni ted S tates would V i ew wi th a nxi o us sol i c itud e an y gene ral u se
o f th e fl ag o f th e Un i ted S tates by B ri ti s h ve ss el s trav ers i ng thos e
wate rs A p o li cy s uch as th e o n e wh i ch H i s M aj e s t y s Gov e rnm ent
i s s a i d t o i nt e n d to ad o p t woul d i f th e decl a rati on o f th e G e rm an
Adm i ralty i s put i n f o rc e i t s ee m s c l ea r a ffo r d no p rotection to
B riti sh v es s el s wh i le i t would b e a s e ri ou s and c on s tant m en ac e to
th e li ves and ve ss el s o f A me ri can c iti z en s
Th e G o ve rnment o f th e U n i ted S ta tes the re fo re t ru s ts th a t H i s
Maj esty s Gover n m ent w i l l do a l l i n th ei r powe r to r estra in v e ss e l s
nationa l ity fr o m th e deceptiv e u s e o f th e fl ag o f the
o f B riti sh
United S tate s i n th e s e a a r ea d efined i n th e G e rman d ecl a ra tion s i n ce
su ch p ra cti c e woul d gr eatly e n dange r th e v es se l s o f a fri endly p o we r
n av igati n g thos e wa te rs and wou ld eve n s eem to i mp os e u pon th e
Governm ent o f G rea t B rita i n a m ea s u r e o f re spons i b i l i ty fo r th e los s
f A meri can l i v e s an d v es s el s i n ca s e o f a n atta c k by a G e rm an n ava l
po rc e
P l ease p re s ent a note to S i r Edwa rd G rey i n th e s ens e o f th e fo r e
going and i mpr ess h i m w ith th e grave c o n c e r n wh i ch th i s Gov ernm ent
feel s in th e c i rcums tanc es i n rega rd to th e s a fety o f A meri can v es s el s
and l i ves i n th e wa r z on e d ecla re d by th e G e rma n Adm i ra lty
Y o u m ay add th at th i s G o v ernment i s m aki ng ea rn est r ep re s ent a
t i o n s t o th e Ge rma n G o vernm e n t i n r egard t o th e dange r to Am e ri
c an vess els and ci ti zens i f th e d ecla ratio n o f th e Ge rm an A d m i ra lty
i s put i nt o e ffect
B RY A N
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No 2 0
A m e r i c an
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F e b r u ar y
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Th e S
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f ate to th e A m e r i c an A m bas s ad o r
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L o nd o n
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Th e depa rtm ent n otes th a t y o u h ave b e en i n formed by th e B ri ti sh
Governm ent th at the ca rgo o f th e Am e ri c an s team er Wi l h e l m i n a h as
b ee n se n t t o p ri z e cou rt but i s not y e t u n loaded Th e G o ver n m ent
o f th e U n ited S tates
o f c o u rs e
h a s n o inten t i o n o f i n te r fer i n g with
th e p roper c o urs e o f j udi ci al p r o c edu re i n th e B ri ti sh p ri z e c o u rts
but i t deem s i t p r o pe r t o b ring t o th e a ttenti o n o f th e B riti sh Go v
,
,
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,
,
C o mpany a n Am eri ca n c o rp o ra t i on o rg a n i z ed i n 1 8 9 1 wh ich i n t he
past h as made exte n s ive sh ipm e n ts o f g oo ds t o Ge rm a n y i s t h e s o le
o w n e r o f th e ca rgo wh i ch c on s i sts e n ti rely o f f oo ds t u ffs c on signed t o
th e W L Gre en C o mmi s si on Comp an y H ambu rg a n d tha t th e C o m
n
a
y s manage r n o w i n Eu rope h a s i n struc t io n s t o s el l the c a rg o
p
s o l ely t o th e c i vi li a n p o pulati on o f H amburg A c o py o f th e sh ip s
m a n i fes t ha s b ee n sub m i tted to th i s G o ve r n m e n t a cc o mpa n i ed by a
sw o rn s tateme n t from t h e Compa n y s m a nager i n wh i ch h e rep re se n ts
th at he was i n s t ruc t ed to p r o c eed to Ge rma n y t o d i sp o se o f t h e ca rg o
t o p ri va te pu rchase rs i n th at cou n try a n d n ot to any bell igere n t g o v
e r n m e n t n o r a rm ed f o rc es o f s uch g o ve r n me n t
n o r t o a n y a ge nt o f
a bel ligere n t g o ve r n me n t o r o f i ts a rmed f o rc es
Ac c o rdi n g t o wel l establi s hed p racti c e amo n g n a t i o ns adm i t ted a s
thi s G o ve rnm ent unde rs ta n d s by th e G o ve r n m e n t o f G re at B ri ta i n
th e a rt ic l es o f wh i ch th e Wi lh e l mi n a s carg o i s s aid t o co n si st a re
subj ec t t o s ei zu re a s co n traba n d on ly i n cas e t hey a re des t i n ed f o r
the us e o f a b ell igerent g o v er n ment o r i ts a rm ed f o rce s Th e Go v
e r n m e n t o f th e U n ited S tates u n dersta n d s th at t he B riti sh auth o ri t ies
co n s ide r th e s ei z u re o f th e ca rg o j usti fied o n th e gr o u n d t ha t a rec e nt
o rde r o f th e Federal C o u n ci l o f Ge rmany p r o mulga t ed a f t e r th e
ves s el sa i l ed requi red th e del ive ry o f imp o rted a r t i cl es t o th e Germ a n
G o ver n m e n t Th e o w n e rs o f th e ca rg o h a ve repres e nt ed t o t h i s Go v
e r n m e n t th at s uch a p o s iti o n i s u n te n able
Th ey p o i nt o ut th a t by
a p r o v i s i on o f the o rd er i n questio n a s o ri g i n a lly a n no u n ced th e
regul ati o n s in relatio n to th e s ei zure o f f oo d p r o ducts a re m a de i n
a pp li cab le to s uch p r o ducts imp o rted a f t er Janua ry th i rty on e n i n e t een
fi ft ee n They furth er rep res e n t th at t h e on ly a rticles shi pped on t h e
’
kl i l h e l m i n a w h i ch are emb r a c ed w i t h i n the term s o f th es e regula t i on s
a re wheat and bra n wh i ch c on sti tut e about fi fteen pe r c e n tum o f t h e
c a rg o as c o mp a red with eighty fiv e p er ce n tum c on si s t i n g o f m e a ts
vegetabl es a n d fru its The o wn ers a l s o ass e rt that th e regulati on s
c o ntempl at e th e di sp o si ti o n o f f oo dstu ffs t o i n di vidu a l s t h r o ugh m u
n i c i p ali ti e s ; th at mu n i cip a l i ti e s are n o t age n ts o f the G o vernme n t
a nd th at th e pu rp o s e o f th e regulati on s i s to co n serv e th e supply o f
f o od p r o ducts and t o p reve n t sp ecul ati o n a n d i n flatio n o f p ri ces t o
noncombata n ts
Th e Ge rman Gove rnm ent h as a dd ress ed a f o rm al commu n icatio n to
th e G o ve r n m ent o f th e U n i ted S tates i n relation t o th e e ffect o f th e
d ec re e i ssued by th e German Fede ral C o u n ci l a n d th i s G o ver n men t
deems i t p erti nent t o cal l t o th e atte n ti on o f th e B riti sh G o vernme n t
a m ateri al po rti on o f th i s commu n i ca t i on wh i ch i s a s f o ll o ws :
The Fede ra l Cou n ci l s d eci s i o n c o nc e r n i n g th e sei zu re o f fo o d
1
p ro d uct s whi ch Engl a n d alleges t o b e t h e caus e o f f oo d pr o duc t s
sh i pped to G e rmany b ei ng t reated a s c on traband b ears exclus ively
rye b o th u n mi xed a n d m ixed with oth e r p r o ducts a n d
on wh eat
al so wh eat rye o ats an d ba rley flo ur
Th e Fed eral C o u n ci l makes an expre s s excepti on i n s ecti on
2
forty fiv e o f th e o rde r S ection f o rty fiv e p r o vi des as f o ll o ws : The
s tipulation s o f th i s re g ul ation do no t apply t o gr a i n o r fl o u r imp o r t ed
fr om a b r o a d a ft e r Ja n ua ry th i rt y on e
Conj uncti vel y wi th th at s avi n g clau s e th e F ederal Co unc i l s
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HE P RO T E CT I O N
OF
T
46
N EUT RA L RI GH T S A T S E A
o r d e r conta i ns a p rov i s ion un d er w h i ch impo rte d c ereal s an d fl ou rs
would be sol d excl us ively to th e m u n i c ip al it i es o r ce rta in S pec i al l y
d es ig n a ted o rga n i z ati on s by th e i mporte rs A l t h ough th at p rov i s i o n
h ad for i ts obj ect s imp ly t o th r o w i mp o rted gra in and flo u rs i n to s u ch
ch annel s a s supply th e p ri vat e c on sumpti o n o f c iv i l i a ns a n d i n c o n s e
th
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ci l s o rd er wh i ch w as to p r o tect th e c i v il i an p o pul ati on fr o m sp ec
i t w a s n ev erthe l ess res cind ed
u l ato r s and e n gros se r s we r e ful ly m et
s o a s t o l eav e n o r oo m fo r d o ubt
o
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co n tr o l by a sp eci al A m eri can organ i zati on u nde r th e s up erv i s i o n
fi c ers and i f n ec es s a ry w i l l i ts e l f m ak e a
o f th e Am eri can C o ns ul a r o f
p rop o s iti on i n th at di rect i on
Th
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th at muni ci pa l i ti es d o not f o rm p a rt o f or b el o ng t o th e Go ve rnm ent
but a r e s el f admi n i s trati ve b o di es wh i ch a re elected by th e i n h ab
i tan ts o f th e Comm u n e i n a c c o rda n ce w i th fixed ru l es and th ere f o re
exclusi vely rep res e n t th e p ri vat e pa rt o f th e p o pul ati o n and ac t a s
i t d i rects Alth o ugh th os e p rin c ipl e s a re gen eral ly k no wn a n d o bt ai n
i n th e U n i ted S tat es a s w el l as i n Engl and its el f th e G erm a n GOV
fa ct s o a s to avoid an y fu rth er
e r n m e n t d esi red to po int o u t th e
un n ec ess ary d el ay
6 H e n c e i t i s a b sol utely a s s u red th a t i mpo rt ed fo o d p rod u ct s
”
wi l l b e consume d by th e ci vi l i an p o pul ati o n i n Germ any excl us ively
I t w i l l b e o bs erved th a t i t i s stat ed i n th i s communi cati o n w h i ch
appears to c on firm th e co n tenti o n s o f th e ca rgo ow n e rs th at a p a rt
o f th e o rd er o f th e G erm an Federa l Coun ci l r elating to i mpo rted
f oo d produ ct s h a s n o w b een r es ci n ded
Th i s Governm ent h a s r ec ei v ed an o th e r com mun i cation fr o m th e
Germa n G o ve rnm e n t givi n g f o rmal a s s u ra n c e t o th e G o vernm ent o f
th e Uni ted States th at a l l g oo ds i mp o rted int o Ge rm any fr o m th e
U n i ted S tat es di r ect ly o r i ndi re ctly wh i ch b elo n g t o th e c l as s o f
rel a t i v e contraba n d s uch a s foo dstu ffs w i l l n o t b e u sed by th e G er
man a rmy o r n avy o r by Gove rnm e n t auth ori ti es bu t w i l l b e l e ft t o
the fre e consumpti on o f th e G erm an c i vi l i an popul at ion excludin g a l l
G o ve r n me n t pu rv ey o rs
I f th e B ri t i sh auth o r iti es h av e n o t i n th e i r p o s s es s i on evi d enc e
othe r tha n th at p resent ed t o th i s G o v ernm ent as t o th e ch a ra cte r
and d esti n ati on o f th e cargo o f th e Wi l h e l mi n a s u ffic i ent to w a rra n t
th e s ei zu re o f th i s c a rg o th e G o vernm ent o f th e U n i ted S tates hop e s
th at th e B rit i sh Gov ernm e n t wi l l relea s e th e v es sel togeth e r w i th h e r
ca rg o a n d al low h e r t o p r o c eed t o h er p o rt o f d esti nati o n
P l ease communi cate w ith th e B riti s h Gov e rnm ent i n th e sens e o f
th e f o re g o i n g
B RYA N
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No
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21
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Ge r m an
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t e F e b r u a r y 1 5 1 9 1 5 i n r e fe r e n c e
o f an u a r
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Th e Ge r m an A m bas s ad o r to th e S e c r e tar y
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t
S
e
f
.
Th e Federal C o unc i l s d ec i si o n c on cerni n g th e s ei zu r e o f fo od
p r o ducts wh i ch Engl a n d al leges t o b e th e c a use o f f oo d p r o ducts
sh i pp ed t o Ge rm a n y b e i n g treated a s contrab a n d i s exclus i vely o n
”
wh eat rye b o th u n m ixed a n d m i xed w i th oth e r p rodu cts a n d al so
”
wh ea t rye o ats and b a rl ey fl o ur
1
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TH E P R OT E CT I ON OF N EU T RA L R I GH T S AT S E A
48
sea rch Th e B riti sh a d mi tte d th at i nstru c tion s h ad b een gi v en
t o m i sus e ne ut ra l flags It i s a lm o st c e rtai n th at B ri ti sh m e rch ant
ves s els w i l l by a l l m ea n s t ry t o c oncea l th ei r i d enti t y Th e reby it
al s o be comes al mos t imp o ss ibl e to a s c ertai n th e ide n ti t y o f n eutral
sh ip s unl es s th ey s ai l i n d ayl i g h t unde r co n vo y a s al l m ea su re s s u g
gested by n eutra ls f o r in stance p a i n ti n g o f th e s h ip s i n th e national
colours m ay b e p romptly i m i tated by B rit i s h s h i ps Th e atta ck s to
be exp ected by m a sk ed B ri ti sh m e rch ant ves s el s m a k e a s ea r c h i m
p o s si bl e as th e exam inin g p a rt y and th e s ubm a ri ne s them s el ve s wou l d
t h ereby be expo s ed t o des tru ct ion
U n de r th e ci rcum stanc es th e s a fety o f n eutral s hi pp i n g i n th e wa r
z one a round th e B riti sh I sl es i s se ri o us l y th reaten ed Th er e i s a lso
a n inc rea s ed dan g er res ultin g fro m m i n e s a s th es e w i ll b e l a id i n th e
wa r z o n e to a great exte n t A cco rdingly n eut ra l s h ip s a r e u rgentl y
wa r n ed agains t ente rin g th at a rea wh i l e th e cou r s e a round S cotl and
w i ll b e s a fe
Ge rm any h a s b een comp ell ed to reso rt to th i s k ind o f wa r far e by
th e mu rder o u s w ays o f B ri ti sh nava l w a r fa re wh i ch a i m s a t th e
d est ruction o f l e g i tim at e neutral t rade and at th e s ta rvati o n o f the
Ge rm a n p eople Ge rm any wi ll b e o bl i g e d to a dh er e to th es e an
n o u n c e d p r i n cipl es ti l l Engl and subm i ts to th e r ecogni ze d ru les o f
wa r fa re establi she d by th e Dec l a rati on s o f P a ri s a n d L ondon o r t i l l
S h e i s c o mp el led to d o s o by th e n eutra l powe rs
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Ge r m an
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F o r e i g n A ffa i r s to th e A m e r i c an A m bas s ado r
f
I n re fere n c e to th e n o t e o f th e tw el fth in sta nt Fo rei gn O ffi c e
n umbe r tw enty two s ixt y r el ativ e to the G erm an m ea su re s resp ect
i n g th e th eate r o f wa r i n th e w ate rs s u rrou n di n g E n gl and th e u n d er
s i gn ed h a s th e ho n o r to reply to H i s Exc el l ency th e Amba s s ado r o f
th e Un ited S tates J am es W Ge ra rd a s follow s :
Th e I mp erial Ge rm an G o v ernm ent h av e exam ined th e comm uni
ca t i on o f the G o ve rnm e n t o f th e Uni ted S tates i n th e s ame spi ri t o f
g o od wi l l and fri endsh ip whi ch s eem s to h av e p romp te d th i s c o m
or
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Th e I mp eri al Ge rm an G overnm ent a re i n enti r e a c co rd w i th th e
Gove rnm ent o f th e Un it ed S tates th at i t i s i n th e h ighe s t d e gr ee
d esi rabl e fo r al l pa rti e s to av o id th e m i sunder standi n g wh ich mi g h t
a ri s e fr o m th e m easur e s announc ed by th e G erman Adm i ra lty an d
t o ave rt th e i n trusi o n o f ev ents cal cul at ed t o i nter rupt th e m ost
fri endl y r el atio n s wh i ch h av e s o h appi l y e x i ste d b etween th e two
Gov ernments up to th i s ti m e
O n thi s a ssu ranc e th e Germ an Gov e r n m en t b el i ev e th a t th e y m ay
d epend o n ful l unde rstandi ng o n th e pa rt o f th e Un ited S tates al l
th e more becau s e th e a cti o n an n o u n c ed by th e Ge rm an A d mi ra l t y a s
wa s dwel t upon at l ength i n th e n o te o f th e f o u rth i ns tant i s i n n o w i s e
di rected agai ns t th e l egit im ate t rade and n avi gati o n o f n eutra l states
bu t m erely rep res e n ts an a c t o f s el f d e fe n s e wh i ch Ge rm any s v ital
i n terests f o rc e h er to tak e agai ns t E n gl and s m ethod o f c o nductin g
m a r i t i me w a r i n d efia n c e o f i n te rn ati on al l a w wh i ch n o p rotes t o n
th e pa rt o f n eutral s h a s avai l ed to b ri n g i nt o a cc o r d ance wi t h th e
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TH E P RO TE CT I O N O F N EUT RA L RI GH T S A T S EA
49
l egal s tatus gen eral ly re cogniz ed be fo re th e o utbreak o f hostil iti e s
I n o rde r t o exclude a l l p o s s i bl e d o ubt on th i s ca rdi n a l p o i nt t h e
Germa n G o ver n m e n t beg t o s e t forth on c e m o re th e ac t ual s i t u a ti on
Up to no w Germa n y ha s s c rupul o us ly o bs erved th e exi s t i n g p r o vi
S i o ns o f i n t ernat i on a l l aw relat iv e t o ma riti me wa r I n p a r ti cul a r
s h e as se n ted W i t hou t d elay t o th e p r o p o sa l m ade by th e Am e ri c an
Gover n m en t di rectly a fte r th e wa r began to ra t i fy th e Decl a r a t i on
o f L o n d o n a n d emb o di ed th e c o nte n ts there o f w ith o ut ch a n ge i n h e r
p r i z e l aw even w ithout f o rmall y bi n di n g h erse l f in t h i s di rec t i on
Th e German G o ve rnme n t have adh ered to thes e p r o vis i on s eve n
wh e r e th ey c o nfli cted w i th m i lita r y i n terests O ur G o ve r n me n t at
th e sam e ti m e h av e p erm itted th e suppl y o f f o od by De n m a rk to
Engl and un ti l th e p res e n t although th ey could wel l hav e p revented
th i s tra ffi c by mea n s o f thei r n aval f o rces
I n di rect O pp o si ti o n to th is E n gl a n d ha s not sh ru n k from grave
v iola ti on s o f i n te rnati on al l aw w he rever s h e c o uld th ereby cripp l e
G erm any s pea ceabl e t rade w ith neutra l c o untri es I t wi ll no t be
nec es s a ry f o r th e G erman Gover n me n t t o go i nto grea t de ta i l o n
thi s p o i n t esp ecia lly s inc e th e Am eri c a n n o te t o th e B riti sh G o ver n
m ent dated Decemb er tw en t y eighth n i n e t ee n f o u rtee n wh i ch h a s
been b r o ugh t to th ei r k n o wledge h as dealt wi t h t h i s p o i n t v ery
aptly i f n o t ve ry exhaust ively o n the gr o u n d o f th e exp e ri e n c es o f
month s
I t i s co n c eded th at th e i n te n tion o f a l l th ese aggres s io n s i s t o cut
f G erm a n y from al l suppl i es a n d the reby t o del iver up to death by
of
fam i ne a p eac e ful c ivi l i an p o pulati on a p r o cedu re c on tra ry to l aw
o f wa r and ev er y d i ctate o f huma n ity
Th e n eutra ls hav e n o t b ee n abl e to p re ve n t th i s i ntercep t i o n o f
di ffere n t ki n ds o f t rade w i th Germa n y c on tr a ry t o i n te r n a ti on a l l a w
I t i s tru e th at th e A m eri c a n Gover n m e n t h ave p rotes t ed aga i n s t E n g
l and s p r o c edure and G erma n y i s glad to a ckn o wledge t h i s but i n
s p i te o f thi s pr o tes t and th e p r o tests o f th e o th er n eutral G o ver n
m ent s E n gla n d h as not all o w ed h ersel f t o b e di s suad ed fr o m the
cou rs e o rigi n a lly ad o pted Thus the A m e ri can s h ip Wi l h e l m i n a wa s
r ece n tly b r o ugh t i n t o p o rt by E n gl a n d al t h o ugh h er ca rg o w a s
des tined sol ely f o r th e C ivi l p o pul ati o n o f G ermany a n d w a s t o be
us ed onl y fo r th is pu rpos e a cc o rd ing to a n exp res s d ecl a rati o n o f th e
German Gov e rnm e n t
I n thi s w ay the fol l o wing h as b een c reated : G erma n y i s to al l
i n te n ts a n d pu rp o s es c u t o ff from o v ersea s uppl i e s wi th t he t o l er at ion
taci t o r p rotes ti n g o f th e neutral s reg a rdles s o f wh e t h e r i t I S a
q uesti o n o f g oo ds wh i ch a r e abs o lute c on traband or only cond i t i on a l
c o n tr a band o r n o t c on t raba n d at all f o llowi n g th e l a w ge n er a ll y
rec o g n i ze d b e f o re th e o u t b reak o f th e wa r O n th e o th er h a n d
E n gland w ith th e indul genc e o f neutral Gover n m ents i s n o t on ly
y
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cond itio n a l contraba n d nam ely f oo ds t u ffs raw m ater i a l e t c e t er a
although th es e a r e t reated by E n gla n d wh e n G erm an y i s i n ques ti on
a s ab s o lut e contrab a n d but al s o w ith g oo ds wh i ch h a ve b ee n reg
u l ar l y a n d u n questi on ably a ck no wl edged t o be ab s o lu t e c ont ra b a n d
Th e Germ an G o v er n men t b eli eve th at th ey a re obl i ged t o p o i n t o u t
ve ry p a rti cul a rly a n d wi th th e gre a test em ph as is th a t a t r a d e i n a r m
s
exi sts betwe en A m eri ca n m a n u fa c t u re rs a n d G erm a n y s e n em i e s wh i ch
i s esti mated a t ma n y h u n dred m ill i o n m ark s
Th e Ge rm an Gov er n me n t h av e gi ve n du e rec o g ni t ion t o th e f a c t
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TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S EA
0
5
th at a s a m atte r o f fo rm th e e x erc i s e o f ri ght s an d th e tol eration o f
w r o ng o n t h e p a rt o f n eutra l s i s li mited by th ei r p l eas ur e al o n e and
i n v o lves n o f o rm a l b reach o f n eutral i ty Th e G erman Gove r n m ent
h ave n ot i n c o n s equen c e m ade an y cha rge o f f o rma l b r eac h o f
n eu t ra l i t y Th e German G o v e rnm ent c a n no t h o wev e r do o th erw i s e
esp eci al ly i n th e i nteres t o f absolut e c l ear n es s i n th e r el ations b e
tw e e n th e tw o cou n tries th an t o emph as i z e that th e y i n c o mm o n
wi th th e p ub li c o p i n i o n i n Ge rm any fe el th em s elv es p la c ed a t a great
di s adva n tage th r o ugh th e fa ct th a t th e n eutra l powe rs h av e h ith erto
achi eved n o s u cce s s o r o n l y an u n m ea n i n g su cces s i n th ei r a s s e rti o n
o f th e ri gh t to trad e w i th G erman y a ckn o wl ed ged to b e l egi tim ate
by i n ter n atio n al law wh e reas th ey m ake u n l im it ed u s e o f th ei r r i g h t
t o t o l er a t e t rade i n c o n t rab a n d wi t h E n gl and and ou r oth e r en emi es
C on ceded that i t i s th e f o rma l ri ght o f n eut ra l s not t o p r o te ct th ei r
l egitimate t rade w i th G erm a n y and ev en t o a l low th em selv e s know
i n g l y a n d w il l i n gl y to b e i nduc ed by Engla n d to res tri ct s u ch t rade
i t i s o n th e oth er h and not l es s th ei r good ri gh t although u n fo r
t o s top t rad e i n contraband esp eci a l l y th e
tu n ate l y n o t exerci s e d
t rade i n a rm s wi th G erm any s enem i e s
I n vi ew o f th i s s i tuat ion the Ge rman Gov ernm ent s e e th em s elve s
c o mp el l ed a fte r s i x m o nth s o f pati e n c e a n d w atch ful w a i ting t o m eet
E n gl a n d s m u rde rous m eth o d o f c on ducting m a ritim e wa r w i th d ra s t i c
c o u n te r m easu res I f E n gl a n d i nvok es th e p o w e rs o f fam i n e a s an
al ly i n i ts struggl e again st G erm an y w i th the i n te n tion o f l eav i n g a
c i vil i z ed p eop l e t h e a lte rn ativ e o f p eri sh in g i n m i s ery o r sub m i tti n g
t o th e y ok e o f E n g l a n d s pol iti cal a n d c o mm erc i al w i ll th e Germa n
G o v ernm e n t a r e t o day d eterm in ed to tak e up th e gau n tl et and t o
app ea l t o th e s am e gr i m a l ly T h ey r ely o n th e neut ral s wh o h av e
hi th erto taci tly o r unde r p r o te st s ubm itted to th e co n s equenc es d e tr i
me n ta l to th ems elv es o f Engl a n d s w a r o f fam i n e to di spl ay not
l ess t o l eran c e towa rd Ge rm a n y ev e n i f th e Germ an m ea s u res c on st i
tu t e n ew fo rms o f m a ri tim e w a r a s h as hi th e rto bee n th e c as e w ith
th e E n gl is h m eas u res
I n additi o n t o th i s th e G erman Gove rnm ent a re dete rmi ned t o
suppress w i th al l th e m eans a t th ei r d isp o s al th e s upp l y o f war
m ate ri al to E n gl a n d and he r al li es a n d as sum e a t th e s am e ti m e
t h at i t i s a m at t er o f c o u rs e t h at th e neutral Gov ernm e n ts w h i ch
h ave h i th ert o u n dertaken n o a ct i o n agai n s t th e t rad e i n a rm s whi ch
( s i c ) $with $ Ge rm any s e n em i es d o n o t i nte n d to O ppose th e fo rci bl e
supp ress i on O f th i s trade by Ge rm a n y
P r o c eeding from th es e po ints o f v i ew th e G erm an Ad m i ra lty h as
decl a red th e z o n e p res c rib ed by i t th e s eat o f wa r ; i t w i l l ob stru ct
th is a rea o f ma ri ti m e w a r by mi n es wh erev er p o s s ible and a l s o
end eav o r to d es tr o y th e m erch ant v es s el s o f th e en emy i n any oth er
way
I t i s v ery fa r i n deed fr o m th e i nte n tion o f th e G e rm an Governme n t
a cti n g i n o bedi e n c e t o th es e comp el l i n g c i r cumsta n c es eve r t o de
str o y n eu t ral l i v es a n d n eutral p r o p erty but o n th e o th e r h a n d the y
ca n n ot be bl i n d t o th e fa ct th at da n gers a ri s e th r o ugh th e acti o n t o b e
carri ed o u t agains t E n gl and wh i ch m ena c e wi thout d i sc ri m inati o n
al l trad e w ith i n th e a r ea o f m a rit im e wa r Th i s a ppl i es a s a m atter
o f c o u rs e t o wa r m i n e s
wh i ch pl a c e a n y s h ip app r o ach in g a mi n ed
a re a i n danger even i f th e l i mits o f i n t ernation a l l aw are adh ere d
t o m o st st ri ctly
Th e G erma n Gov ernm ent b el i ev e th at th e y a r e a l l th e mo r e j u sti
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TH E P RO TE CTI O N O F N EUTRA L RI GH T S A T S EA
51
fie d
i n th e h Op e that th e n eutral powe rs w ill becom e reco n c iled w i t h
th i s j us t a s t h ey have wi t h th e seri o us i n j ury c a used t h em t h us f a r
b y E n gl a n d s m e su res becaus e i t i s t hei r wi l l to d o every t hi n g i n
a
a n y w a y c o mpat i bl e w i t h th e acc o mpl i shme n t o f t h ei r purp o se f o r
th e p r o te cti o n o f n eut ra l s hipp i n g even w i t h i n t he ar ea o f m a ri t im e
wa r
Th e y fu rn i sh the fi rs t p r o o f o f thei r g oo d w i ll by a n no u n ci n g the
m e a s ures i n t e n ded by th e m a t a tim e not l es s th an tw o weeks b e fo r e
h a n d i h o rder t o give n eutr a l shipp i n g a n o pp o r t u n i t y t o make t h e
ne cessa r y a r rangeme n ts t o av o id t he t h rea t e n i n g d a n ger Th e s a fes t
m e t h o d o f d o i n g t hi s i s t o st a y a way fr o m t he a rea o f m ari t i me w ar
N eut ra l S ll l p S enteri n g th e cl o sed w a t ers i n spi t e o f t h i s a nno u n c e
m ent g i ven s o fa r i n adva n c e a n d wh i ch s eri o us ly imp a i rs t h e
a cc o mp l i s hme n t o f th e m il i t a ry purp o se a g a i n s t E n gla n d be a r t h ei r
own resp on s ibi l ity f o r a n y u n f o rtu n a t e a ccide nt s Th e G erman G o v
e r n m e n t o n th e i r s ide exp ress ly decl i n e a l l resp on si b il i t y f o r such
a cci de n ts and th ei r c on seque n ces
Fu rth ermore the German G o ver n me n t a nno u n ced me rely th e de
s tru cti o n o f e n emy m erch a n t ves sel s f o u n d wi thi n th e a re a o f ma ri
t i m e wa r a n d n ot th e destructi o n o f a ll merch an t V ess els a s th e
Ameri can G o ve r n m e n t app ea r t o h av e e rr on e o usly u n de rs t o o d Th is
l im i tati o n wh i ch th e German G o ver n me n t have imp o s ed up on th em
s el v es imp a i rs th e mi li t ary pu rp o s e especia lly s i n ce t h e presumpti o n
w i l l p reva i l eve n i n th e cas e o f n eu t ra l s hip s t ha t t h ey have c on tr a
band o n b o a rd i n V iew o f th e i n terp re t a t i o n o f t h e ide a o f co nt raba n d
i n wh i ch th e E n gl i sh G o ver n m e n t have i n dulged a s reg a rds Germ a n y
a nd wh ich th e G e rm a n Governme n t wi l l a cc o rdi n gly app ly agai n s t
Engla n d
N atural ly th e I mpe ria l G o vernme n t a r e n ot wi ll i n g t o wa i ve the
ri ght to establi sh t h e pres e n c e o f c ont rab a n d i n th e ca rg o es o f n eu t r a l
s h ips a n d i n cases requi ri n g i t to take a n y a cti on n ecess a ry o n t h e
grou n ds es t abl i shed Final ly the Germa n G o ver n m e nt a re prep a red
t o a cc o rd i n c on j u n cti o n w i th th e Ameri c a n G o ver n me nt t h e m o st
ea rnes t co n s iderati on to a n y m ea su re tha t m ight b e c a lcul a t ed to
i nsu re th e s a fety o f l egi ti mat e shippi n g o f n eu t r a ls w i t hi n t h e se at
o f wa r Th ey ca n not h o weve r o v erlo o k th e f a c t th a t a l l e ff o r t s in
th i s di recti o n a re c on s iderably hampe red by t wo C i rcumsta n c es :
Fi rs t by th e m i sus e o f t he n eu t ral fl ag by E n gl ish m erch a n t v es sel s
w h i ch i n th e m ea nt i m e h as p r o b a bly be e n es t abl ish ed bey on d a d o ubt
by t h e Am eri ca n G o ve r n me n t li kewi s e S ec on d by th e a b o ve m e n
ti o n e d tr a de i n c o ntrab a n d especi al ly w a r m a t eri a l s by n eu t ral m er
cha n t v es s els I n reg a rd to t h e la tt er p o i n t th e Germa n G o ver n me n t
v e n tu r es t o h Op e th at t h e Am eri ca n G o ve r n me n t up o n rec on s ider a t i on
w i l l s e e the i r way cl e a r t o a m eas ure o f i nt erve nt i on i n acc o rda n ce
w i th th e S p i ri t o f true n eutral i t y
A s r egards th e fi rst p o i n t th e s ecret o rder o f the B ri ti sh Admi ral t y
h as al ready b ee n c o mmu n i ca t ed to t h e Am eri ca n G o ve r n me nt by
G ermany I t re comm e n ds E n gl i sh m erch a n t v essel s t o use n eutral
fl ags a n d h a s i n th e mea n tim e bee n c on fi rm ed by a sta t em e nt o f t h e
B ri ti sh F o reig n O ffice wh ich re fers t o t he m u n i cipal law o f E n gl an d
a n d ch a racte ri z es such ac t i on a s qui t e u no bj ec t i on abl e Th e E n gl i sh
me rch ant m a rin e h as fol l o w ed t h i s c o u n sel wi th o u t del a y a s i s
p r o bably k n o w n t o th e Am er ic a n G o ver n m e n t fr o m th e ca s es o f th e
M o re o ve r t h e B ri t i sh G o ver n me nt have
L u s i tani a and L a e r te s
a rmed Engli sh me rch a n t v ess els a n d i ns t ructed t h em to re si st by
,
’
,
.
,
.
.
.
,
,
,
.
.
,
,
,
.
,
,
,
,
'
.
,
,
‘
.
,
,
,
.
,
,
,
—
.
,
,
,
,
.
.
,
.
.
,
,
.
,
5
TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T S E A
2
In
fo r c e th e Germa n s ubm a rin es
d i fficult f o r th e Ge rman s ubm a ri n es
th es e ci rcumstanc es i t i s v e r y
t o rec o g n iz e n eutra l m ercha n t
ve s s els as su ch f o r ev e n a S ea rch w i l l n o t b e p o s s ibl e i n the m aj ori ty
s i n c e th e attacks t o b e anti c ipated i n th e ca s e o f a di sgui s ed
o f cas es
Engl i sh sh ip w o uld exp o s e th e c o m ma n ders c o ndu cti n g a s ea rch a n d
th e b o a t i tse l f t o th e da n ger o f de s t ru cti on
Th e B ri ti sh Governm e n t w o uld the n b e i n a p o s iti o n to r ender th e
German m easu r es i l lus o ry i f th ei r m erch a n t m a ri n e p e rs i sts i n th e
m i s use o f n eutral fl a gs a n d n eutral v es s el s a r e n o t m ark ed i n s om e
o th er man n er adm itti n g o f n o p o ss ib le doubt G erm an y m us t in
th e exigency i nto wh i ch sh e h as u n l aw ful l y b een fo rc ed m ak e h er
m ea su res e ffecti ve at a l l eve n ts i n o rde r th e r eby to c o mpe l h er
advers a ry to c o nduct ma ri tim e wa r fa r e i n a cco rdanc e w ith i nter
n ati on a l l aw a n d thus to r eestabl is h th e freed o m o f th e s eas w h i ch
s h e h as eve r advoc ated a n d fo r whi ch sh e i s fighti n g l i k ew i s e t o day
Th e German G o ver n m e n t th er e f o re w el c o me s th e fac t th at th e
Am e ri can Gover n m e n t h av e m ad e rep rese n tatio n s to th e B r iti s h
G o v e r n m en t relati ve t o the u s e o f thei r fl a g co n t ra r y t o la w and gi ve
exp ressi o n to th e exp ectati o n th at th i s a ct ion w i l l ca us e En g l and to
respect the Am eri can fl ag i n futu re
I n th i s exp ectation th e comm a n d ers o f th e G erm an s ubm ari ne s
h av e b een i ns tru cted a s w as a l ready st a ted i n th e n o t e o f f o u r t h
insta n t to a bstai n from Vi o l e n c e t o A m e r ican m e rch ant ve s sel s when
they a re rec o g n i zabl e a s su ch
I n o rder to me et i n th e s a fest m a n n e r a l l th e cons equ enc es o f m i s
taki n g an Am eri can fo r a h o st i l e m e rch a n t ve s s e l th e Ge rman G o v
e r n m e n t recommended th at
o
al
th
o
ugh
th
i
s
would
app
ly
in
th
e
n
t
(
ca s e o f d a n ge r fr o m m i n es ) th e U n it ed S tates c o nvoy th ei r shi p s
c a r ryi n g p eac eab l e ca r g o es a nd t rav ers i n g th e Engl i sh s ea t o f m a ri
ti me war in o rde r t o m a k e th em rec o g n i zabl e I n th i s c o nn ecti o n th e
Ge rman Governm e n t bel i eve i t s h ou ld b e m ad e a co n di ti on th at o n ly
such sh ips sh o uld be c on voyed a s ca r r y n o m erch andi s e wh i ch woul d
h av e t o b e c on s id ered as c o n traba n d ac c o rdi n g t o th e i nterp retat i o n
appl ied by Engl and aga i n s t G e rma n y Th e Ge rm a n G o v e rnment a re
p rep a red t o ente r i n to i mm ed iate n eg o ti at ion s wi th th e A me ri can G o v
e r n m e n t rel ati v e t o th e m a n ne r o f conv o y
T h ey would how ever
be p a rti cul ar ly grate ful i f th e A me ri c a n Gov er n m e n t wou ld u rge n t ly
advi s e th ei r m e rch a n t v ess el s to avo i d th e Engl i sh s eat o f m a r itim e
wa r a t any rat e u n ti l th e fl ag questi on i s s ettled
Th e G erm an Gov ernme n t re s ign th em s elves to th e confide n t h o p e
th at t h e Ame ri can G o v er n m e n t wi l l rec o gn iz e th e fu l l m eani n g o f
th e s eve re struggl e wh i ch G e rm a n y i s c on ducti ng fo r h e r v ery e xi st
e n ce and wi l l gai n ful l und ers ta n ding o f th e r eas on s wh i ch p r o mpt
Ge rmany and th e a ims o f th e m ea su re s a n nou n c ed by h er fr o m th e
ab o ve expl a n ati o ns a n d p r o m i s es
Th e German Governm e n t repeat th at i n t h e s c rup ul o u s c on s idera
t i on f o r n eutral s h i th erto p ra ct ic ed by th em th ey h av e d ete rmi n ed
up o n th e m easu res pl a n n ed on ly unde r th e s t r o nges t compul s i on o f
n a t io nal s el f p rese rvati on Sh o uld th e Am e ri ca n Gov er n m ent at th e
el eve n th h o u r s ucc eed i n rem o vi n g by V i rtu e o f th e w eigh t wh i ch
they h ave th e ri ght a n d abi li t y t o th r o w i n t o th e s c a l es o f th e fate
o f pe o pl es th e reas on s wh i ch h av e m ad e i t th e i mp erati v e duty o f
th e Ge rma n G o v er n m e n t t o t a k e th e a cti o n i n di c a t ed S h o u l d th e
Am er i ca n G o ve r n m e nt i n pa rt i cu l a r fi n d a way t o b ri ng ab o ut t h e
o bse rvat ion o f th e Decl a rati on o f L on d o n o n th e pa rt o f th e P ow e r s
.
,
,
.
,
.
,
-
.
,
,
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,
,
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,
,
.
.
-
.
,
,
,
,
P ROT E CT I ON OF
TH E
N EUT RA L R I G H T S AT S EA
53
at wa r w ith Ge rmany and th e reby to re n der po ssibl e fo r G ermany
t h e l egi ti m at e supply o f f oo ds t u ffs a n d i n dus t r i a l raw ma t e ri als t h e
Ge rma n G o v er n me n t w o uld rec o g n i z e t h is a s a s ervic e wh i ch c o uld
n o t be too h igh ly e stimated i n fav o r o f m o re hum an e c on duc t o f w a r
a n d w o uld gl adly draw th e nec ess a ry c on cl us i on s fr o m t h e new s i t u a
t i on th us c rea ted
Th e u n de rs i g n ed reques ts th e Ambass a d o r to bring th e ab o ve t o
th e a t t e n t i o n o f th e Am eri can Gover n me nt a n d av a i ls h imsel f o f t h e
O pp o rtu ni ty t o ren ew e t cete ra
V O N J A Go w
( Di p C o r r 5 6
,
.
,
.
.
.
No
B r i t i s h m e m o r an d u m , F e b r u a r y
o f t h e A m e r i c an fl a
r
t
i
s
B
i
b
h
g y
24
.
th e u s e
Th e S
bas s ad o r
.
.
e c r e tar y
o
f S tate fo r
1
9
1
,
9
1
c
o
c
r
i
n
e
n
n
5
g
,
F o r ei g n A f
fai r s to th e A m e r i c a n A m
.
Th e m emo ra n dum c o mmu n i cated o n th e 1 1 th F ebru a ry cal l s atte n
t io n i n c o u rte o us a n d fri e n dly t erms t o t h e a cti on o f t he cap ta i n o f
th e B ri t i sh S S L u s i tan i a i n rai s i n g th e fla g o f t h e U n i t ed S t a t es o f
A m erica wh en ap p r o ac h i n B ri t i sh wa t ers an d s ays th a t t h e G o ver n
m e n t o f th e Uni ted S t a t es fe el a certai n a n xie t y i n c on sideri n g t h e
p o s s i bi li ty o f a n y ge n e ra l u s e o f th e fl a g o f th e U n i t ed Sta t es by
B ri t i s h v es s el s t r a v ers i n g th o s e w at ers s i n c e th e e ffect o f such a
p o l i cy m igh t b e t o b ring about a me n a ce t o th e li ve s a n d ves s el s o f
U n i ted S tates c i ti z e n s
I t wa s u n d erst oo d th at the German G o ver n ment had a n n o unced
t h ei r intenti o n o f s i n k i n g B riti sh m e rch a n t v ess el s at s ight by t o r
e
w
i
th
o
ut
givi
n
g
a
n
y
o
pp
o
r
t
u
n
i
t
y
o
f
m
aki
n
g
a
n
y
p
r
o
v
i
si
on
f
o
r
e
d
o
s
p
s av i n g th e l ive s o f n on c o mb a ta n t c rews a n d pass e n ge rs I t w a s in
c o n s equ e n c e o f th i s th reat t h at t h e L us i tan i a rai sed th e U n ited S tat e s
fl ag on h e r i n w a rd voyage a n d o n h e r subseque n t o utwa rd v o yage A
requ est wa s m a de by t h e U n i t ed S t a t es p a s se n gers wh o we re emba rk
ing o n b o a rd h e r th at th e U n i ted S t ates fla g sh o uld b e h o i s t ed pre
s umably t o i n s u re t h ei r s a fe t y M ea n wh i le th e me m o ra n dum fr o m
H i s Maj es t y s G o v er n me n t did
Y o u r Exc el le n cy ha d been rece i ved
n o t gi v e any advi c e to t h e c o mpa n y a s t o how t o m ee t t h i s reques t
a n d i t i s u n de rstood th at th e L u s i tan i a l e ft Li ve rpool u n der th e B ri t ish
.
.
o
'
.
.
.
.
’
’
.
fl ag
lt s eem s
unnece s s a ry t o say m o re a s rega rd s th e L us i tan i a i n p a r
Th e
t i c u l a r rega rd t o t h e u s e o f f o re ig n fl ags by m ercha n t v es s el s
B ri t i sh m e r c h an t s hi p p i n g a ct m a kes i t cl e a r th at th e us e o f t h e B ri t
i sh fl a g by f o re i gn me rch a n t vessel s i s p erm i t ted i n t im e o f wa r f o r
th e pu rp o s e o f e scapi n g captu re I t i s b el ieved th at i n t h e c a se o f
so m e ot h er n a t i on s the re i s a si m ila r recog n i t i on o f th e sam e p ra c t i ce
w i th rega rd to t h ei r fl ags a n d t h at non e h ave f o rbi dde n i t I t w o uld
the re f o re b e unreas on abl e t o expec t Hi s M a j es t y s G o ver n me n t to
pa s s l egi sl ati on f o rbi dd i n g th e us e o f f o re ig n fl ags by B ri t i sh m erch a n t
v esse l s t o av o id cap t u re by th e e n emy N o w t h a t th e Ge rm a n G o ver n
m e n t h av e a nn o unced th ei r i n te nt i on t o s i n k m erch a n t vessel s a t s igh t
w ith th ei r n o n c o mbata n t c rews c a rg o es a n d p a pe rs a proceedi n g
h i th e rt o rega rded by th e O pi n i on o f th e w o rld n o t as wa r bu t a s
’
pi racy i t i s fel t th at th e U n ited Sta tes G o ver n m e n t c o uld no t f a i rly
a sk th e B ri ti sh G o v er n m ent t o o rde r B ri t i sh m erch a n t v es s el s t o
.
'
.
.
’
.
,
,
,
,
.
,
S ee
No
.
1
9
.
TH E P R OT E CT I ON OF N EU T R A L R I GH T S A T S E A
54
fo rego th e m eans
alwa y s h ith erto p erm itted
o f e s capin g n o t onl y
c aptur e but th e mu ch w o rs e fate o f s i n k ing and des truction G r eat
B ri t ai n h as a l w ays whe n n eutra l ac c o rd ed t o th e v ess els o f o th e r
S t ates at wa r l ibert y to u se th e B ri ti sh fl ag a s a m ea n s o f p r o tection
agai n st captu re a n d i n sta n ces a re o n r eco rd wh en Uni ted S tat es
v es s el s avai l ed th em s elv es o f th i s fa ci li ty du ri n g th e Am e ri can Ci v i l
W ar I t w o uld be c on tra ry to fa i r exp ectation i f now wh en th e
co n di ti o ns a re r ev ers ed th e U n i ted S tates a n d neutral n ati o n s w ere
t o grudge to B ri ti s h s h ips l ib erty t o take s i m i la r a ct i on Th e B ri ti sh
Gove r n m e n t h av e no i n te n ti o n o f adv i s i n g th ei r m e rch a n t s h ippi ng
t o us e fore i gn fl a g s a s gen era l p racti c e o r to r esort to th em otherw i s e
th a n f o r es c ap i n g captu r e o r destructi o n
Th e obl i gati on up o n a b el l ige rent w a rsh ip to a s c ert ai n defi n i tel y
f o r i ts el f th e n a ti o n ali ty a n d ch a ra cte r o f a m erch an t v e ss el be fore
”
captu ri n g i t a n d a f o rti o ri b e fo re s ink i n g a nd destroyi n g i t h a s
b e en un iv ersa lly r ecog n i z ed I f th at o bl igat i on i s fulfill ed h o i st i n g
a n eutra l fl ag o n b o a rd a B r it i sh v ess el cann o t p o s s ibly enda n ger n eu
tr al s h ippi n g a n d th e B ri ti sh Gov ernm ent h o ld th at i f l o s s to n eut ral s
i s caus ed by dis rega rd o f th i s o bl i gati o n i t i s up o n th e e nemy v es s el
d i s rega rd i n g i t a n d upon th e G o v e rnm e n t gi vi ng o rde rs th at i t sh ould
b e di s rega rded th a t th e sol e r espon s ibi l i ty fo r i n j ur y to n eutral s ou g h t
t o rest
i
D
r
a
r
C
( p
—
.
,
.
.
.
“
.
,
.
.
No
“
th e
.
B r i t i s h m e m o r an d u m , F e b r u ar y
”
W i lh el m in a
25
.
1
.
9
1
,
9
1
r
r
d
i
a
n
e
5
g
g
,
.
Th e S e c r e tar y
b as s ad o r
o
f S tate
f
or
F or eign A f
fai r s to th e A m e r i c an A m
.
Th e communi cati o n m ade by th e U n i ted S tat es A mba ss ado r i n h i s
n o te to S i r Edwa rd Grey o f th e s i xt ee n th i n sta n t h a s b ee n ca r e ful l y
co n s idered a n d th e fol l o w i n g o bse rva t i on s a re o ffe r ed i n reply :
2
At t h e ti m e wh e n H i s Maj esty s G o ve r n m e n t gav e di rect i o ns fo r
th e s eiz u re o f th e ca rg o o f the steam shi p Wi l h e l m i n a a s c o ntrab a n d
th ey h ad b e f o re them th e text o f th e dec re e m ad e by th e German
Fed era l C o u n ci l o n th e twenty fifth Janu a ry u n d e r A r ti c l e f o rty fiv e
o f wh i ch al l g rai n a n d fl o u r i mp o rt ed int o G erma n y a fte r th e th i rty
fir s t Ja n ua ry wa s decl a red d eli v er ab l e on ly t o c ertai n o rgani z ati o n s
unde r di re ct governm e n t c o ntr o l o r to m u n i c ip al authoriti es T h e
ves se l wa s b o und fo r H ambu rg o n e o f th e fre e ci ti e s o f th e G erm an
Empi r e th e g o ver n m ent o f whi ch i s v ested in th e m uni cipa l i ty Th i s
w as o n e o f th e reason s a ctuati ng H i s M aj esty s Gove r n ment i n de
c id ing to b ri n g th e ca rg o o f th e Wi l h e l m i n a b e f o re fh e p r i ze court
3 I n form a ti on h a s on ly n ow r ea ch ed th em th a t by a s ub s equ ent
dec re e dated th e s ixth Feb ru a ry th e abov e p rovi s i o n i n A rti cl e f o rty
fiv e o f the p revi o u s dec re e wa s r epe aled i t wou ld app ea r fo r th e
expres s pu rp o s e o f r e n de ri n g di ffi cul t th e a n ti ci pated p roc eedings
a gainst th e Wi l h e l mi n a Th e r epeal w as not k no wn to H i s M aj esty s
G o v er n m ent at th e tim e o f detentio n o f th e c a rgo o r i nd eed u n ti l
’
.
-
-
,
3
.
,
,
.
’
.
.
,
,
,
’
.
,
no w
,
.
H o w fa r the o ste n s i b l e exc ept ion o f i mpo rted s uppl i es from th e
ge n eral G o v er n m e n t m ono p o ly O f a l l gr a i n a n d fl o u r s e t up by th e
G erman G o v er n me n t m ay a ffect th e q u est ion o f th e c o nt raband n atu re
S ee N
4
.
o.
20
.
TH E P RO T E CT I O N O F N EUT RAL RI GH T S A T S EA
56
I t i s unn ec es s ary he re to dwe l l upon th e t reatm ent th at h a s b een
meted o u t to th e c i vi l p o pulation o f B e lgium and thos e p art s o f
Fra n ce wh i ch a re i n German o ccup a tion W h en Germ an y lon g
b e f o re an y m in es h a d b e e n l a id by B ri ti sh autho riti es p roc eeded to
s o w mi n e s up o n th e h i gh s eas and by th is m eans s u n k a cons iderab l e
numbe r n o t on ly o f B ri ti s h but al so o f n eutra l m erch antm en w i th th e i r
uno ffendi n g c rew s i t w as so H i s M aj e s t y s Gov e rnm e n t h eld O p en
to th em to tak e retal i at o ry m ea su r es ev en i f s u ch m eas u r e s we re
not i n d eed o f
o f a kind to i nvolv e p res su r e o f th e ci v i l popul at ion
n eutral s ta tes
but o f the i r en em i e s Th e y r e fra i n ed fro m doin g s o
s ub
h
e
n
s
ub
s
e
q
u
en
tly
Engl
i
sh
towns
an
d
de
fens
el
e
s
s
B
ritish
W
9
m
s
t
a
s
e
i
nc
ludin
wom
en
and
ch
i
ldren
w
er
e
d
el
i
b
erat
el
and
t
t
s
e
c
y
y
g
j
i c al l y fi r ed upon and k i ll e d by s h ip s fl y i ng th e fl ag o f th e I mpe r i al
Germa n n avy wh en q u i et c ountry t o w n s and v i l l ages vo i d o f de fen s e s
and poss ess i n g no m i l ita r y o r n aval impo rtance w er e b omb a rde d by
Ge rm a n ai rs h ip s H i s M aj est y s Go v e rnm ent s ti l l abs ta in e d from draw
ing th e logi cal con s e q ue n ces from thi s form o f attac k o n de fen s el e s s
ci tiz en s Fu rth e r st ep s i n th e s am e di r ection a r e now announce d
and in fact h av e al read y b een tak en b y G erm an y B riti s h m e rchant
v es s el s h av e b een to rp edoed a t s i gh t w ithout an y attempt b ein g m a d e
to gi v e w a rni n g to th e c r ew o r a ny oppo r tun i t y b ei n g g i ven t o s a v e
th ei r l i ve s a torp e d o h a s b een fi r ed a g ai ns t a B ri ti s h h o s p i ta l s h ip i n
dayli ght and s i m i la r tr eatm ent i s th re atened to al l B ri t i s h m erch ant
ves s el s i n fu tu r e a s w el l a s to an y n eut ra l sh ip s th at m ay h appen to
be f o und i n th e n ei ghbo rh ood o f th e B riti sh I s l es
Fa ced w i th th i s s i tuati on H i s M aj e s t y s Gove rnm ent c on s i d e r
10
i t would b e altogethe r u nre a son a b l e th at Gr eat B ri ta in and h e r all i e s
should b e exp ected to r ema i n indefin it el y b ound to th ei r g r av e d e tr i
m ent by rul es and p ri ncip l e s o f wh i ch th e y r eco g niz e th e j us ti c e i f
impa rti al ly obse rved a s b etw een b el li ger ent s b ut wh i ch a r e a t th e
p res ent m om e n t o p enly s e t a t defian ce by th ei r en em y
1 1
I f the re for e H i s M aj est y s G o v ernm ent s houl d h er ea ft er fee l
con s t ra ined t o declar e food s tu ffs ab s olut e contra b and o r to t ake oth er
m easu res fo r i nter feri ng wi th G erm an t rad e b y w ay o f rep ri sal s
th ey c o nfide n tly exp ect th at s u ch action w i l l no t b e ch al l en g ed on th e
pa rt o f neutral s tat es b y appeal s to l aw s and u s a g es o f w ar who s e
val idity r ests on th ei r f o rmi n g an i n te g ral p art o f th at syste m o f
i n ter n atio n al doctri n e w h i ch a s a wh ol e th ei r enem y frankly boa s ts
th e l ib e rty and inte n tio n to d i s rega rd s o l on g a s s u ch n eutra l s tate s
cannot c o mp el th e G e rman Governm ent to ab andon m ethods o f w a r
fare wh ich h av e not i n re c ent h i s to r y b e en r e g a r d e d a s h a v in g th e
s ancti on o f eith e r l aw or h um ani ty
-8
D
i
r
2
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r
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8
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No 2 6
A m e r i c an n o te F e b r u ar y 2 0 1 9 1 5 p r o p o s i n g m u tu al
c o n c e s s i o n s i n th e c o n d u c t o f n av al w ar far e
.
.
,
,
,
.
Th e S
e c r e tar
y o
t
a
t
e to th e A m e r i c a n A m bas s ad o r
S
f
at
*
n
L ond o
.
Yo u
w i l l p lea s e d eli ver to S i r Edwa r d Gr e y th e followi n g identi c
n o te wh i ch w e a re s endi n g E n g l and and Germany :
I n Vi ew o f th e correspondenc e wh i ch h as pass ed b etwe en thi s
Gove rnm e n t and Great B ri ta i n and Ge rm any re sp ectiv ely relat i v e
t o th e Decl aration o f a wa r z o n e by th e Ge rm an Adm i ral ty a n d th e
u s e o f n eutral flag s by B ri ti s h me rch ant v e s s el s th i s Go v e rnm ent
S am e t th e A m e i c a A m b a ad at B e l i n
,
,
o
r
n
ss
or
r
.
TH E P RO TE CT I ON O F N E U T RAL RI GH T S AT S EA
57
entures to exp res s th e hope tha t the two bellige rent Gover n ments
m ay th rough re cip roc a l c on cess i on s fi n d a bas i s f o r a r e e ni e n t
z
whi ch wi l l rel i ev e n eutra l ships e n g aged i n peace ful c o mm e fc e fr o m
th e great dange rs w h i ch th ey w i l l incur i n th e h igh s ea s adj ace n t
to th e c o asts o f th e bel l igerents
Th e Governm ent o f th e United S tates respect ful ly sugges t s that
an ag r e e m e n t i n te rms lik e th e fol l o wi n
m
igh
be
en
t
ered
i
nto
t
g
Th i s su g ge s t i on 1 8 not to b e rega rded as i n a n y s ens e a p r Op o s al mad e
by th i s
f
o r i t o f cours e fully recogniz es that i t i s n o t
Gov ernm ent
i t s p r i v i le g e to p ropo s e t erms o f agre eme n t b etween G reat B ri t ai n
and G erman y ev en th o ugh th e m atter b e on e in whi ch i t and t h e
e
o
p
l
e
o
f
th
e
United
S
tates
are
di
rectly
and
de
eply
i
n
terested
I
t
p
I s m e rel
y v entu ri n g to take th e li bert y wh i ch i t hope s m ay b e a cco rded
a Si nce r e fri end des i rou s o f emba rra s si n g n ei th er nati o n i n v o lved a n d
o f s ervin g i f i t m a
Th e c o u r s e
y th e common i n terests o f huma n ity
outl ined i s o ffered i n th e hop e th a t i t may draw forth the vi ew s a n d
el i ci t th e s ug gest i ons o f the B ri ti sh and Germa n Gov ernment s o n a
m atte r o f cap i tal i nterest to th e whol e wo rld
German y an d Great B ritai n to agre e :
I Th a t nei th er wi l l s o w an y fl o ating min e s wh ethe r upon th e h igh
s ea s o r i n te rri tori a l w aters ; that neith er w i l l p la n t o n th e hi gh sea s
ancho red m ine s excep t w ithi n cannon ra n g e o f ha rbors fo r de feu
s i v e purp o s e s o n ly ; and that a l l mine s sh al l bea r th e stamp o f
th e Governm ent p lantin g th em and b e so construc ted as t o be com e
h a rml ess i f s epa rated from th ei r m oo rings
2
That n ei the r w i l l u se subm ari n e s to attac k m ercha n t v es s el s
o f any nationali ty exc ept to en forc e th e ri ght o f v i s it a n d s ea rch
3 Th at ea ch w i l l re q ui re thei r r espec t i v e m ercha n t ves s el s not
to u s e n eutra l fl ag s for th e p urpos e o f d i sg ui s e o r r u s e d e g u e r r e
Germa n y to agree :
Th at a l l impo rtation s o f foo d o r food stu ffs from th e United S tates
k
and
from
s
uch
oth
er
neut
ral
c
o
untri
es
s
may
it ) i n to Germa n y
a
a
s
(
s hal l b e con s i gn ed to agenci es t o b e de s ignated by th e United S tates
Governm ent ; th a t th es e Am eri can agenci e s sha l l h av e e nt i re cha rge
and control wi thou t inter ferenc e o n th e part o f th e Ge rman G o v
e r nment
and
o f th e receipt and d i stributi o n o f suc h importa t i o n s
s h al l distri b ut e th em s ol el y to reta il deal ers b earing l i cense s fr o m th e
Germa n Gov ernm ent entitli ng th e m to rec ei v e and fur n i sh s uch
food an d fo o d s tu ffs to no n c o mbatants o n ly ; that any vi ol a ti o n o f
th e t erm s o f th e reta i ler s li cens e s shal l w o rk a for fei ture o f th ei r
r igh ts to r ec ei v e s uch food and food stu ffs f o r th i s purpos e ; a n d th at
s u ch food and foodstu ffs w i l l not be requi s i tioned by th e G erma n
Governm ent fo r a n y pu rpo s e what s oever o r b e dive rted to th e us e
o f th e a rm ed fo rc es o f G erman y
Great B r itai n to agree :
That food and foodstu ffs w i l l not b e pl a c ed upon th e ab s ol ute c o n
tr ab an d l i st and th at s h ipments o f such commoditie s w i l l not b e
i nter fe red wi th o r d etai n ed by B ri ti sh a uth o ri t i es i f consi g n ed to
a genc i e s de s i gnated by th e Uni ted S tates Gove r n ment i n Ge rman y
fo r th e re ceip t and d i s tribu tion o f such ca rg o es to l ice n s ed Germa n
reta i l er s f o r di s tribution s ol ely to th e n o nc o mbatan t p o pula t ion
I n s u b m ittin g th i s p r o pos ed bas i s o f agreeme n t t h i s G o ve rnm ent
do es not wi s h t o b e unde r s t o od a s admi tti n g o r d enying a n y h e l l i g e r
ent o r n eutra l r igh t e stabl i sh ed by th e p rincipl es o f i n ternat ion a l law
b ut w oul d c on s ide r th e a g reem ent i f acceptabl e to th e i nterested
v
,
o
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0
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TH E P R OT E C T I O N OF N E U T R AL RI GH T S A T S EA
58
pow ers a m o dus v i v e n d i b as e d upon e x pe d i en cy rathe r th an l egal
righ t a n d a s n o t b indin g upon th e Un ited S tates ei th e r i n i ts p res e n t
form o r i n a modi fi ed form unti l a ccepted by th i s Gov e rnment
B RY A N
rr
o
D
i
C
59
( p
,
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.
Ge r m an n o t e F e b r u ar y 2 8 1 9 1 5 ac c e p t i n g i n s u b
No 2 7
s t an c e t h e A m e r ic an p r Op o s al o f F e b r u ar y 2 0 ( No
Th e M i ni s te r for F o r e i g n A ffai r s to th e A m er i c an A m bas s ad o r
Th e unders i g n ed h a s th e h o nor to in f o rm H i s Exc el l enc y M r
Jam e s W G e ra rd A m b a ssado r o f th e United S ta te s o f Am eri ca
i n r ep l y to th e n o te o f th e 2 2 d i nstant th at th e I mpe ri a l Ge rm an
Governmen t h a v e t ak en note w i th g reat i nteres t o f th e s u g gesti on
o f th e Am er ican Gov ernm e n t th at ce rtai n p ri n ci pl e s fo r th e co n duct
o f ma riti m e w a r o n th e pa rt o f Ge rm an y and En g l a n d b e agre ed
upon fo r th e p rotecti o n o f n eutra l sh ipp in g T h e y s e e the r ei n n ew
evidenc e o f th e f ri endly feel ings o f th e Am eri can Gove rnm en t towa r d
th e Ge rm an Gov e r n ment wh i ch a re ful l y r ecip ro cate d by G e rm any
I t i s i n accord anc e w i th German y s w i s h e s a l so to h ave ma riti m e
wa r conducted a c cordi n g to rul es wh i ch w ithout d i s c ri m in atel y r e
s tr i c ti n g on e o r th e othe r o f th e b ell ige rent pow e rs i n the u se o f
th ei r m eans o f w a r far e a re equ a l l y cons i derat e o f th e i nter e s t s o f
neutral s an d th e d i ctate s o f h uman i ty Con s e q u ent l y i t w a s i nt i
m ated in th e G erm an n o te o f th e 1 6 th i ns tant th at obs ervation o f
th e Decla ration o f L o n don o n th e p art o f Germ a n y s advers a ri es
w ould c reat e a n ew s i tuat ion from wh i ch th e G erm an Gove rnment
would gladly d raw th e p rope r c o nc lus i o n s
P roc eeding from th i s Vi ew th e Germ an Gove rnm en t h av e c a r e ful l y
exam in ed th e s ugge stion o f th e A m e ri c an G o ve rnm en t and b el i eve
th at th e y c an a ctual ly s e e i n i t a s ui tabl e b a s i s f o r th e p racti c a l
s olution o f th e q uestion s wh i ch h ave a ri s en
W ith r ega rd to th e va ri ou s po ints o f th e A m eri can not e th e y b e g
to mak e the f o l l o wi n g rem a rk s :
1
W ith r ega rd to th e s o wi n g o f m ine s th e Germ an Gove rnm e n t
would b e w i l l in g to a gre e a s su ggested n o t to u s e fl oati n g m i n es
a n d to h av e anch o red m i nes c on s tructe d as i ndi cated M o re o ver
th ey agree to put th e stam p o f th e G o v ernm ent o n a l l m in e s to b e
planted O n th e o th er h and i t doe s no t app ea r to th em to be feas i b l e
fo r th e bel l igerent s wh ol l y to fo re g o th e u s e o f an ch o red m in e s fo r
o ffen s i ve pu rp o s es
2
T h e German Gove rnm ent woul d un d erta k e n o t to u s e th ei r s ub
m a rin es to atta c k m e rcanti l e o f any fl ag exc ept wh en n ec es s a ry to
en force th e ri gh t o f Vi s i t and s ea rch S hould th e en emy n ati ona l it y
o f the v ess el o r the p r es enc e o f cont raband b e as c e rta in ed s ubm a ri n e
vo ul d p roceed i n accordan c e w i th th e
en
eral
rul
e
s
i
ntern
ationa
l
f
o
g
aw
3 A s p rovi d e d i n th e A m eri c an not e th i s restri c tion o f th e u s e o f
th e s ubma rine s i s conti n g ent o n th e fa ct th a t en em y m e rcant il e
ab stai n f rom th e u se o f th e n eutra l fl ag and oth e r neut ra l di s ti ncti v e
m a rks I t wou ld app ea r to be a m att er o f c o u r s e th at s uch m e r
c an ti l e a l so abs tai n fro m a rm in
th
em
s
elv
e
s
and
from
al
l
re
s
i
st
a
n
ce
g
by f o rce si n ce such p r o cedu r e c ontra ry to i nte rn ati on al l aw w ould
render i mp os sibl e an y acti on o f th e su bmar i n es i n a c c o rdan c e w i th
i ntern ati on al l aw
T
h
e
r
e
a
ul
ti o n o f l egi ti mat e i mp or tati ons 9 f foo d i nto Ge r
4
g
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y
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,
TH E P ROT E CT I ON OF NEUT RAL RI GHT S AT
S EA
59
many s u g g este d by th e Ame ri can G o vernment appears to be i n gen
eral a cc eptab l e S uch regulation would o f c o urs e be co n fi n ed to
mportat
i
o
n
s
by
s
e
a
but
th
at
w
o
uld
o n th e oth er hand include i n di rect
i
i mportations by w ay o f neutral ports The Germ an G o v er n ment
w o uld th ere fo re b e wi l li n g to make th e decla rati o ns o f th e n a t u re
p rovi ded in th e Am eri can note so that th e us e o f the i mp o rted fo o d
a n d foodstu ffs s ol ely by th e noncombata n t populati o n w o uld be
gu aranteed Th e Impe ri a l Gover n me n t must h o wever i n additi o n
h av ing th e importation o f other raw m ateri al u sed by th e
economi c system o f no n c o mbatants i n cluding forage perm i t ted T o
th a t e nd th e enemy Gov ernme n t s w o uld h ave t o perm i t th e fre e ent ry
i nto Ge rm a n y o f th e raw m aterial s m entio n ed i n th e free l i s t o f
th e Decla ration o f L on d o n and to treat m ateri al s included in th e l i st
o f cond iti ona l contraband a ccordi ng to th e same p rincipl e s a s food
and f oo dstu ff s
Th e G erm an Government ventur e to hop e that th e agreement fo r
w h i c h the Am eri can Gove r n m ent h ave paved th e way m ay b e rea ch ed
a fte r due c on s ide ration o f th e rem arks m ad e ab o ve and th a t i n th i s
w ay pe ac eabl e n eutral sh ipping and t rade w i l l not have to s u ffer
fects
a n y mo re th a n i s a bs o lutely nec es sary fr o m th e unav o idabl e e f
o f m a ri tim e wa r Th es e e ffects could b e sti l l furthe r reduced i f
a s w a s po inted out i n t h e German n o te o f the 1 6 th i n sta n t some way
coul d be f o u n d to exclud e th e shi ppi n g o f m uniti o ns o f wa r fr o m
n eutral c o unt ri es t o b ell igerents o n sh ips o f any n a tional ity
Th e German G o ver n m ent must o f c o u rs e res er ve a defi n it e state
m ent o f th ei r pos i tion u n ti l such ti m e a s th ey m ay rece i ve furth e r
i n f o rmati o n from th e Am e ri ca n G o vernm e n t enabli n g them to s e e
wh a t o bl igation s th e B riti s h Governm ent a re on th ei r p art w ill i n g
to a s sum e
Th e und ersi gned ava i l s h im s el f o f th i s occa s i on etc
A
O
G
o
w
S
i
g
n
ed
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)
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(
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6
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B r i t i s h an d F r e n c h d e c l ar at i o n M ar c h 1 1 9 1 5 i n
No 2 8
i
r e s tr a n t o f s e a b o r n e c o m m e r c e w i t h Ge r m an y si
.
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Th e B r i ti s h A m bas s ad o r
Was h i ng to n
at
,
,
to th e S
e c r e tar y o
e
t
a
t
S
f
.
Ge rm an y h as decl are d th at th e E n gl i sh Ch ann el th e north and
wes t coa sts o f F ranc e and th e w aters a rou n d th e B riti sh I sl es a re a
wa r a re a and h a s o ffic i ally n o tifi ed that al l e n em y s h ip s found i n th a t
a re a wi l l be d estr o yed and th at n eutral ves sel s m ay b e exposed t o
dange r Th i s i s in e ffe ct a clai m to t o rpedo at Si ght W i th o ut rega rd
to th e s a fety o f th e c rew o r pass e n gers a n y me rch a n t v es sel u n der
any fl ag A s i t i s not i n th e p o wer o f th e German Adm i ral t y to
m a i nta i n any s u r fac e c ra ft i n th es e water s thi s attack c an only be
del i ve red b y s ubm a rine a gency
T h e l a w and custom o f nati ons i n regard to attack s on comm erc e
h av e always p res um ed th at th e fi rst duty o f th e cap to r o f a merch a n t
v es s el i s t o br in g i t b e f o re a p rize cou rt wh e re i t may be tr i ed
wh e r e th e r egul a r ity o f th e captu re m ay b e c h all e n g e d a n d wh ere
n eut ral s m ay recov er th ei r ca rg o es The Si n k i n g o f p r i ze s 1 3 i n
i t s el f a questi o n abl e ac tL to b e resorted to only i n ex t raord in ary C i r
c u m s tan c e s and a fte r p rovi s ion h as be en m ade f o r th e sa fet y o f al l
,
,
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,
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o
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e
ar n t
A
l S t ement
c o m m u n i c at
*
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iiF
i i
o m ss o n
r a
b y t h e B r i t i s h P r i m e M i n i ste r
e d t o th e n e u t r a l p o w e r s
e d
.
.
i n
th e
Hous
e
of
Co m mo n s
an d
60
TH E P RO T E CTI O N OF N EU T RA L RI GH T S A T S EA
th e c re w o r p ass en g er s i f t h e r e ar e p a ss en g er s o n b o ar d Th e
r espon s i bi l it y fo r di sc rim inat in g b etw een n eutra l an d en em y v e s s el s
a nd be tw een n eutra l a nd enemy c a rg o obvi ous ly r ests w ith th e
a tta cki n g s h ip w hos e dut y it i s to v eri f y th e status and cha ra cte r
o f th e v es s el and c a r g o a nd to p r e s er v e a l l p ap e r s b e fo re s inki n g
S o a l s o i s th e hum an e duty o f p rov idi n g fo r
o r e v e n c ap tu r i n g i t
th e s a fety o f th e c r ew s o f m e r c h ant ve s s el s wh ethe r n eutra l o r
enemy a n obl i g ation upon ev ery b el l ige re n t
I t i s upon th i s ba s i s th at a l l p r ev i ous d i s c u ss ion s o f th e l aw fo r
re g ulatin g wa r fa r e a t s ea h av e p ro ce eded A Ge rm an s ubm a r ine
howeve r fulfi ll s none o f th es e ob l igatio ns ; s h e enj o y s no lo ca l c o m
m and o f th e wate rs i n w h i ch sh e O p erate s ; sh e doe s n ot ta k e h e r
c aptu re s w i thi n th e j u ri sd i ction o f a p r i z e cou rt ; s h e c a rri e s n o
p ri z e c rew wh i ch sh e c an p ut o n boa rd a pr i z e ; s h e u s es no e ffectiv e
me an s o f di s cri mi nati n g betw een a n eut ra l and an enem y v es s el ;
s h e doe s n ot rec eive on boa rd fo r s a fet y th e c r e w and pa ss enge rs
o f th e v es s el s h e s i nks ; h e r m ethods o f w a r fa re a r e th er e fo re e n
ti r e l y outs ide th e s cop e o f an y o f th e i ntern ational i n s trum ent s
regul atin g op e rations a ga i ns t com m erce i n ti me o f w a r Th e Ger
m a n d ecla ration s ub stitutes i ndi s c ri mi nat e d estru cti on fo r r egulated
captu re G e rm any i s ad o pt i n g th ese m eth o d s a g a in s t p ea c e fu l trad
ers and noncombatant c r ew s wi th th e avow e d obj e ct o f p rev entin g
in cl udi ng food fo r th e c i v i l popu lation
commodi ti es o f a l l kind s
from reach in g o r l eav in g th e B ri ti sh I sl e s o r n o rthe rn F ran c e
H e r o pp o ne n ts a r e th er e for e d riv en to fram e re ta l i ato r y me as u r e s
i n o rder i n th ei r tu rn to p revent commod iti es o f an y k ind f rom
r ea ch in g o r leavin g G erm an y Th es e m ea s u re s w i ll howe v e r b e
en fo rc ed by th e B ri ti sh and F rench Gov ernm ent s w i th out ri sk to
n eutra l sh ip s o r to n eutra l o r noncomba tant l i fe and i n s tri ct o b se r v
anc e o f th e di ctate s o f h um an ity The B ri ti s h an d F re nch Gov ern
m ents w i l l th er e fore h old th em s elve s fr ee to deta in an d ta k e i nto
po rt sh ip s ca rryin g g oods o f p res um ed en em y d es ti n a ti o n own ersh ip
o r ori gin I t i s not i ntended to c o n fisc ate s u ch v es s el s o r ca rg o es
unl es s they would othe rwi s e b e li abl e to c o ndemn ation Th e treat
m ent o f v es s el s an d c a r g oe s wh i c h h av e s a i l ed b e fo re th i s d ate w i ll
no t be af
fected
CECI L S P RI N G R I CE
D
i
r
r
1
o
6
C
( p
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,
,
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No
R e s o l u t i o n o f C o n g r e s s , M ar c h 4,
n e u t r a l i ty o f A m e r i c an w at e r s
29
.
i n g th e
.
.
1
s afe g u ar d
915,
.
Re solv ed by th e S en ate and H ou s e o f Rep r e s entati v es o f th e
Un ited S tate s o f Ame ri ca i n Congress a s s embl ed th at from and a fte r
th e p ass a g e o f th i s r es ol uti on and du rin g th e exi s ten ce o f a w a r
to wh i ch th e Uni ted S tat es i s n o t a p a rt y a n d i n o rde r to p rev ent
th e neutral i ty o f th e Un i ted S tates from b ei n g v i ol ated b y th e u s e
o f i ts te rr itor y
i t s ports o r i ts t errit o ri al w ate rs a s th e b a s e o f
O pe ratio n s fo r th e a rm ed forc e s o f a bel l i gerent contra ry to th e
o bl i gati on s i mpos ed by th e law o f n ation s th e t reati e s to wh i ch th e
Unit ed S tate s i s a p a rt y o r contra ry to th e statutes o f th e Un ited
S tates th e P res ident b e and h e i s h e reby authori z ed and empowered
t o di rect th e coll ec to rs o f cu stom s u nder th e j u ri sdi cti on o f th e
Uni ted S tates to w ithhold cle a ra n c e fr o m any ve s s el o f Ame ri can
o r f o rei gn r egi stry o r l i c ense wh i ch h e h as rea son abl e cause t o
b el i ev e t o b e about to ca rr y fu el a rm s ammun iti on m en or s uppl i e s
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TH E P RO T E CT I O N O F N E UTR AL RIGH T S A T
w a rsh ip ,
S EA
61
o r supply s hi ps o f a belligere n t n ation i n
ten
d
e
r
y
V i olat i on o f th e o b l i g at i ons o f th e United S tates as a n eu t ral n a t i on
I n cas e any s u c h vessel o f American regi ste r o r l ice n s e sh all
depa rt o r attempt t o depa rt from th e j urisdicti o n o f the U n i t ed S t a t es
with o ut cl ea rance for any o f th e purpos es the own er o r ma ster o r
p e rson o r p e rs ons h aving cha r g e o r command o f such v es s el shal l
s eve ral l y b e l i a b l e to a fin e o f n o t les s tha n
no r m o re th an
o r to i mp ri sonm e n t n o t to exceed two
ea
rs
or
bo
t
h
and
i
n
;
y
a ddi tio n s uch ves s els sh al l b e f o r fe i ted t o th e United S tates
That th e Pres i dent o f the Un ited States he a n d h e i s h ereby
a uthori z ed and empowered to empl o y such pa rt o f th e la n d o r naval
fo rc es o f th e Uni ted S tates a s sh al l b e neces s a ry to ca rr y out t h e
pu rp o ses o f th i s r esolution
Th at th e p rov i s ion s o f th is re s olution shal l b e deemed to extend t o
a l l l ands a n d wate r continental o r insula r w ithi n th e j u ri sdi cti on
o f th e Un i ted S tates
T
h
e
N
e
w Yo r k Ti m es M ar c h 4
(
to an
or
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,
,
A m e r i c an n o t e M a r c h 5 1 9 1 5 , i n qu i r i n g h o w th e
r e s t r ai n t u o n s e a-b o r n e c o m m e r c e w i t h Ge r m an
i
s
e
t
o
b
p
y
is
ef
fe c t e d
No 3 0
.
.
,
,
0
.
Th e S e c r e tar y
fS tate to th e A m e r i c an A m bass ad or at L o nd o n
I n rega rd t o the recent commu n i ca t i on s re c eived fr o m th e B ri t i sh
and Fr ench Gove rnm e n ts c on cer n ing res t rai n t s up on c o mm erc e w i t h
Ge rmany pleas e comm uni cate w ith th e B riti sh forei g n o ffi ce in th e
s ens e f o l lowi n g :
T he di fficulty o f d etermi n in g a ction upon th e B riti sh and French
d ecla rations o f i ntended retal i ation upo n comm erce wi th Germa n y
l i e s i n the natu r e o f th e p ropos ed m ea s u res in the i r r elati o n to
comm erc e by n eutral s
W h i l e i t appea r s th at the intentio n i s to i nter fere w ith and tak e
i nto custo d y a l l S h ip s b o th outg o i n g and i n comi n g t radi n g w ith
Germ any wh i ch i s i n e ffect a bl o ckade o f Ge rman po rts th e rul e
th at a s h ip attempting t o ente r o r leav e a Ge rm an p o rt
o f bl o ckad e
r e g a rdle s s o f th e ch a ra cter o f its ca r go m ay b e condem n ed i s n o t
a s s erted
Th e lan g u age o f th e d ecl aration i s th e B riti s h and French G o v
there fo re hol d t h ems elves fre e t o detai n a n d t ake
e r n m e n ts w i l l
i n to po rt sh ip s ca rryin g g o o d s o f p resum ed en emy d es t i nati on
own e rshi p o r ori gi n I t i s n o t i n tended t o co n fiscate s uch vess el s
”
o r c a rg o es un l es s the y would othe rwi s e be l iable t o condem n ati on
Th e fi rst s enten c e claims a ri gh t p ertai n i n g o n ly t o a s tate o f
Th e la st s ente n c e p rop os es a t reatme n t o f shi p s a n d
b loc k a d e
ca rgoes a s i f no bloc k ade exi sted The tw o toge th er p re se n t a p r o
p os ed cou rs e o f action p revi o usly u n known t o i n te r n a t i on a l law
A s a cons e q uen c e n eutral s h ave no standa rd by wh i ch t o m ea su re
th ei r ri gh ts o r t o avoi d da n g er to th ei r sh ip s a n d ca rgoes Th e
p a ra d oxi ca l s ituat ion thus c re ated sh o uld b e cha n ged a n d the d e
ough t to a s s ert wh e t h er th ey rely up on the rul es
c l ar i n g powers
ov
e
rnin
a
bloc
k
ade
r th e rul es appl icabl e wh en n o blockade exi s t s
o
g
g
Th e de cl a rati o n p res e n ts o th er pe rpl exi ti es
T h e last s e n te n c e quoted i n di cates th at th e rul es o f c on t raba n d a re
The rul e c o ve ri n g non c ont r a ba n d
to b e appli ed to c a rgoes detained
S ee N
8
o
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“
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‘
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o
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2
.
62
TH E P RO T E CT I O N OF N EU T RA L R I GH T S A T S E A
a rti cl es ca rri ed i n n eut ra l b ottom s i s th at the c a r g oe s s h al l b e
r el eas e d a n d th e s h ip s a ll o w ed t o p roc eed Th i s rul e cannot unde r
th e firs t s entenc e q u o ted b e appl i ed as to d estination W h at th en
i s to be done w ith a ca rgo o f nonc o nt rab and goods deta ined unde r
th e decl a rati on $ Th e s am e q u es tion m ay b e a sk ed a s to con d i tiona l
co n traba n d c a r g o e s
Th e f o reg o ing comm en t s app l y to c a r g o e s d es tine d fo r Ge rm an y
Ca rg o e s com i ng out o f G e rm an po rts p re sent anoth er p ro b l em u nde r
th e term s o f th e d ecla rati o n Und e r th e rul es g o v erni n g enem y
exp o rts only goods own ed b y en em y subj ects i n e nem y b ottom s a r e
subj ect to se i z u re and condemn ati on Y e t by th e d ecl a ration i t i s
pu rpos ed t o s ei z e and tak e i nto po rt a l l g ood s o f en em y o w n ersh ip
”
”
and o ri gi n
Th e word
o ri g i n
i s p a rti cul arl y s ignificant Th e
o ri gi n o f g oods de sti n ed to n eut ral t er rito r y o n n eutra l shi p s i s not
a n d n eve r h a s b e en a g round fo r for fei tu r e e xc ept i n ca s e a b loc k
ade i s de cl ar ed and m a intai n ed W h at th en woul d th e s ei zu re
a m o un t t o i n th e p re s en t cas e exc ep t to del ay th e del iver y o f th e
go o d s $ Th e d ecl a ration d oe s not in d i cate wh at d i s pos i ti on would
b e m ade o f s uch c a r g o e s i f own ed by a n eutral o r i f own ed by a n
enemy subj ect W ou ld a di ffe ren t ru l e b e appl ied ac co r d i n g to
own e rsh ip $ I f s o upon w hat p rin cipl e s o f i nt ernat i ona l law w oul d
it rest $ And upon wh at rul e i f no b loc k ade i s d ecla red a nd m ain
tai n e d c o ul d th e c ar g o o f a n eutral s h ip s ai l in g out o f a G e rm an
port be co n demned $ I f i t i s not cond emne d w h a t othe r l e g a l c ou rs e
i s th e re but t o rel ea s e i t $
Wh i l e thi s Gov ernment i s ful l y ali v e to th e po ss ib i l ity th at th e
m eth o ds o f m odern n aval wa r fa r e p a rti cul arl y i n th e u s e o f the
subma rin e fo r both d e fens iv e and o ffe n si ve o p erati on s m ay m ak e
th e fo rm e r m ean s o f m a inta i nin g a b l o ckad e a ph y s i c al i mp o s si bi li ty
i t feel s th at i t c an b e u rged w i th g r eat fo rc e th a t th ere s h ould b e
”
als o s o m e li m it to th e radi u s o f a ctivi ty a nd e sp eci al l y s o i f th i s
a cti on by th e b ell i ge r ents can b e cons tru ed to b e a b l o ckade I t
would c erta inly c reat e a se ri o us s tate o f a ffai rs i f fo r exampl e an
Am eri c an ves s el l aden w i th a car g o o f Ge rm an o ri gin sh o uld e s cap e
th e B riti sh pat ro l i n Eu rop ean wat ers o nl y to be h el d up by a
cru i se r o ff N ew Y o r k and ta k en into H al i fa x
S im i la r c abl egram sent to Pa ri s
B RYA N
i
D
o
r
2
r
(
5
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B r i ti s h p r o c l am at i o n Mar c h 1 1
No 3 1
if
r e v i s i n g th e l i s t o f c o n tr ab an d o f w ar
W h erea s o n th e tw enty thi rd day o f Dec emb e r
.
.
1
,
,
9 5,
1
on
ce m o r e
.
w e did i s su e
o ur
r o ya l p r o cl amati on sp eci fying th e a rti cl es w h i ch i t wa s o u r
i ntenti o n t o t reat a s c o nt rab and during th e c o ntinu anc e o f h ostil i ti e s
o r u n ti l w e di d giv e fu rthe r pub l i c noti ce
and
W h er eas i t i s exp edi ent to m ak e c erta i n addition s to th e l i s t s c o n
tai n e d i n th e s a id p r o cl amati on :
Now th ere f o r e w e d o h e reby de cl a re by an d w ith the advi c e o f
o u r p rivy c o u n ci l
th at du ri ng th e c on t inu anc e o f th e wa r o r unti l
w e d o gi v e fu rth er publ i c n o ti c e th e f o llow i n g a rti cl es wi l l b e t reated
a s ab s o lute c o ntrab a n d i n add itio n to th os e s e t o u t i n ou r roya l
p r o cl am at i o n a f o rem ention ed :
Raw wo o l wo o l top s and noi l s an d w o oll en and wo rsted y a rn s
S ee N
—
,
1 9 1 4,
,
,
,
,
,
$
,
o
.
1 0.
.
TH E P RO T E CTI O N O F N EUT RA L RI GH T S A T S E A
64
thos e w h o h a v e h ad e x p eri en c e o f i t a t fir s t h an d
M o dern hi s tory a ffo rd s n o p recedent fo r th e s u ffe ri ngs th at h av e b e en
i n fl i cted o n th e d e fens el es s a n d no n combatan t popul ati o n i n th e te r
Even th e food
r i to r y th at h as b ee n i n Ge rm an m il ita ry occup ation
o f th e popu lation w a s confis c at ed unt i l i n B e l g i um an I ntern ationa l
Comm i s sio n l a r g ely i n fl u enced by Am eri can gen e rosity and c o n
ducted und er A me ri can auspi ces cam e to th e r el i e f o f th e popul ati on
and s ecu red from th e Germ an Gov e rnm ent a p r o m i s e t o s p a r e w h at
food w as sti l l l e ft i n th e countr y though th e G erm a n s st i l l conti nu e
to m a k e levi e s i n mon e y upon th e d e fensel es s popul at ion fo r th e
s uppo rt o f th e Germ an a rm y
2 W e h av e from ti m e to t i me rec e iv ed m o s t te r ri b l e a c count s
wh i ch B ri ti sh o ffic er s and s oldi e r s
o f th e b a r b a rou s treatment to
h av e be en exposed a ft er th e y h av e be en taken p ri son er whi le b ein g
c o nve y ed to Ge rm an p ri son c amp s ; o n e o r two i nstanc es h av e al r eady
been g i ve n to th e Un ited S tates G ove rnm en t fo und ed upon auth enti c
and fir st h and evid enc e wh i ch i s be y ond doubt S om e ev i d enc e h a s
b een rece ived o f th e h a rd s h ip s to wh ich B ri ti sh p ri son e rs o f wa r
a re s ubj ected i n th e p ri s on c amp s contra stin g we b el i ev e m o s t
un fa v orably w ith th e treatm ent o f Ge rm an p ri sone r s i n th i s coun
try W e have p ropo s ed w ith th e con s en t o f th e Un ited S tates Go v
fice rs s h ou ld b e p e r
e r n m e n t that a comm i s s ion o f Uni ted S tate s o f
m i tte d i n e ach count r y to i nsp ect th e t r eat m ent o f p ri soners o f w a r
Th e Un i ted S tates Governm ent h av e b een una b l e to obta in an y rep l y
from th e Germa n Governm ent to th i s p r Op o s al and we rem ai n i n
c o ntinu in g anxi ety and app rehen s i on a s to th e t re atm ent o f B ri ti s h
p ri soner s o f w a r i n G erm an y
3 A t th e ve r y outs et o f th e w a r a Germ an m in e l a y e r was d i s
cove red l a y ing a m in e fi el d o n th e h i gh s ea s F u rthe r m i n e fields
h av e b e en la id from t i m e to t im e w ithou t w a rni n g and s o fa r a s
w e know a r e s ti ll b ei n g l a id o n th e hi gh s ea s and m an y n eutral a s
wel l as B ri ti sh v essel s h av e be en sun k by th em
4 A t va rious t im es du ring th e w a r Germ an s u b ma ri n e s h av e
stopped and s un k B riti sh m erch ant ve s s el s thu s m akin g th e s ink i n g
o f m e rch ant ve s s el s a gen era l p ra ct ice
th ough i t wa s adm i tted p re
v i o u s l y i f at al l
o n ly a s an exception th e gen e ra l rul e to wh i ch th e
B ri ti sh Gov er n m e n t h av e adh ered b ei n g th at m erch an t v es s el s i f
captu red mus t b e ta k e n b e fo re a p ri z e cou rt I n o n e ca s e a l read y
q u o ted i n a note to th e U n i ted Stat es Gov e rnm en t a n eutral v e s s el
ca rrying foodstu ffs to a n u n fo r ti fie d tow n i n G reat B rita i n h a s b e en
sunk Anoth e r ca s e i s n o w r eported i n wh i ch a G erm an a rmed
c ruis er h a s sun k an A m e r i can v es s el th e Wi l l i am P F r y e c a r ry in g
a ca rgo o f wh ea t from S eattl e to $ ueen stown I n b oth c as e s th e
ca rg o es w ere p re s umably d esti ne d fo r th e c ivi l popu l ati on Ev en
th e c argoes i n such ci rcum stan ce s shou l d n o t h av e b een cond emn ed
w i thout th e de ci s i o n o f a p r i z e c o u rt mu ch l es s s hould th e v es s el s
h a ve b e en s un k I t i s to be noted th at both th es e c as e s o ccu rr ed
be fo re th e d etention by th e B ri ti sh auth oriti e s o f th e Wi l h e l mi n a
and h e r c a rg o o f food stu ffs wh i ch th e Germ an Gov ernm ent a l l ege
i s th e j us tificati on f o r th ei r o w n a ction The G e rm an s h ave an
n o u n c e d th ei r int enti o n o f s in k ing B ri ti sh m erch ant ve s s el s b
tor
y
p edo w i thout noti c e and w ith out any p r o v i s i on fo r th e s a fety o f th e
c rew Th ey h av e al re ady ca rri ed ou t th i s i ntent ion in th e c a s e o f
neut ra l a s wel l a s o f B ri ti sh v ess el s and a num b e r o f noncom b atant
e r n m e n ts
an d
by
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,
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—
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TH E P ROT ECT I O N O F N EUT RAL RI GH T S A T S EA
65
and i n nocent l i v es o n B ritish ves sel s u n a rm ed a n d de fe n sel ess h ave
be en dest r o yed i n th i s w ay
5 U n fo r ti fie d O pen and de fe n sele ss tow n s s uch as S ca rbor o ugh
Y a rmouth and Wh i tby h ave be en deli berately a n d wa nto nly b o m
ba rded by G erm an ship s o f wa r caus i n g i n s o m e cas es co n s iderabl e
los s o f c i vi l ian li fe i ncluding women a n d chi ldre n
6 Ge rman ai rc ra ft h av e d r o pped b o mbs o n the ea s t coa s t o f E n g
l an d wh e r e the r e we re no m i li ta ry o r s trategic poi n t s to b e attack ed
O n th e oth e r h and I am awa re o f but t w o cri ti ci sm s th at hav e bee n
m ade on B ri ti s h acti on i n al l th es e respects : ( 1 ) I t i s s a id that th e
B ri tish nava l authori ties al s o h ave la id s o me anch o red m i n es on
th e hi g h s eas Th ey h av e d on e so but th e mi n es were ancho red and
S o construct ed tha t th ey w o uld b e h arml ess i f th ey went adri ft a n d
no m ine s wh at eve r w e re l ai d by th e B ri t is h nava l autho riti es til l
m any weeks a fte r th e Germa n s h ad made a regula r p rac t i c e o f layi n g
2
m i n es o n th e hi gh s eas
I
t
i
s
s
a
id
th
at
the
B
ri
ti
sh
Gover
n
m
e
n
t
( )
h av e d epa rted fr o m th e Vi ew o f i nte r n a ti o n al l aw wh i ch th ey h ad
p rev iously m aintained that f oo dstu ffs desti n ed fo r th e c ivi l popul ation
should neve r b e i n ter fered w i th th i s cha rge b ei n g f o u n d ed o n th e
s ubmi s si on to a p riz e court o f th e carg o o f th e Wi l h e l m i n a The
sp ec i a l cons id erati on s a ffectin g th i s ca rgo h av e al ready been p re
s ented i n a m em o randum to th e Un ited S tates Government a n d
I need n o t repeat them h ere I na s much as th e s toppage o f a ll fo o d
stu ffs i s an admi tted c o ns equ enc e o f bl o ckade i t i s obv iou s that there
c an b e no un iv ers al rul e bas ed on c on s i derations o f mo ral i ty a n d
h umani ty wh i ch i s c o ntrary to th i s p racti c e Th e righ t to s top food
stu ffs de sti n ed f o r th e ci vi l population must the re for e i n an y case be
”
adm i tted i f an e ffective cord o n co n tr o l li n g intercours e w i th th e
enemy i s drawn an n ounc ed and mai ntained Mo reov er i n d e p e n d
e ntly o f ri gh ts a ri s i n g fr o m b el l igere n t a cti o n i n th e nature o f
b l o ckade s om e oth er nati o ns di fferi n g fr o m th e O pi ni on o f th e Gov
S tates and G rea t B ri tai n h av e h eld th at
e r n m e n ts o f th e United
to stop th e food o f th e c i v il popul ati o n i s a natu ral and legitimate
m ethod o f b ri n gi n g p res su r e to bea r o n an e n emy c o untry a s i t i s
up o n th e de fens e o f a b es i eged town I t i s a lso uph eld on th e au
th o r i ty o f both P ri nce B i sma rc k and C o unt Capri vi and th ere f o re
p resum ably i s n o t repu g nant to German moral it y Th e f o l l o wi n g
a r e th e quotations from P ri nc e B i sma rck and Count Capri vi o n th i s
p o int P ri nc e B ism a rc k i n answeri n g i n 1 88 5 an appl ication fr o m
the K i el Ch ambe r o f Comm e rc e fo r a statement o f th e vi ew o f th e
Germ an Government o n th e q uesti on o f the right to declare a s c o n
t rabaud food s tu ffs th at we re n o t intended f o r m i l ita ry f o rces sa id :
I reply to th e ch ambe r o f comm erc e th at any di sadvantage o u r
c o mm erci a l and ca rryi n g i n tere s t s m ay s u ffer b y th e treatme n t o f
ri ce a s co n traband o f wa r d o es not j uS ti fy o u r oppo s ing a measu re
wh i ch i t h a s b een thought fi t to tak e i n ca rryi n g o n a foreig n wa r
Eve ry wa r i s a cal ami t y wh i c h en t a il s evi l co ns equences no t on ly
Thes e ev il s may eas i ly b e
o n th e c o m b atants bu t al so on neutral s
inc rea sed by th e inte r fere n c e o f a n eutral p o we r wi t h th e way i n
wh i ch a th i rd ca rri es o n th e wa r to th e di sadva n tage o f t he subj ec t s
o f th e inter fering powe r and by th i s m ean s Germa n commerc e mi gh t
b e w eighted w i th fa r h eavi e r l o sses th an a t ra n sito ry p roh ibi t i on o f
th e ri c e trad e i n Chi n e s e waters Th e m easu r e i n ques t i on has f o r
i ts obj ect th e sho rten i n g o f th e wa r by inc rea s i n g the di fficult i es o f
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TH E P ROT E CT I ON OF NEU T RA L R I GH T S AT S E A
66
th e en em y and i s a j ust ifi a b l e s tep i n w a r i f i mpa rti al l y en fo r c e d
”
agai nst al l neutral shi ps
Count Cap riv i dur in g a di s cu ss i on i n th e
Germ an Rei chs tag o n th e 4th o f M a rch 1 89 2 o n th e s ubj e ct o f th e
i mpo rta n ce o f i n te rnat iona l p rote ction fo r pr i vat e p rope rt y a t se a
m ad e th e fol l o w in g s tatem ents :
A countr y m ay b e d ep endent fo r
h e r f o od o r fo r h er raw product s upon h er t rad e I n fact i t m ay b e
”
abs o lutely n ec es s a ry to dest r o y th e en em y s tra d e
Th e p ri
v at e int r o ducti o n o f p rovi s ions i n to P a ri s w a s p roh i b ited du rin g th e
s i ege a n d i n th e s am e w ay a n at ion woul d b e j u s ti fied i n p rev entin g
”
th e import o f food and ra w p roduc e
T h e Gove rnm ent o f Great
B ritai n h av e fra n kly d ecl a red i n con ce rt w ith th e Gove rnm ent o f
Franc e th ei r i nte n tion to m eet th e Germ an a tt empt to s top al l
suppl i e s o f eve ry k i nd from l eaving o r ente r in g B ri ti s h o r F r ench
p o rts by th em s el ve s stoppi n g suppl i e s g o i n g to o r from G erma n y
fo r th i s end Th e B riti s h fl eet h a s i nstitu ted a bloc k ad e e ffecti v el y
”
c o ntrol l in g by c rui s e r cordon a l l pa s s a g e to and from G erman y
by s e a The di ffer enc e b et w ee n th e two pol i ci es i s h ow ev er th a t
wh i l e o u r obj ect i s th e s am e as th at o f G erm an y w e p ropos e to
attai n i t wi th out sa c rifi ci n g n eut ral sh ip s o r n oncombatant l i ve s o r
i nfl i cting upon n eutral s th e dam a g e th at m u st b e entai led wh en a
v ess el a n d it s ca rgo a r e s un k w i thout noti c e e x am i n ati o n o r t ri a l
I mus t emph as i z e agai n th at th i s m ea s u re i s a n atu ra l and n e c e ss a r y
co n s eque n ce o f th e unp reced ented m eth o d s r epugn a n t to a l l l aw and
m o ral ity wh i ch h av e be en d es cr ibed abov e wh i ch G ermany b egan
t o ad o pt at th e v ery outs et o f th e w a r an d th e e ffects o f wh i ch h ave
be en con stantly a ccumul atin g
( Di p C o r r 64
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.
B r i t i s h n o t e , M ar c h 1 5 , 1 9 1 5 r e p l y i n g t o th e A m e r i
c an i n qu i r y ab o u t th e r e s t r a i n t o n s e a -b o r n e c o m m e r c e w i th
Ge r m an y ( No
No 3 3
.
.
,
.
Th e S e c r e tar y
b ass ado r
o
f S tate
f
or
F o r e ig n A f
fai r s to th e A m e r i c an A m
.
’
H i s Maj esty s Gove rnm en t h av e h ad und er c a re ful co n si d e ra
t ion th e inqui ri es wh i ch under i n st ru ct ion s from you r Go v er n m ent
Y ou r Excell ency addre s s ed t o m e o n th e ei ghth in stant r ega rdi n g
th e s c o p e and mod e o f appl i cati on o f the m eas u re s fo resh adowe d i n
th e B ri ti sh and Fr e n ch d ecl a rations o f th e fi rs t o f M a rch f o r r e
s tr i c ti n g
th e t rade o f Germ any Y ou r Excel l en cy expl a i n ed and
i llustr ated by re fe re n c e to c ertai n cont in g enc i e s th e d i fli c u l ty o f th e
U n i ted Stat es G o vernm ent i n ad o ptin g a defi n i te a tti tude towa rd
th es e m easu res by reason o f u ncerta int y r e g ar d in g th ei r b ea ri n g
upon th e comm e rce o f neutral count ri es
2
I can at o nc e as su re Y ou r E xc el len c y th a t s ubj ect to th e para
mount n eces s ity o f re s tri cti n g German t rade H i s M aj es ty s Gov ern
me n t h ave m ade i t th ei r fi rs t ai m to m in im i z e i n c o nv eni enc e to
n eutral comm erc e F rom th e a ccompanyi n g copy o f th e o rde r i n
counci l wh i ch i s to b e publ i sh e d t o day y o u w i l l o b serve th at a
w ide di s c reti on i s a fforded to th e p r i z e C ou rt in deal in g w ith the
t rade o f n eutral s i n such m an n er a s m ay i n th e ci rcum stan ces b e
d eem ed j us t and th at ful l p rovi s ion i s m ade t o fa ci l itat e C la im s b y
p e rs o ns i n teres t ed i n any go o ds pl aced i n th e cu stody o f th e m a rs hal
o f th e p ri z e c o urt unde r th e o rder
I app reh end th at th e p erplexi ti es
t o wh ich Y o u r Excel l ency re fer s w i l l fo r th e most pa rt b e di ss ip ated
1
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TH E P RO TECTI O N O F N EUT RAL RI GH T S A T S EA
67
by
th e p eru s al o f th i s docume n t and tha t i t i s only neces sary fo r
m e to add c erta in explana t ory obs ervatio n s
3 Th e e ffect o f the o rder i n cou n ci l i s t o co n fer ce rtai n p o wers
up o n th e executiv e o ffic ers o f H i s M a j es t y s G o ver n me nt Th e ex
te n t to wh i ch th os e p o wer s wi ll be actual ly exerci s ed a n d t h e degree
o f s eve ri ty w i t h wh ich th e m easu res
o f bl o ckade a u t h o ri z ed wi ll
b e pu t i nto operati o n are matte rs wh i ch w il l depe n d o n t he admi n
i s tr ati v e o rd ers i ss ued by the G o ver n m ent a n d th e dec i si on s o f th e
a uth o ri ti es sp eci ally cha rged w ith th e duty o f d ea li n g w ith i n divi du a l
sh ips a n d ca rg o es according to the m eri t s o f ea ch cas e Th e U n i t ed
S tates Gover n me n t m ay rest assured that th e i nstructi on s t o be
i ssued by H i s Maj esty s G o vern ment t o th e fl eet and to th e cust o ms
o ffi c i al s and executive comm i t tees c o nce r n ed w i l l i mp res s up on t hem
th e duty o f acting wi th th e utmost d espatch co n si ste n t wi t h t h e
obj ec t i n Vi ew and o f sh o wi n g i n every cas e such c o ns ider a ti on f o r
n eutra l s a s m ay be c o mpatible with t h at o bj ect wh i ch i s succi n c t l y
stated to e stabl i sh a blockade to p revent v es s el s from ca rryi n g g oo ds
fo r o r com i n g fr o m G erm any
4 H i s Maj esty s Government h av e fel t mo s t rel uctant at th e m o
me n t o f i ni ti ati n g a p o li cy o f b l o ckade t o exact from neut r a l sh i ps
a l l th e pe n alti es attach i n g to a b reach o f bl o ckad e I n th ei r des i re
to a llevi ate th e burd e n wh i ch th e exi stenc e o f a s tat e o f wa r at s e a
mus t i n evitably imp o s e o n n eutral s e a b o r n e comm erce th ey decl a r e
the i r i n tention t o r e frai n a ltogeth er fr o m th e exerc is e o f th e right
to c o nfis cate shi p s o r cargoes wh i ch b elli gere n ts hav e a lways cla im ed
i n respec t o f b rea ch es o f bl o ckade Th ey restri ct th ei r clai m to th e
s t o ppi ng o f c a rgo es destined fo r o r com ing from th e e n emy s terri
tory
f
re
a
r
d
s
cotto
n
ful
l
parti
cul
a
rs
th
e
a
rra
n
gem
ents
contem
o
A
s
g
5
p l ated h av e al r e ad v b ee n expl ained I t w i l l b e a dm itted th at eve ry
p oss ib le rega rd h a s b een ha d to th e l egiti mate i n terests o f th e
A m eri can cotton t rade
6 Fi n a lly i n reply to th e p enulti mat e pa ragraph o f Y o u r Excel
l e n c y s n o te I h ave th e h ono r t o s ta te th at i t i s no t i nt e n ded to
inter fe r e wi th n eutral v es sel s c arryi n g e n emy ca rg o o f n o n c o n tr a
b and n atu re outsid e Eu r o pean wate rs i ncluding th e Me d ite rra n ea n
rr
D
i
C
o
( p
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-
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’
,
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.
B r i ti s h o r d e r i n c o u n ci l M ar c h
f
a
b o r n e c o m m e r c e w i t h Ge r m an y
o
se
No 3 4
.
,
.
1
5,
1
9 1 5 , in
r e s t r ai n t
.
W h ereas th e German Governm e n t h as i s sue d c erta i n o rders whi ch
'
,
i n v iolation o f th e us ages o f wa r purport to decl are th e w a ters s u r
roundi n g th e U n i ted K i ngdom a mil ita ry a rea i n whi ch al l B ri tish
an d al l i e d m e rch a n t vess el s wi l l b e destr o yed i rrespec t i ve o f th e
s a fety o f th e l ives o f pass e n ge rs a n d c rew and i n whi ch n eut ra l
sh ippin g w i l l b e exp o sed to sim i lar dan g e r i n V i ew o f th e un c e r
tai n ti e s o f n ava l wa r fa re ; and
W hereas i n a m emo ra n dum accompa n ying th e said o rders n eut r a l s
a re w arn ed a g ainst entrusting c rews passe n g ers o r g o ods to B ri t i sh
o r al l i ed s h ip s ;
W h erea s s uch attempt s on th e pa rt o f the enem y g i ve t o H i s
Maj esty an u n qu e gti o n ab l e righ t o f retal iati on ;
A n d wh e rea s H i s Maj esty h as th e re for e dec id ed to ad o pt fu rth e r
n y ki nd fr o m r e ac h
f
a
e
o
s
o
a
s
d
r
n
m
d
i
t
i
m
e
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n
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o r er t
me ur e s
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O F N E U T R A L RI GH T S A T S E A
TH E P RO TE C TI O N
68
i ng o r l eav ing G erm any though s u ch m ea su res w i l l b e en fo rc e d
w i thout ri sk to n eutral s hip s o r to ne utral o r non comb atant l i fe a n d
i n stri c t obs ervanc e o f t he d i ctat es o f h um ani ty ;
A n d wh ereas th e all i e s o f H i s M aj es ty a r e a s soc i ate d w i th h im i n
th e step s now to b e announc ed fo r r estri cting furth er th e comm erc e
o f Ge rmany ;
H i s M aj es ty i s th ere fo r e pl ease d by an d w i th th e a d vi c e o f h i s
p ri vy coun ci l to o rde r and i t i s h e reby o rde red as fo llow s :
I No m erchant v ess els ( s i c ) w h i ch s a i l ed from h er port o f d e
1 9 1 5 s h al l b e al lowed to p roc ee d o n h e r
a
rtu
re
a
fte
r
the
fi
rs
t
M
a
rch
p
voya ge to any Germ an p ort
Unl es s th e v es s el receiv es a p a s s enabl ing h e r to p ro cee d to s om e
n eut ral o r a ll i ed po rt to be n am ed i n the p a s s goods o n board a ny
s uch v es s e l mus t b e di s ch a rged i n a B riti s h po rt and p l ac e d i n th e
cu stody o f th e m a rsh al o f th e p ri z e cou rt Goods so di s ch a rged
not b eing contrab and o f wa r sh al l i f not re q ui s i tioned fo r th e
u s e o f H i s M aj esty b e re sto r ed by o rd er o f th e court upon su ch
te rms a s th e cou rt m ay i n th e c i r cum stances d e em to b e j us t to th e
p erson ent i tl ed th ereto
2
No m er ch ant v es s el wh i ch s ai l e d from any G erm a n po rt a fte r
th e fi rs t Ma rch 1 9 1 5 sh a l l b e a l low ed to p ro cee d o n h e r v oyage
w i th any good s on boa rd l ad en a t s uch p o rt
A ll goods l aden at s u ch po rt m u st b e d is ch a rge d i n a B r i ti sh o r
al li ed port Good s so d i s cha rge d i n a B ri ti sh po rt s h al l b e p lac ed
i n th e custody o f th e m a rsh a l o f th e p r i z e cou rt and i f not r e q ui s i
ti o n e d fo r th e u se o f H i s M aj esty s h a l l b e deta i ned o r s ol d unde r
the di r ection o f th e p r i z e cou rt Th e p roc eed s o f goods s o sol d
s h al l b e p ai d i nto cou rt an d d ea lt w ith i n s uch m ann er a s th e cou rt
m ay in th e ci rcum stan c es d eem to b e j us t
P rovided th at no p ro ceed s o f th e s al e o f s u ch goo d s s h al l b e p ai d
o u t o f cou rt u nti l the concl u si on o f p eac e
excep t on th e appl i cation
o f the p roper o ffi c er o f th e C rown unl es s i t b e sh own th at th e goo d s
h ad b ecom e n eutral p rop erty b e fo re th e i s su e o f th i s o rde r
P rovi ded al s o th at noth ing h e rei n s h al l p r ev ent the rel eas e o f
n eut ra l p rop erty laden a t s uch enemy port o n th e app li cati on o f th e
p rope r o ffic er o f th e Crown
3 Every m erch ant v es s el wh i ch s ai l e d from h e r port o f depa rtu r e
a fte r th e fi rst o f M a rch 1 9 1 5 on h er w ay to a port oth er th an a
Ge rman port carrying goods W i th an enemy desti nati on o r wh i ch
a re en emy p rop e rty m ay b e re q u i red to di s ch a rge s uch goo d s i n a
B riti sh o r al l i ed port A n y goods s o d i s ch a r ged i n a B ri ti sh po rt
s hal l b e pla ced i n th e custody o f th e m arsh al o f th e p ri z e court and ,
unles s th ey a re contraband o f wa r s h al l i f n o t requi s i ti oned fo r
th e u s e o f H i s M aj es ty b e restore d by o rder o f th e court upon
s u ch term s a s th e cou rt m ay i n th e ci rcum stance s deem to b e j us t
t o th e p erson enti tled the reto
P rovi d ed th at th i s a rti cl e sh al l not app ly i n any cas e fa l li n g w ith i n
a rti cl es 2 o r 4 o f th i s o rd er
4 Every m erch ant ve s se l wh i ch s ai l e d from a po rt oth e r th an
a Germ an port a fter th e fi rs t o f Ma rch 1 9 1 5 h avi ng on boa rd
good s wh i ch a r e o f en emy o rigi n o r a re en emy p r o pe rty m ay b e
r equ i red to di s ch a rge su ch goods in a B ri ti s h o r a l l i ed port Goods
s o di sch arged i n a B ri ti sh port sh a l l b e p la ced i n th e cu stody o f the
m arsh al o f th e p ri z e court and i f n o t requ i s i ti oned fo r th e u s e o f
H i s Maj esty s h al l b e detai ne d o r sold under th e di rection o f th e
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TH E P RO TE C TI O N
O F N E U T RA L RI GHT S A T S EA
69
p riz e court Th e p rocee d s o f goods so sold shal l b e paid into court
a nd d ea lt w 1 th l n s uch m anne r a s th e court may i n th e ci rcumstanc es
deem to b e j u st
P rovid ed that no p roceeds o f sal e o f such goods shal l b e paid
o u t o f court unti l the conclus ion o f peac e excep t on the appl i ca t ion
o f th e p rop er o f
fi cer o f th e Crown unl es s i t be shown that t h e goods
h ad b ecome n eutra l p roperty b e fo re t h e i ssu e o f th i s o rder
P rov ided a lso th at noth ing herei n shal l p revent the rel ea s e o f
n eutra l p rop erty o f enemy ori gi n o n th e application o f th e p rop er
offi cer o f th e Crown
A
n y p erson cla imi ng to b e i nte rested in
o r to h av e any clai m
5
i n respe ct o f any goods ( not being contraband o f wa r ) plac ed i n
th e cus tody o f th e m a rsha l o f the pri z e court under thi s o rde r o r
i n th e p roc eed s o f such goods m ay forthwith i ssu e a w ri t i n th e
p ri z e court aga inst th e p rop er o ffi cer o f th e Crown and apply fo r an
orde r tha t th e goods s hould b e res tored to h i m o r th at th ei r p roc eeds
shoul d b e p aid to hi m o r fo r such othe r orde r a s th e ci rcums t ances
o f th e ca s e m ay requ i re
Th e p ra cti c e and p rocedure o f th e pri z e cou rt s h all s o fa r a s
app l ic ab l e b e fol lowed m u tati s m u tan di s i n any p roceedings c o n se
n
u
e
t
i
l
upon
thi
s
o
rder
a
q
6 A m erch ant ves se l whi ch h as cl eare d fo r a n eutral port from
a B ri tish o r al li ed port o r whi ch ha s been allowed to pass h aving
an ostens ibl e d estination to a neutral port and p roceeds t o an enemy
port sh al l i f captured o n any s ubs e q uent v oyage b e l i abl e to con
.
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,
,
,
,
,
d e m n ati o n
,
.
oth
ing
i
n
th
i
s
o
r
d
e
r
sh
al
l
be
d
eem
ed
to
a
f
fect
th
e
l
iab
i
lity
N
7
.
f
of
o
any ves sel o r goods to captu re o r condemnation i ndep endently
th i s orde r
8 Noth ing i n th i s ord er sh al l prevent th e r el axati on o f th e prov i
s ion s o f th i s o rd er i n respect o f th e m erchant v es sel s o f any coun t ry
wh i ch d e cla r es that no comm erce intended fo r o r o ri ginating i n Ge r
m any o r b elonging to G erm any ( s i c ) subj ects sha ll enj oy th e p ro
te c ti o n o f i ts fl ag
rr
C
a
D
i
( p
.
.
.
.
.
No 3 5
.
.
B r i ti s h
o r d er
in
c o u n c i l M ar c h
,
23, 1
9 5
1
,
au th o
r iz i ng
t h e r e qu i s i t i o n o f n e u t r a l s h i p s fi
“
W h erea s b y s ecti on
1
8
th
e
pri
z
e
cou
rts
a
ct
H
i
s
Maj
esty
4
9
3
i n Counci l i s au t ho ri zed to m ake rul es o f court for regulating s u b
1 864 and t h e sa d a c t
to
th
e
p
rov
i
s
ions
o
f
th
e
naval
p
ri
z
e
act
e
t
c
j
i
the p roc edu re and p ractic e o f p ri z e courts wi t h in th e mean i ng o f
th e naval p ri z e ac t 1 8 64 and th e duties and conduc t o f th e o ffic ers
and fo r r egulating t h e
o f th e cou rts and o f th e p ractitioners th erein
fees to be taken by th e o fficers th ereo f and the cos ts cha rges and
expens es to b e al lowed to th e p racti tion ers th erei n :
A n d wh ereas i n pu rsuance o f th e p r i ze courts act 1 8 9 4 c erta i n
rul es w e re mad e by th e orde r o f H i s M aj esty i n Counci l d ated t h e
o f H i s Ma j
day
o
f
ugu
st
and
am
ended
by
th
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e sty i n Counci l o f th e 3 o th day o f S ep t embe r 1 9 1 4 and th e 28 th
day o f Novemb e r 1 9 1 4 resp ecti vely wh i ch s ai d rules and amended
rul e s w e re by th e s a id orders i n counc i l d 1 r e c te d to tak e e ffe ct
’
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TH E
0
7
P RO T E CT I O N O F N EU T RA L R I GH T S A T S E A
Rule s P ub l i cati on A c t 1 89 3 fr o m th e d ate s o f th e s a i d O r d ers i n
Counci l resp ectively :
A n d whe reas th e p rovi s ion s o f s ection I o f th e rul es publ i cation
w e re duly compl i ed with in r esp ec t o f th e s ai d ru l es and
1 89 3
ac t
am ended rul es and th e s am e we r e fin al l y m ad e by th e o rd er s o f H i s
M aj esty i n Counci l dated r esp ecti ve ly th e 1 7 th day o f S eptemb er
1 9 1 4 and th e 3 d d ay o f Feb rua ry
1 9 1 4 th e 28 th day o f Nov emb e r
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s
And
I9I
wh ereas i t i s exp edi ent th at th e s ai d rul es an d am ende d rul e s
s houl d b e fu rth er amend ed
A n d wh e rea s o n a c count o f u rgenc y th i s or d er shoul d com e i nto
i mm edi at e op e ration
N o w th e r e f o r e H i s M aj esty by v i rtu e o f th e pow ers i n th i s
beh al f by the sai d a ct o r oth e rw i s e i n h i m ve sted i s p le a sed by and
w i th th e advi c e o f hi s p ri vy counc i l to o rde r and i t i s h er eby
o rdered a s fol low s :
I That i n O rd er I X ( di s covery i n sp ecti on an d a d m i s s i on o f d oc u
m ents an d fa cts ) o f th e s ai d rul es
I n rul e I th e wo rds upon fil ing an a ffi d avi t sh al l b e omitted
”
I n rule 1 ins tead o f th e words any oth e r p a rty the r e sh al l
b e substi tuted th e wo r d s any p a rty o th e r th an th e p rop e r
”
o ffi c er o f the C rown
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in O r d e r X I ( s a l e app rai s em ent s a fe cus to d y an d i n sp e c
tion o f p ri z e ) o f th e s a i d ru l es i n rul e I th e fol low ing Wo rds sh al l
b e om itted : o n a ccoun t o f the condi t i on o f a s h ip o r o n appl i c ati on
”
o f a cl a i mant
and o n o r a fter condemnati on
T
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hat
O
rd
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X
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ing
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th
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(
3
)
followi ng rul e sh al l b e added :
21
Notwith standi ng anyth ing conta in e d i n the s e ru l e s th e p rope r
o ffic er o f th e Crown m ay apply to th e j udge for l e ave to admi ni st e r
i nte r rogatori es for th e exam i nation o f any p ers on wh eth er a pa rty
”
to th e c au s e o r not
4 That O rde r X X I X ( re q ui s i ti on b y a d m i ral ty ) o f th e s aid rul es
a s amended by H i s Maj esty s O rde r i n Counci l d ated th e 28 th d ay
o f Novemb er
1 9 1 4 sh al l b e and th e s a m e i s h ereby
revo k ed and i n
li eu the reo f th e fol low ing o rd er s h al l h av e e ffect :
2
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Th at
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O RDE R
,
R E $ U I S I TI O N
xx rx
I W h ere it i s m ade to app ear to th e j u d ge o n th e appl i cation
o f th e p rop er offi c er o f th e C rown th at i t i s des i re d to r equ i si tion
o n beha l f o f H i s M aj esty a sh ip i n re sp ect o f wh i ch no final dec re e
o f condemnation h as b een made
h e sh al l o rde r th at th e s h i p sh al l
b e app ra i s ed and th at upon a n und ertak ing b e ing gi v en i n a cco rd anc e
w i th rul e 5 o f th i s o rde r th e shi p sh a ll b e r el ease d a n d d el i v ered
to th e Crown
2
W h ere a d e cr ee fo r th e d etention o f a sh i p ha s b ee n m a d e
i n accordance w ith O rder X X V I I I th e p rope r o ffi ce r o f th e Cro wn
m ay fil e a noti c e ( A pp en d i x A Fo rm No 5 5 ) that th e C rown
desi res to requi s i tion th e s am e an d th e reupon a comm i s s ion ( A pp en
di x A Fo rm No 5 6 ) to th e m a rsh a l d i re cting hi m to app ra i s e th e
sh ip shal l i s su e Upon an unde rta k i ng be in g gi ven i n a c cordan ce
w i th rul e 5 o f th i s o rd er th e sh i p s h al l b e rel ea sed and d el i vered
to th e Cr own S er vi ce o f th i s noti c e sh al l not be r e qu i r ed b efo r e
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T H E P RO TE C TI O N OF N EU T RA L RI G H TS AT S E A
72
A m e r i c an n o te M ar c h 3 0
No 3 6
v i o l at i o n o f n e u t r a l r i g h ts
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1
,
9 5
1
,
r e g ar d n g
i
B r i ti s h
.
‘
Th e S e c r e tar y
o
i
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t
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e
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s
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a
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d
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at
L o nd o n
.
Y o u a re i ns tru cted to d el iv er th e follow ing to H i s M aj esty s Go v
e r n m e n t i n r ep ly to you r numb ers 1 7 9 5 and 1 79 8 o f M a rch I 5 :
Th e Gove rnm ent o f th e Un i t ed S tat es h a s giv en c a re ful cons i de ra
’
tion to th e s ubj ec t s t rea ted i n th e B ri ti sh notes o f M a r ch 1 3 a nd
Ma rch I 5 and t o th e B ri ti sh O rde r i n Counc i l o f th e la tter date
Th es e com muni cati ons conta i n m a tters o f grav e i mpo rtance to
n eutra l n ati on s T h ey appea r to m ena ce th e i r ri ghts o f t rad e and
intercou rs e not on ly wi th b el l i ger ents bu t al so w i t h o n e anoth er
Th ey ca l l fo r frank com m ent i n o rd e r th at m i sunderstandi ngs m ay
b e avoided Th e Governm ent o f th e Un ite d S tates d eem s i t its
duty th e re fo re sp eaking i n th e s in c ere s t s pi ri t o f fr i en d sh ip to
m ak e i ts o w n v i ew and posi ti on with r ega rd to th e m unmi stakab ly
cl ea r
Th e O rde r i n Coun ci l o f th e 1 5 th o f M a rch woul d cons titut e
w ere i ts p rov i s ion s t o be a ctual ly ca rrie d i nto e ffect a s th ey s tand
a p racti ca l a s s ertion o f unl i m it ed b ell i gerent r i gh ts ov er neut ral
comm e rc e wi thi n th e wh ol e Eu rop ean a rea a nd an a lmos t un q ual i fied
d en i al o f th e s overei gn ri ghts o f th e nati on s n o w at pea c e
Th i s Gov ernment tak es i t fo r grant ed th at th e r e can b e n o q u es
tion wh at thos e ri ghts a r e A n ati on s sove rei gnty ov e r i t s o w n
s h ip s and c iti z en s u nde r i t s own fl ag on th e h i gh s e a s in ti me o f
p eac e i s o f cou rs e unl i m i ted ; and th at s ov e reignty su ffers n o
d imi nut ion i n t im e o f w a r exc ept i n s o fa r a s th e p ra cti c e and c o n
s en t o f c i v il i zed n at ions h a s l i m i ted i t by th e recogni ti on o f c erta i n
n o w cle arly dete rm i n ed ri gh ts
whi ch i t i s conc eded m ay b e e x e r
c i s e d by nation s whi ch a r e at w a r
A b elli ger ent n ati on h a s b een conce ded th e r ight o f vi s it and
s ea rch and th e righ t o f captu re and condemnation i f upon exa m ina
t ion a n eutra l v es s el i s found to b e enga ged i n unne utral s e rvi c e o r
to b e ca rrying cont rab and o f w a r i nt ended for th e en emy s govern
m en t o r a rm ed f o rc es I t h as b een conceded th e ri ght to e stabl i s h
and m ai ntai n a b lockad e o f an en emy s po rt s and coa sts and to
c aptur e and condemn any v es sel tak en i n t rying to b rea k th e blockade
I t i s ev en con ced ed th e ri gh t to det ai n and tak e to i ts o w n po rts
fo r j ud i c i al exam i nati on al l v es sel s wh i ch i t s usp ects fo r s ubs tanti a l
rea sons to b e engaged i n unneutral o r contrab and s ervi c e and to
condemn th em i f th e s usp i cion i s su stai n ed B ut s u ch ri ghts long
cl e arl y defin ed both i n doctri n e and p racti ce h av e h ith erto b een
h el d to b e th e only p ermi ss i bl e excepti ons to th e p rinc ipl e o f u n i
v ers al equal i ty o f s ov ere ignty o n th e h igh s ea s a s b etw een b el l i ge rent s
and n ation s not engaged i n wa r
I t i s confidently a s sum ed th at Hi s M aj e s ty s G overnm ent wi l l n o t
deny th at it i s a rul e s anction ed by gen e ra l p ra cti c e th at even
though a bl ockade sh ould exi st and th e d octrine o f contrab and a s
to unblockad ed te rritory b e ri gidly en fo rced inno c ent sh ipments
m ay be fre ely t ransported to and from the Unit ed S tates th rough
neutral countri es to b ell i gerent te rr itory w i thout b ei ng s u bj e ct to
th e p en alti es o f cont rab and t ra ffic o r b rea ch o f blockad e m u ch l es s to
d eten t ion r equi si ti on o r confi scati on
Mo reove r th e rul es o f the Decl aration o f P a ri s o f I 8 5 6
a mong
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TH E P ROT E CTI O N O F N EUTRA L RI GH T S A T
S EA
73
t hem th at free sh ips make free goods
wi l l h ardly at thi s day be
d i sp uted by th e Si gnator i es o f that solemn agreem ent
H i s Ma j es ty s Government li ke t he Governm en t o f th e United
S tates h av e o f t en and exp li c itly held th a t th es e righ t s rep resen t
th e b es t usage o f wa r fa re i n the dea lings o f bel l igeren t s wi th neu t ral s
a t s e a I n th i s connec ti on I des i re t o di rect a tt en t ion t o t h e O pinion
o f th e Ch i e f J usti c e o f t h e Uni t ed S ta t es i n the case o f t h e P e te r h o f
w h i ch a ros e o u t o f th e Civi l W ar and to th e fact th a t t hat O pin ion
w as unan i mously sus t ai ned i n th e awa rd o f th e A rb itration Commi s
S i on o f 1 8 7 1 to wh i ch th e ca s e wa s p res ented a t the requ es t o f
G rea t B rita in F rom t h at ti me to th e Decla rati on o f London o f
1 9 09
adopted wi th modifications by th e O rder i n Counc il o f t h e
2 d o f O ctob er last
th es e rights h av e not b een s e rious ly qu esti oned
3
by th e B ri ti sh Gov ernment
A n d no cla i m o n t h e pa rt o f G rea t
B ri ta in o f any j us ti ficat ion fo r i nter fering wi t h the se cl ear ri ghts
o f th e Uni t ed S ta tes and i ts c i t i zens a s neut ral s could be adm it t ed
To adm i t i t would b e to a ssum e an attitude o f unneut ral ity t owa rd
th e p res ent enemi es o f G reat B rita in wh i ch would b e obvi ously i n
con s i ste nt wi t h th e sol emn obl iga t i ons o f th i s Governm en t i n th e
p res ent ci rcums tanc es ; and for Great B rita in to m ak e s uch a c la im
wo uld b e fo r h er to abandon and s et a t naught t h e principles for
wh i ch s h e h a s cons i s tently and ea rn estly contended i n oth e r ti mes
a nd ci rc umstanc es
Th e note o f H i s M aj esty s P r i ncipal S ec reta ry o f S tat e for F o r
fa i rs wh i ch a ccompani e s the O rde r i n Counci l and wh ich
e i gn A f
b ea rs th e sam e date notifi es th e Gove rnm ent o f the Un i t ed S tates
o f th e establ i shment o f a blockade wh i ch i s i f defined by th e terms
o f the O rde r i n Counci l to inc lude a l l th e coasts and ports o f Ge r
many a nd every port o f poss ibl e a cc es s to enemy t e rri tory B u t t h e
nov el and qu i t e unp recedented featu r e o f th at blockade i f we a re to
a s sum e i t to be p rop erly s o defined i s that i t emb race s many n eu t ral
po rts and coasts b ars a cces s to t h em and subj ects al l n eu t ra l s h ip s
s eeki ng to approach th em to the s am e s usp i cion th at would attach
to the m we re th ey b o und fo r th e po rts o f th e enemi es o f Grea t
B ri tain and to unusual ri sks and penalties
I t i s mani fest that such l i mi tati ons ri s k s and l i ab il iti es placed
upon th e sh ips o f a n eutral powe r on th e hi gh s ea s beyond t h e righ t
o f v is i t and s ea rch and th e ri gh t to preven t t h e sh ipm ent o f con
tr ab an d a l ready re fe rred to a re a di stinct i nvas ion o f th e sove reign
ri gh ts o f th e n ation whos e sh ip s trade or comm e rc e i s i n t er fe red
w i th
Th e Gov e rnm ent o f th e United S tat es i s o f cou rs e not obl i vi ou s
to th e grea t change s wh i ch h ave occu rred i n t h e condi t i on s and
m ean s O f nava l wa r fa r e s inc e t h e rules h ith er t o governing l ega l
blo ckad e w ere form ulated I t m igh t b e ready to admi t t ha t t h e o ld
fo rm o f c los e blockade w ith i t s co rdon o f shi ps i n th e i mmedi ate
o ffi ng o f th e b lockaded ports i s no longe r p rac t i cabl e i n fac e o f an
en emy p os s e ssin g t h e m eans and opportuni t y t o mak e an e ff
ect i ve
d e fens e by th e us e o f subma rines m in es and a i r c ra f t ; bu t i t can
h ardly b e m a inta ined th at wh atever form o f e ffec t i ve blockade m ay
b e mad e u se o f i t i s i mpos sibl e to con fo rm a t l ea s t t o th e sp i r i t and
p rincipl e s o f th e establ i shed rule s o f wa r I f t h e n e c e s s me s o f t h e
c as e should s eem to r end e r i t im perativ e tha t t h e cordon o f block
a ding vess e l s b e extend ed ac ros s th e app roach es to an y ne i gh bo r i ng
ne utra l po rt o r country i t woul d se em clea r that i t would st i ll be
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74
TH E
P RO T E CT I ON OF N EU T R AL R I GH T S A T S E A
eas i ly p racti ca b l e to comp l y wi th th e w e ll -re cogn i z e d an d r ea sona b le
p roh i b ition o f int ern ationa l l aw again s t th e b lock adin g o f n eutra l
ports by a cco rdin g fr ee adm i ss ion and e x i t to a l l l aw ful tra ffi c w i th
neutra l ports th rough th e blo ck ading co rdon Th i s t ra ffi c wou ld o f
cou rs e in clude al l outwa rd bou nd t ra ffi c from th e n eutra l coun try
and all i nw a rd bound t ra ffi c to th e neutra l country e x cep t contraband
i n transi t to th e en emy S uc h p roc edu r e n eed not confli ct i n any
resp ect wi th th e rights o f th e b ell i ger ent m a inta ini ng th e blo c k ad e
s ince th e righ t wou ld rem a i n w i th th e bloc k adi ng ve s se l s to v i s i t a n d
s ea rch a l l s hip s ei th e r enteri ng o r l eav ing th e n eut ra l t e rri to ry w hi ch
th ey we re i n fa ct bu t not o f ri ght i nv es ti ng
Th e Gov ernm ent o f the Un ite d S tates notes th at i n th e O r d e r i n
Counc i l H i s M aj esty s Gov ernm en t gi v e a s th e i r r ea son fo r enter ing
upon a cou rs e o f a ct ion wh i ch th ey a r e awa r e i s wi th ou t p r eced ent
i n mode rn wa r fare the ne c es s i ty th ey con ce i v e th em s elv es to hav e
been pl a ce d under t o retal i ate upon th e i r enem i es fo r m eas ur es
o f a s i mi la r n atu r e wh i ch th e l atter h av e a nnounc e d i t th ei r i ntenti on
to adop t and wh i ch they h av e to s om e e x t en t adopte d ; but th e Gov
r ecal l ing th e p rin ci pl es upon wh i ch
e r n m e n t o f th e Uni ted S tat es
H i s M aj es ty s Gov e rnm ent h av e h i th erto b een s c rupulou s to ac t
interpr ets th i s a s m e rely a re ason fo r ce rtai n e xtrao rdi na ry a ct i v iti e s
o n th e p a rt o f H i s M aj esty s n av a l fo rc es and n o t as an excus e for
o r p relude to any un l aw ful a cti on I f th e cours e pu rsu ed by th e
p res ent en em ie s o f G reat B ritai n sh oul d p ro v e to b e i n fa ct ta i nted
by i l l egali ty and di s rega rd o f th e p rin cipl e s o f w a r s an ction ed by
enl igh ten ed n ations i t cannot b e s uppos ed an d th i s Gov e rnm ent d o es
n o t fo r
a mom en t s uppos e tha t H i s M aj esty s Governme nt woul d
wi sh th e same t a int to attach to th ei r o w n a cti on s o r would c it e s uch
i ll egal a ct s a s i n any s ens e o r degr ee a j usti fi cati on fo r s i m i l a r p r a e
ti ce s o n th ei r pa rt i n s o fa r as th ey a ffect n eutral ri gh ts
I t i s thu s th at th e Gove rnment o f th e Un ited S tat es i nt e rp rets th e
langu age o f th e note o f H i s M aj esty s P ri nci pa l S ec retary o f S tate
fo r Foreign A ffa i rs wh i ch a ccompan i es th e copy o f th e O rd er i n
Counci l wh i ch w as h anded to th e A mb a s sa do r o f th e Uni te d S tat es
nea r th e Gove rnm ent i n Lon d on an d by h i m trans m i tt ed to W ash
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i n g to n
Th i s Gove rnm ent notes w i th
i s a ffo r d e d to th e p ri z e cou rt i n
.
grati fi cat i on th a t
w i d e d i s creti on
d eal in g w ith th e t rade o f n eutral s
i n such mann e r a s may i n th e c i rcum stan c es b e d e em e d j us t and
th at ful l provi s ion i s m ade to fa ci l i tate cl ai m s by pe rs ons i nterest ed
i n any goods pl ac ed i n th e cu stody o f th e m a r sh al o f th e p ri z e cou rt
”
under th e o rde r ; th a t th e e ffect o f th e O rd er i n Coun ci l i s to
c on fer c erta i n p ow ers upon th e execut ive offi ce rs o f H i s M aj e sty s
”
Governm ent ; and th at th e ext ent to wh i ch th es e pow er s w i l l b e
actual ly exe rci s ed and th e degre e o f s ev eri ty wi th wh i ch th e m eas ur es
o f blockad e autho ri zed w i ll b e put i nto O p er ati on a r e matte rs wh i ch
wi ll depend on th e admi ni st ra tive o rders i s su ed by the Gov ernm ent
and the deci s ions o f th e au thori ti es esp ec i ally ch arged w ith th e duty
o f deal ing wi th i nd ividua l sh ips and ca rgoes a c co rd ing to th e m e ri ts
”
Thi s Gov ernment fu rth er not es w i th equa l s ati s fac
o f each ca s e
tion th e decl arati on o f th e B riti sh Gov ernm e nt th at th e i nstruction s
to b e i s sue d by H i s M aj esty s Governmen t to th e fl eet and to th e
cu stoms o ffi ci al s and execu t i v e comm itte es conc e rn ed w il l i mpre s s
upon th em th e duty o f acting wi th th e u tmost d esp atch cons i stent
w ith th e obj ect i n v i ew a nd o f s howi ng i n eve ry ca s e s uch c o n
,
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’
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TH E
P RO TE CTI O N OF N EUT RA L RI GH T S
AT S E A
75
s i d e ra tion fo r n eutra ls a s may be compatib l e w i th th at o bj ect wh ich
i s s ucc inctly stated to establ ish a blockade to p revent vess el s from
”
ca rry i ng goods fo r o r com i ng fro m G e rm any
I n V i ew o f th es e a s su rances formally gi ven to th i s Governm ent i t
i s confidently exp ected th at th e extens i v e powers con ferred by the
O rder i n Counci l on th e executive o ffice rs o f the C rown wi l l b e r e
”
s tr i c te d by
o rde rs i ssued by the Gove rnm ent di recting th e e x e r
c i s e o f th ei r d i s cretionary pow ers in such a m ann er a s to mod i fy
i n p ra cti ca l appl ica ti on thos e p rov i sions o f the O rder i n Counci l
w h i ch i f s tri ctly en forced would v iolat e n eutra l righ ts and inter rupt
l egi timat e t rade Relying o n th e faith ful p er forman ce o f the s e vol
u n tar y a ssu ranc es by H i s Maj esty s Governm ent th e United S tate s
takes i t fo r granted th at th e app roach o f A m eri can m ercha ntm en t o
n eutral po rts s i tuated upon th e long l in e o f coast a ffe cted by th e
O rde r i n Counci l wi l l n o t b e i nte r fered with wh en i t i s known th at
th ey do n o t ca rry goods wh i ch a re contrab and o f wa r o r goods
d esti n ed to o r p ro ce edi ng from ports w ith i n th e b el l igerent ter r itory
a ffe ct ed
Th e Gove rnment o f th e United S tates assumes w i th th e greater
confi d enc e that H i s Maj esty s Governm ent wi l l th us adj ust th ei r
p racti c e to th e recogn iz ed rul es o f int ernational l aw becaus e i t i s
m ani fest th at th e B ri tish Governm ent h av e adopted a n ext raordina ry
m ethod o f s topp ing ca rgo es destined fo r o r coming from th e
”
enemy s t err ito ry whi ch owi ng to th e existenc e o f unusua l cond i
ti ons i n m od ern wa r fare a t s ea i t w i l l be di fficult to restri ct to th e
l i m its wh i ch h av e been h ereto fore requ i red by th e law o f nations
Though th e a rea o f ope rati ons i s confined to
Eu ropean water s
”
i ncl uding th e M ed iter rane an
so great an a rea o f th e h igh s eas
i s cov ered and th e co rdon o f shi ps i s so distan t from th e terri tory
a ffe cted th at n eut ral ves s els must n eces s ari ly pas s th rough th e block
ading fo rc e i n orde r to reach i mportan t n eu t ral ports wh i ch G reat
B rita i n a s a bel li gerent h a s n o t th e l egal right to b locka d e and wh i ch
the re fo re i t i s p resum ed s h e h as no intent ion o f cl ai ming to bl ockade
Th e S candinavi an and Dani sh po rts for example a re open to A me r
i can t rad e Th ey a re a lso fre e so fa r as th e a ctual en forc em ent o f
th e O rde r i n Counc i l i s conc erned to c a rry o n trade w ith German
B a lti c ports a lthough i t i s an e ss enti a l element o f bloc k ade tha t i t
b ea r wi th equa l s everi ty upon al l n eutral s
Thi s Gov ernm ent th e re fore in fers th at th e command ers o f H i s
Maj esty s sh ips o f wa r engaged i n ma inta ining th e s o cal l ed blockade
w i l l b e inst ructed to avoid an en forc ement o f th e p ropos ed m easu re s
o f noni nte rcou rs e i n su ch a w ay a s to impos e restri ction s upon
neutral t rade more bu rdensom e than thos e wh ich h av e be en r e
ga rded a s i n evitabl e wh en th e ports o f a be l li gerent a re a ctua l ly
blockaded by th e shi ps o f i ts enemy
Th e pos s ibi l itie s o f s erious i n t e rruption o f A m eri can trade unde r
th e O rde r in Counci l a r e so many and th e m ethods propose d a r e
s o unu sua l and s eem l iabl e to cons t itute so great an impedi men t and
emb a rras sm ent to neutra l comm e rc e that th e Gove rnm en t o f th e
United S tates i f th e O rde r i n Counc i l i s stri ctly en forced ap p r e
h ends m any i nter feren ces with i ts legi timate t rade wh i ch wi l l i mpose
upo n H i s Maj esty s Gove rnm en t heavy r e S p o n s i b i l i ti e s for ac t s o f
th e B ri ti sh au t ho ri ti es cl ea rly s ubve rs ive o f t h e right s o f neu t ral
nations o n th e h igh s eas I t i s th ere fore expected t ha t H i s Maj
Gov ernment h av ing cons idered th es e pos si bi l iti es w il l tak e
e s ty s
,
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TH E
76
P RO T E CT I O N OF N EUT RA L R I GH T S A T S EA
th e steps n ecess a ry to avo id th em and i n th e ev ent th at th ey sh oul d
unh appi ly occu r w i l l be p repa red to m ake ful l rep aration fo r ev ery
a ct wh i ch unde r th e ru le s o f i nternat iona l l aw const itutes a v iol ation
o f neutra l ri ghts
th i s Go v e rn
A s stat ed in i ts commun i cation o f O ctob er 22 1 9 1 4
m en t w i ll i ns i s t th at the righ ts and dutie s o f th e Un it ed S tat es and
i ts c iti z en s i n the p r es ent w a r b e d efined by th e exi st ing rule s o f
i nternati ona l l aw and th e t rea ti es o f th e Un i te d S tates i r respe cti ve
an d th at th i s Go v
o f th e p rov i s i ons o f th e Decl a rati on o f London
e r n m e n t res erve s to i ts el f th e ri gh t to enter a p rote s t o r dem and
i n eac h cas e i n wh i ch thos e rights and duti es so defined a r e v i ol ated
thei r fr e e exe rc i s e i nte r fer ed w ith by th e a uth o ritie s o f th e
or
”
B riti s h Gov ernm ent
In con clusi on you w i l l r ei terat e to H i s M aj esty s Gov ernm en t th at
th i s statem ent o f th e v i ew s o f th e Gov e rnm ent o f th e Uni ted S tat es
i s made i n th e most fri end ly sp i ri t and i n a c co rdan ce w i th th e un i
form candor wh i ch h as ch a ra cte r i z ed th e re lation s o f th e two Gov
th e p a st an d wh i ch h a s b e en i n l a rge m eas u r e the
e r n m e n ts i n
foundation o f th e p ea c e and ami ty exi s ti ng b etw een th e two n at ions
w i thout i nte rruption fo r a century
B R YA N
r
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r
i
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o
69
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NO 3 7
F i r s t A m e r i c an
”
th e
W i l l i am P F r y e
.
.
e c r e tar y
M ar c h
3
1
1
,
9 5
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in
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r e g ar d
to
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Th e S
n o te ,
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t
t
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h
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a
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e
o
t
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m
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a
n
m
b
s ad o r
f
o
at
B er l i n
.
Yo u
a re i nstru cte d to p res ent th e fol low ing note to th e Germ an
Fo rei gn O ffi ce :
Unde r i n struct ions from my Gov ernm ent I h av e th e h ono r to
p res ent a c la i m fo r
w ith int ere st from J anu ary 2 8 1 9 1 5
a ga i ns t th e Ge rm an Gov ernm ent on b eh al f o f th e own er s and capta in
F r y e fo r dam ages s u ffe red
o f th e A me r ican s ai l i ng v es s el Wi l l i am P
by th em on a c count o f th e dest ruction o f th a t ve s s el o n th e h i gh
s ea s by th e Ge rm an a rm ed c ru i s er P r i n z E i te l F r i e dr i c h on J anua ry
,
,
.
,
28 ,
191
5
.
fa cts u pon wh i ch th i s cl a i m a ri s es and by r eason o f w h i ch
th e Ge rm an Gov e rnm ent i s h e l d r espons i bl e by t h e Gove rn ment o f
th e United S tate s fo r th e attendant lo s s an d d amages a r e b ri efly
a s fol lows :
Th e Wi l l i am P F r y e a st eel sa i li n g v ess e l o f
ton s gros s
tonnage own ed by A m er ican c i ti zen s an d s ai l ing unde r th e Uni te d
S tates fl ag and r egi ste r cl ea r ed from S eattl e W a sh November 4
1 9 1 4 unde r ch a rte r to M
H H ous er o f P o rtl and O reg bound fo r
$ u eenstown Fal mouth o r P lymouth fo r o rd e rs w ith a c a rgo c o n
s i s t i n g solely o f
bu sh el s o f wh eat own ed by th e a fores ai d
”
H ous e r and con si gned unto o rder o r to i ts a s s i gns a l l o f wh i ch
app ea rs from the sh ip s p ap e rs wh i ch w er e ta k en from th e v es s el at
th e ti m e o f h er d es tru cti on by th e com mand e r o f th e Ge rm an c rui s e r
O n J anuary 2 7 1 9 1 5 th e P r i nz E i te l F r i e d r i c h encountered the
F r y e o n th e h igh s eas compel l ed h er to s top and s ent on boa r d an
a rmed boarding pa rty wh o took po ss es s ion A fter an exam inati on
O f th e sh i p s pape rs th e commande r o f th e c rui s er di rected tha t th e
ca rgo b e th rown ove rboa rd but subs equ ently d e c i d e d to destroy th e
ve s el
and o n th e fol low in g mo rn ing by h i s o rder the F r y e w as
Th e
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TH E P RO TE CTI O N OF N EUT RAL R I GH TS A T S E A
Th e
i te ms :
c lai m
of
77
th e owners and cap t a in consi s t s o f t h e fol lowing
V a lue
o f sh ip equipm ent and outfit
A ctua l frei gh t a s pe r freigh t l i s t
0
5 34
tons at 3 2 6
£8 1 8 o 1 9 6 a t
T rav eli ng and oth er expenses o f Cap t Kiehne and
A rthu r S ewa ll
C O a gen t s o f sh ip i n c onn ec
tion wi th m aking a ffidavits p repa ring and fil
i ng clai m
P e rsonal e ffects o f Capt H H Ki ehne
Damages cove ri ng los s du e to depri va t ion o f us e
o f shi p
,
,
,
—
—
—
—
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,
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Tota l
B y d i rec t ion o f my Gov ernm en t I h ave t h e honor t o request t h at
ful l rep a ration b e made by t h e Ge rman Gove rnmen t for t h e d e s tr u c
tion o f th e Wi l l i am P F r y e by t h e German crui ser P r i n z E i te l
F r i e dr i c h
B RYA N
r
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No 3 8
Ge r m an m e m o r an d u m A p r i l 4 1 9 1 5 c o n c e r n i n g t h e
h
s
r
r
e
a
n
o
f
B itis
tr i t
s e a b o r n e c o m m e r c e w i t h Ge r m an
a
n
d
y
t h e A m e r i c an e x p o r t a t i o n o f w ar m a t e r i a l
.
.
,
,
,
.
Th e Ge r m a n A m b as s ad o r to th e S
f S tate
Th e va ri ous B ri t i sh O rder s in Counci l have one s id edly modified
th e gene ral ly recogni z ed p rincipl es o f i n t ernationa l law i n a way
wh i ch a rbi t ra ri ly stops th e commerc e o f neu t ra l na t i ons w i t h Ge r
m any Even b e fore t h e last B riti sh O rder in Cou n c i l t h e sh ipmen t
especial ly food suppl i es t o Germany was
o f c ondi t iona l con t raband
p ra cti ca l ly imposs ibl e P ri or to t h e p rotes t s en t by th e A m eri can
such a sh ipmen t
to the B ri t i s h Gov e rnm ent on Decembe r 2 8 las t
did no t a c t u ally tak e pl ac e i n a s ingl e cas e Even a f t er t h i s protes t
th e I mp eri al Embas sy knows o f only a singl e cas e i n whi ch an
A m e ri can sh ippe r ha s ven t u red to m ake suc h a sh ipment for th e
pu rpos e o f l egi timate sale to Germany B oth sh i p a nd cargo w ere
i mm ed i ately s eiz ed by th e Engli sh and a re be i ng h eld i n an Engl i sh
port unde r t h e p re t ext o f an o rde r o f t h e German Fed eral Counc i l
B
und
es
ra
t
rega
rd
ing
th
e
grain
t
rad
e
al
t
hough
t
hi
s
resolu
t
i
on
o
f
)
(
th e Fed eral Coun ci l rela t es exclusi vely to gra in and fl ou r and not
to oth er foods t u ffs b es ides m ak ing a n express excep t ion wi t h re spec t
to i mpo rt ed foodstu ffs and al t hough t h e G e rman Gov ernmen t gav e
th e A m eri ca n Gov ernm ent an assu ranc e and p roposed a speci a l
o rgan i zati on wh ereby the excl us ive consumption by t h e c ivi lian pop
al ation i s absol utely gua rant eed
Und er the c i rcums t anc es th e sei zu re o f th e A merican sh ip wa s
inadm i ss ibl e a c cordi ng to recogni zed p ri nci pl es o f in t erna t ional l aw
N everth el es s th e Uni t ed S t a t es Governm en t h as n o t t o da t e secu red
th e rel ea se o f th e sh i p and c a rgo and ha s no t a f t e r a dura t ion o f
th e wa r o f ei gh t m on th s s ucc eeded i n p rotec ti ng i t s l aw fu l t rade W it h
Germ any
S u ch a long del ay espec i al ly i n m atte rs o f food supply i s e qui v a
l ent to an en t i r e d en ial
e c r e tar y
o
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TH E
78
P RO T E C TI O N
O F N EUT RA L R I GH T S A T S E A
I mpe ri al Emb a ssy m ust th ere fo re a s sum e th at th e Uni ted
S tat es Gov ernm ent a cqui esces i n th e v iol ations o f inte rn ati on al l aw
by G rea t B r ita in
Th en th ere i s al so th e attitud e o f th e Uni ted S tate s i n th e q ues tion
Th e I mp eri a l Gove rnment fe el s s u r e
o f th e exportati on o f a rm s
th at th e Uni ted S tates Gov e rnm en t w i ll agre e that i n q uesti ons o f
n eutral i t y i t i s n ec es sa ry to tak e i nto cons i de rati on not only th e
fo rm al asp ect o f th e ca s e but a ls o th e S p i rit i n wh ich th e neutral i ty
i s ca r ri ed o ut
Th e s i tuation i n th e p r esen t w a r d i ffers from th a t o f a ny p revi ous
w a r Th er e for e any r e fe r enc e t o a rm s fu rn i sh ed by G ermany i n
fo rm e r wa rs i s not j u s tifi ed fo r the n it wa s not a q uesti on w h e th e r
w a r m ater i al s hou ld b e supp li e d to th e b el l ige rents but w h o s houl d
supply i t i n comp etit ion w ith oth e r na ti ons I n th e p r es ent wa r al l
nation s h avi ng a w a r m ate ri a l i ndus t ry worth m entioning a re e ith e r
i nvo lved i n th e w a r them s elve s o r a r e engaged i n pe r fect ing th ei r
and h av e th ere fo re l ai d an emb a rgo agai n s t th e
o w n a rm am ents
expo rtation o f w a r m ateri a l Th e Un ite d S tates i s a cco rdingly th e
only neut ral count ry in a pos i ti on to fu rni sh w a r m ate ri al s Th e
conc eption o f ne utral ity i s th ereby gi ven a new pu rpo rt i n d e p e n d
ent ly o f th e fo rm al q u esti on o f h ith erto exi s ting l a w I n c o n tr ad i c
ti on th ereto th e Un ited S tate s i s b u i ldi ng up a p ow er fu l a rm s
i ndust ry i n th e b road est s ens e th e exi st ing p l a nts not only bei ng
wo rked b ut enl a rge d by al l a v a il abl e m eans and n e w on es b u i l t
Th e internat i ona l conventi ons fo r th e p rotection o f th e ri gh ts o f
n eutra l n ation s doubtl es s sp rang from th e nec es s i ty o f p rotecti ng
th e exi sti ng industr i es o f n eutra l n ati on s a s fa r a s pos s i bl e from
i nj u ry i n th ei r bus in ess B ut i t c an i n no e v ent be in a ccor d anc e
wi th th e S p i r i t o f t ru e n eut ra l i ty i f un d er th e p rotecti on o f s u ch
i nte rn ationa l s tipul ati on s a n ent i rely n ew i ndust ry i s c reated i n a
n eutral stat e su ch a s i s th e dev elopment o f th e a rm s indus try i n th e
Un ited S tat es th e bus i nes s wh e reo f und er th e p r es en t conditi on s
c an b enefit only th e b el l ige rent powe rs
Th i s i ndu st ry i s a ctu al ly d el i ve ri ng goo d s on l y to th e en em i e s o f
G e rm any Th e th eor eti c al w i l l ingn es s to s upp ly G e rm any al so i f
s h i pm ents th i t h e r w ere po ss i bl e d oe s n o t a l te r th e ca se I f i t i s th e
w i l l o f th e A m eri c an p eopl e th at th e r e sh a l l b e a t ru e n eut ra l ity th e
Uni ted S tate s w i l l find m eans o f p reventing th i s o n e si ded s upply
o f a rm s or a t l east o f uti l i z ing i t to p rot ect l egi ti m ate t rad e w i t h
G erm any e sp eci al ly th at i n foodstu ffs T h i s v i ew o f n eutra l i t y
should a l l th e m ore app eal to th e Uni ted S tates Gov ernment be cau s e
th e latter enact ed a s i mi l a r p ol i cy towa rd M exi co O n Feb rua ry 4
1 9 1 4 P resi den t W i lson
a ccordin g to a s tatem ent o f a Rep r es entati ve
i n Congres s i n th e Comm itte e fo r Fo rei gn A ffai rs o f Dec embe r 3 0
1914
upon the l i fting o f th e emb a rgo o n a rm s to M ex i co decl a red
th a t w e sh ould s tand fo r genu in e n eut ra l ity con s id e ri ng th e s u r
rounding fa cts o f th e ca s e
H e th en h el d th at i n th at ca s e
b eca u se Ca rran z a h ad n o ports wh i l e H uerta h ad th em and wa s
abl e to i mpo rt th es e m ateri al s th at i t w a s ou r duty a s a nation t o
t re at ( Ca rran z a and H u erta ) upon an e q ual i ty i f w e w i sh ed to
ob s erve th e tru e sp i rit o f n eutral i ty a s compa red w i th a m ere p ape r
”
neut ral i ty
I f th i s v i ew we re appli ed to th e p res ent case i t woul d l ead to an
emba rgo o n t h e expor t a t ion o f a rm s
D
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TH E
80
P RO TE CT I O N O F N E U T R A L R I GH T S A T S E A
th e ca rgo o f wheat h ad an i nnocent d estination a nd d i d n o t th er e
fore h av e th e ch a racte r o f con t raband I f s uch p roo f i s n o t a dduc ed
t h e Ge rm an Gov ernmen t would not b e l i abl e fo r any compen s ation
w h a t ev er a ccording to th e gen era l p r i ncipl es o f i nterna tional l aw
H ow eve r th e l egal s i tuation i s s om ewh at di fferent i n the l igh t o f
th e sp ec ia l s tipu lat i ons app li cabl e to the r el at ions b e t ween Ge rmany
and th e Un i ted S tates s in c e a rti c l e 1 3 o f th e P ru ss i an A m eri ca n
t rea ty o f fri endsh i p a nd comm erc e o f J uly 1 1 1 79 9 taken i n c o n
n e c ti o n w ith a rti cl e 1 2 o f P rus si an A m eri c an treaty o f com m erc e an d
n av igation o f M ay 1 1 8 2 8 p rovi de s th a t contraband b elonging to
th e s ubj ects o r c itiz en s o f e i th e r p a rty cannot b e confis cated by
th e oth er i n any c a s e but only d eta i ned o r u s ed i n consi d eration o f
paym ent o f th e ful l v alu e o f th e s am e O n th e ground o f th i s t reaty
s t i pu l ati on wh i ch i s a s a m atte r o f cou rs e bi nding on th e Ge rman
p ri ze court th e A m eri ca n o wne rs o f s h ip and ca rgo wou ld rec ei v e
comp en sation ev en i f th e cou rt sh ould dec la re th e ca rgo o f wh ea t
to be cont raband Nev erth el es s th e app ro ach i ng p ri ze p roc eedings
a r e not rendered supe rfl uou s s inc e th e comp etent p ri z e cou rt m u st
exam ine i nto th e l egal ity o f th e captu re and destruction and a lso
p ronoun c e upon th e standin g o f th e cl ai ma nts an d th e amoun t o f
i nde mn ity
Th e und ers i gne d b egs to s u ggest th at th e a mb a s s ado r b ri ng th e
above to th e k nowl edge o f h i s Gove rnm ent a nd ava i l s h i m s el f etc
W
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No 4 0
B r i t i s h m e m o r an d um A p r i l 8 1 9 1 5 i n r e f e r e n c e t o
” it
th e
W i lh e lm in a
Th e P r i m e M i n i s te r to th e A m e r i c an A m b as s ad o r
H i s M aj esty s Gov ernmen t sh a re th e des i r e o f th e Uni ted S tate s
Gov e rnm ent fo r a n i mm edi ate s e t tl em ent o f th e ca s e o f th e Wi l h e l
m i na
Th i s A m er i can sh ip l aden w ith foodstu ffs l e ft N e w Y o rk
for H ambu rg o n J anua ry 22 n d S h e call ed at F almou t h o f h e r
o w n a ccord on F eb rua ry
t
h
and h e r c a rgo w a s de t ai ned a s p ri z e
9
on Feb ru ary 1 1 th Th e w ri t i ns t i t u t ing p ri z e cou rt p roceedings w as
i s sued on F eb rua ry 2 7 th and c l aim ed th a t the ca rgo should b e con
d e m n e d a s cont raband o f wa r
No p roc e edings w e re taken o r eve n
t h rea ten ed aga ins t th e shi p h ers el f and i n th e o rdina ry cou rs e th e
ca rgo wou ld h ave b een unload ed wh en s ei z e d s o th at th e sh i p woul d
be free to l eav e Th e own ers o f t h e ca rgo how eve r h av e th rough
o u t obj ected to th e d is cha rge o f th e ca rgo and i t i s b eca us e o f thi s
obj e ction th a t th e sh ip i s st i l l at Falmou t h w ith th e c a rgo o n boa rd
H i s M aj e sty s Governm ent h av e fo rm al ly und e rtaken t h at ev en
should th e condemnation o f th e c a rgo a s contra band b e s ecu red i n
th e p r i z e cou rt th ey would none th e l es s comp en sate th e owne rs for
any los s s u stai n ed i n cons equ ence o f th e sh ip h aving be en s topped
and p roc eed i ngs tak en aga ins t th e ca rgo
I t wa s understood at th e tim e tha t th e p ro ceedings i n the p ri z e
cou rt would be i n th e natu re o f a test case th e de ci s ion i n wh i c h
woul d gov ern th e t reatm ent o f any s ubs equ ent sh i pm ents o f foo d
s i pp l i e s to Ge rm any i n s i mi la r c i rcumstan c es
S inc e th en th e s itua
t
ti on h as howeve r mate ri ally ch anged by the i s su e o f th e O rde r i n
Counc i l o f Ma rch 1 1 1 9 1 5 an d th e m eas ures ta k en t h er eunde r whi c h
S ee N o s 0 an d 2 5
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TH E
P ROT ECT I O N O F N EUT RAL RI GH T S AT S EA
81
p revent fu rth er suppl ies b eing sent fro m A m eric a to G e rm any
whethe r contraband o r not
I n these c i rcumstances there i s n o longer an obj e ct i n c o n
t i nn ing th e j udi ci al p roc eedings i n th e case o f th e Wi l h e l m i n a ; fo r
i t c an no longe r s erve as a t es t ca se and i t i s real ly agreed tha t th e
own e rs o f th e ca rgo even i f proved to have no cla i m a re t o b e
trea t ed as i f th ei r cl a im was good No t h ing t h ere fo re rema ins but
to s e t tl e th e cla im o n p rop er and j ust cond i ti ons and t h i s would i n
t h e opini on o f H i s Maj esty s Gove rnmen t b e secured mos t exp edi
t i o u s l y and wi th th e l east inconveni enc e to al l pa r t i es by an agree
m ent b e t we en th e Crown and t h e clai man t s for t h e di sposal o f t he
whole m a t te r H is Maj es t y s Gove rnm en t a ccordingly p ropos e t h at
s uc h a n agreem ent b e a rrived a t on t h e follow ing t erm s :
His
M aj esty s Gove rnment h aving undertaken to comp ensa t e th e cla im
ants by paying fo r th e ca rgo s e ized on the bas i s o f t h e loss O f th e
p ro fit the c la im ants would hav e made i f th e sh i p had p roc eeded in
du e cou rs e to H amburg and by i ndemn i fying t h e m fo r th e delay
cau sed to th e sh ip so fa r a s th i s del ay h a s b een due to t h e a ction o f
t h e B ri ti s h au t horities a l l p roceedings i n t h e p ri z e cou rt sh all h e
s t ayed o n the unders t anding that H i s Maj es t y s Governmen t buy
th e ca rgo from t he cl aiman t s o n th e abov e t erms Th e ca rgo sh al l
b e di s cha rged a nd del i vered t o t h e p roper o ffi cer o f t h e C rown for t h
wi t h Th e sum to be paid sha l l b e as s es s ed by a s ingle re feree nom
i n ate d j ointly by t h e ambas sador o f t h e Uni t ed States o f A meri c a
and H i s Maj esty s p rincipal s ec re t a ry o f s t ate fo r forei gn a ffai rs
wh o sh al l c e rti fy th e tota l amoun t a f t er making such inqui ri es a s
”
h e m ay th ink fit but w i t hout form a l hearing o r a rbi t ra t ion
H is
Maj es ty s Governm ent would be gra t e ful i f t h e Uni t ed S t a t es am
b as s ad o r would i n form th e cl aim an t s o f th e abov e proposal a t h i s
ea rly conveni enc e and obta in th ei r acceptance
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No 4 1
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A m e r i c an
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Th e S e c r e tar y
E $ C EL L E N C Y :
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I h av e given though t ful cons idera t i on t o Y ou r Ex
191 5
enclos ing a m emo randum
c e ll e n c y s note o f th e 4 th o f A p ril
i n whi ch Y ou r Excell ency di s cusses t h e a c t ion
o f th e sam e date
o f th i s Governm en t w ith rega rd to t rade be t ween t he Un i t ed S t a t e s
and Ge rm any and t h e atti t ude o f th i s Governmen t w i t h r egard to t h e
exportation o f a rms from t h e United S t ates t o t h e na t i ons now at wa r
wi th Germany
I mu s t adm it th at I am som ewh at at a los s how to i n t e rpret Y ou r
Exc el l ency s t reatm en t o f t h ese ma tt ers Th ere a r e many ci rcum
s tanc e s conn ec t ed wi t h t h es e impor t ant subj ec t s t o wh i ch I would
h av e expec t ed Y ou r Exce llency t o adver t bu t o f wh i ch you m a k e
n o m ention and th ere a r e o t h er ci rcums t ances to wh i ch you do re fer
wh i ch I would h ave suppos ed to b e ha rdly a ppropria t e for d i s c u s s mn
b etw een th e Government o f t h e Uni t ed S t a t es and t h e Gove rnmen t
o f Ge rmany
I sh a ll tak e th e libe rty th e re fore o f regard i ng Y our Exc ell ency s
re ferenc es to th e ou rs e pursued by t h e Governmen t o f t h e Un i t ed
S tate s wi th regar to i n t e r ferenc es w i t h t rade from t h i s coun t ry
such a s th e Governm en t o f Great B ritai n h ave a t temp t ed a s i n t ended
m e rely to i l lus t rat e mo re fully t h e s itua t ion t o wh i ch you de 5 1 re to
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TH E P RO TE C TI O N OF NEU T R AL
82
R I GH T S A T S EA
cal l o u r attenti on and not a s a n i nv itat ion to d i scu ss th at cou r se
Y ou r Excel l ency s lon g exp e rienc e i n i nt ernati ona l a ffa i rs w i l l ha ve
s uggest ed to you th at the r elation s o f the two Gov e rn ments wi th
o n e ano t h e r cannot w i s ely b e m ad e a subj ect o f di s cus s i on w ith a
th i rd Government w h i ch canno t b e fu lly i n form ed as to the fa cts
and wh i ch cannot b e ful ly cogn i z an t o f th e r ea sons fo r th e cou rs e
pu rsued I b el i ev e h ow ev e r th at I am j u stified i n a s s um ing th at
wha t y o u d es i re to ca l l fo rth i s a frank stat em ent o f th e posi tion
o f th i s Gove rnm ent i n r ega rd to i ts ob l igations as a ne utral pow e r
Th e gen eral attitud e and cou rs e o f poli cy o f th i s Gove rnm ent i n th e
m a intenan c e o f i ts neutral i ty I a m p a rti cul a rly anxi ou s th at Y our
Exc ell ency shoul d se e i n th ei r t rue l i gh t I h ad h op e d t h at th i s
Government s posi tion i n th e s e r esp ect s h a d b een m ad e ab undantly
cl ea r but I a m o f cou rs e p er fectly wi l l ing to s tat e i t a ga in Th i s
s eems to -m e th e mo r e n e c es sa ry and d es i rab l e b ecau s e I r egr et to
th e l anguage wh i ch Y ou r Excel l en cy empl oys i n you r m em
s ay
o r an d u m i s su sc ept ibl e o f bein g con st ru ed a s i mpugn ing th e good
fai th o f th e United S tat es i n th e p e r fo rm ance o f i ts duti es as a
n eut ral I ta k e i t for grant ed th at n o su ch i m pl i c ation w a s i ntended
but i t i s so evident th at Y ou r Exc el l en cy i s l abo ri n g und e r c ert ai n
fal s e i mpr es s ions th at I c annot be too expl i ci t i n s etting forth th e
facts a s th ey a re wh en ful ly rev i ewed a nd comp r ehe nd ed
I n th e fi rst pl ac e th i s Gove rnm ent h a s a t no ti m e and i n no m an
n er yi el d ed any o n e o f i ts ri gh ts a s a n eut ral to any o f th e p res ent
b ell ige rents I t h a s ac k nowl edged a s a m atter o f cou rs e th e r ight
o f v i sit an d s ea rch and th e ri gh t to a pply th e rul e s o f contraband
o f wa r to a rti cl es o f comm e rc e I t h a s i ndeed i n s i st ed upon th e
u se o f vis i t and s ea rch a s an ab sol ut ely n eces s a ry s a fegua rd aga inst
m ista k i ng n eut ral v es s el s fo r ve ss el s owned by an en emy and
agai ns t m i sta k in g l egal ca rgo es fo r i l l egal I t h a s adm i tted al so th e
righ t o f bloc k ad e i f a ctu al ly exerci s ed and e ffecti v ely mai ntain e d
The s e a re m e rely the w el l known l i mitat ions wh i ch w a r pl a ce s upon
n eutral comm e rc e o n th e hi gh s eas B ut noth ing b eyon d th es e h a s
i t conc eded I cal l Y ou r Excel l ency s attenti on to th i s n o tw i th stan d
i ng i t i s al ready k nown to al l th e wo rld a s a con s e q uenc e o f th e
p ubli cation o f ou r correspondence i n r ega r d to th es e m att e rs wi th
s eve ral o f th e b el l i gerent n ati ons b ecaus e I cannot a ssum e th at you
h av e o ffi c i al cogni z anc e o f i t
I n th e s econd pl ac e th i s Gov ern m ent attempt ed to s ecu re from th e
Germ an and B ri ti sh Gov ernments m utual conc es s ion s wi th r ega r d
to th e m easu res thos e Gov ernm ents resp ect ive l y adopt e d for th e i n
t e r r u p ti o n o f trade o n th e h i gh s e as
Th i s i t d id not o f ri ght but
m erely a s exe rci s ing th e p ri vi leges o f a s in c er e f ri end o f both p a rti e s
and a s indi cati ng i ts i mpa rti al good w i l l Th e att empt wa s u n s u c
c e s s fu l ; but I regret th at Y ou r Exc el l ency d id not d e em i t worth y
o f m ention i n m odification o f th e i mp res s i ons
exp
res
s
e
d
o
u
We
y
h ad h oped th at th i s a ct on ou r pa rt h ad s h own o u r spi rit i n th e s e
t im es o f di stre ss in g wa r a s o u r diplom ati c co rr espondence h ad sh own
ou r st ead fa st re fus al to a ckn ow l edge th e r i ght o f any b elli gerent to
alte r th e a ccepted r ul e s o f w a r at s e a i n s o fa r a s th ey a ffect th e
ri ghts and i nterests o f n eutral s
In th e th i rd pl a c e I note w ith s inc er e regret th at i n di s cus s in g
th e s al e and exportation o f a rm s by ci ti z en s o f th e Un i ted S tates
to th e enemi es o f Germany Y ou r Excel l ency s eem s to b e unde r
th e i mp res si on th at i t wa s w ith i n th e choi ce o f th e Gov e rnm ent o f
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TH E P ROT E CTI O N O F N EUT RAL RI GHT S AT
S EA
83
t h e Uni t ed S tates notwi t h s tandi ng i t s pro fe ssed n eu t ral i t y and i t s
di l igen t e ffor t s to m ain t a in i t i n o t h er par t i cula rs t o inh ibi t t h i s
trade and th at its fai lure to do so mani fes t ed a n un fa i r atti t ude
towa rd Ge rmany Th i s Gove rnmen t holds a s I bel ieve Y ou r Excel
l eney i s awa re and a s i t i s cons t rained to hold i n vi ew o f t h e p res ent
i ndi sputabl e do ctrines o f a cc epted i n t e rnationa l l aw th at any change
i n i ts o w n l aws o f n eut rali t y during t h e progres s o f a wa r wh i ch
wou ld a ffec t une qually th e relations o f th e Uni t ed S ta t es w i t h t h e
nat ions at w a r would b e an unj u s t i fiabl e depar t u re from th e p rin
c i p l e o f s tri ct neutral ity by wh i ch i t h as cons is t entl y sough t to di rect
i t s a cti ons and I resp ec t ful ly submi t that none o f th e ci rcumstances
u rged i n Y ou r Excell ency s memorandum al ters th e p rinci ple i n
v o lv ed Th e plac in g o f an embargo o n th e t rad e in arms at th e
p res en t tim e wou ld con stitut e such a ch ange and b e a di rec t v iol ation
o f th e neutra l ity o f the Uni t ed S tates
I t w i ll I feel as su red b e
c l ea r to Y ou r Exc ell e ncy that holding th i s vi ew and cons idering
its el f i n honor bound by i t i t i s out o f th e q ue stion fo r th i s Gov
e r n m e n t to cons ide r s u ch a cours e
I hop e th at Y ou r Excel l en cy w i l l real iz e th e spi ri t i n wh i ch I am
d ra fti ng th i s reply Th e fri end sh ip b etw een th e peopl e o f th e Uni t ed
S tates and th e peopl e o f Germ any i s so wa rm and o f s uch long
s tand ing th e ti e s wh i ch bind th em to o n e anoth er i n am i ty a re so
m any and so strong th at t h i s Gove rnm en t feel s und er a S peci al
com pu l s i on to S p eak wi th p er fec t frankne ss wh en any occas ion a ri s es
wh i ch s eem s l ikely to c reate any m i sund erstandi ng however sl igh t
b etween thos e who repr es ent th e Gov ernments o f t h e
o r tempora ry
two countri es I t w ill b e a m atte r o f grati fica t ion to m e i f I h ave
rem ov ed from Y ou r Excel lency s m ind any m i sappreh en sion you m ay
h ave b een unde r r egarding ei t h e r th e poli cy o r t h e S p i ri t and pu r
po s es o f th e Governm ent o f th e Uni t ed S tat es I ts neutral i t y i s
founded upon the fi rm bas i s o f cons ci enc e and good w i ll
A cc ept etc
W J B RYA N
r
D
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C
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A n n o u n c e m e n t o f th e Ge r m an E m b as s y A p r i l 2 2
No 42
19 1 5
w a r n i n g a g ai n s t e m b a r k a t i o n o n v e s s e l s b e l o n g i n g t o
Gr e at B r i t ai n o r i t s al l i e s
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NO TI CE $
intending to emba rk on th e A tl anti c voyage a re r e
mi nded th at a stat e o f w a r exis t s b e t w een G ermany and h e r all i es
and Gre at B ritai n and h e r a ll i es ; th a t th e zon e o f war include s t h e
wa t ers adj acen t t o t h e B ri t i sh I sl es ; t h a t i n acco rdanc e w i th fo r m al
noti ce giv en by th e I mpe ria l Ge rman Gov ernmen t v es s el s fly i ng t h e
fl ag o f Great B ri t ain o r o f any o f h er al l i es a re l i abl e to d e s tr u c
tion i n th os e waters and t h at trav ell ers sa il in g i n t h e wa r z on e o n
S h ips o f G reat B ritai n o r h er al li es do S O at t h ei r o w n ri sk
I M P ER I A L G ER M A N E M B A S SY
W a sh i ngton D G A p ri l 2 2n d 1 9 1 5
I OI 5 )
e w Yo r k Ti m e s M ay 8
T
N
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Travell e rs
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84
TH E
P RO T E CT I O N O F N EUT RA L RI GH TS A T S E A
NO 4 3
S e c o n d A m e r i c an
”
th e
W i l l i am P F r y e
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o
Ap r i l
2 8,
1
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5
9
1
r e g ar d
to
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Th e S e c r e tar y
n o te,
ss
t
t
t
t
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i
n
A
b
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S
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f
at
B er l i n
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Yo u
a re i n structed to p r es ent th e fol low ing note to th e G e rm a n
Fo re ign O ffi c e :
I n reply to Y ou r Excel l en cy s not e o f th e 5 th i nstant whi ch th e
Governm ent o f the Uni ted S ta tes understands adm its th e l i ab i li ty
o f th e I mp eri al G erm an Gove rnm en t fo r th e dam age s r es ulting from
th e s in k ing o f th e A m eri c an s a i l i n g v es sel Wi l l i am P F r y e by th e
Ge rm an auxi l i a ry c ru i s er P r i nz E i te l F r i e dr i c h on J anu a ry 28 l a st
I h av e th e honor to s ay by di r ec ti on o f my Gov ernm ent th at wh i l e
th e promptness w ith wh i ch th e I mp e ri a l G e rm an Gov ernment h a s
a dm i t ted i ts li abi l i ty i s h i gh ly ap pr eci ated my Gov e rnm ent fe el s th a t
i t would b e i n app rop ri at e i n th e c i rcum stan ce s o f th i s cas e and
woul d i nvol ve unn ece s sa ry del ay to adopt th e s ugges ti on i n you r
note th at th e legal ity o f th e captu r e and destru ction th e standi ng
o f th e cl aim ants an d th e am ount o f i nd emn ity s hould b e sub m i tt ed
to a pri ze cou rt
Unqu estionabl y th e d est ru cti on o f th i s v ess el w a s a v iol ation o f
th e obl i gati on s i mpo sed upon th e I mp eri al G erman Gov ernm ent u m
de r exi s t ing tr eaty s tipul a t i ons b etw een th e Uni ted S tat es and P ru ss i a
by vi rtu e o f i ts t reaty ri ghts
and the Un ited S ta t es Gov ernm ent
h a s p res ented to th e I m pe r i a l Ge rm an Gov ernm ent a cl a i m for i n
d e m n i ty o n a ccount o f th e r esulting dam ages s u ffere d by A m eri can
c iti z en s Th e l i abi l i ty o f th e I mp eri al Germ an Gov ernmen t and th e
s tandi ng o f th e cl ai m ants a s A m e ri can c i t i zen s and th e amount o f
i n d emni ty a re a l l q uestion s wh i ch l end th em s elves to dip lomati c
n egot iati on betw een the tw o Gov e rnm ents and h appi ly th e q ues tion
o f l i ab i l i ty h as a l ready b e en se ttled i n th at w ay
Th e statu s o f th e
cl ai m ants an d th e amount o f th e i ndemn ity a r e th e only q u esti on s
rema i ning to b e s ettled and i t i s app rop ri at e th at th ey sh oul d b e d ea lt
w ith i n th e s am e way
Th e Gove rnm en t o f th e U n i te d S tate s ful ly unde rs tands th at a s
s tated i n Y ou r E xc el l ency s not e th e Germ an Gove rnm ent i s l i ab l e
unde r th e treaty p rovi s ion s abov e m ent ion ed for th e dam ages a ri s ing
from th e destru cti on o f th e ca rgo a s wel l a s from th e d estructi on o f
th e ves s el B ut i t w i l l b e ob s erved th a t th e cl ai m unde r di s cus sion
do es not i n clud e dam ages for th e dest ru ction o f th e ca rgo and th e
que stion o f th e v al ue o f th e c ar g o th er e fo r e i s not i nvolved i n th e
p res ent di s cus s ion
Th e Gov ernm ent o f th e Uni ted S tat es r ecogni ze s th a t th e Germ an
Gov ernm ent w i l l w i sh t o b e s at isfi ed a s to th e A m eri c an owne rsh ip
o f th e v es sel
and th e amoun t o f th e damages sus tain ed i n c o n s e
n
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e
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e
o f h e r d est ru cti on
q
The s e m atter s a re r eadi ly a s c ertainabl e an d i f th e G erm an Go v
e r n m e n t des i re s any fu rth er e vi den c e i n s ub stanti a t i on o f th e cl a i m
o n t h es e p oints i n addition to tha t fu rni s h ed by th e sh i p s p ap ers
wh i ch a re al ready i n th e pos s ess ion o f th e Germ an Gov ernment any
add i tional evid en ce found n ec ess a ry w il l b e p rodu ced I n th at cas e
h ow eve r i nasm uch a s any evi den c e wh i ch th e Ge rm an Gov ernment
m ay wi sh to h ave p rodu c ed i s mo re a cc es s i bl e and c an m o re c o n
v e n i e n tl y
b e exam ined i n th e Uni ted S tates than el sewh ere o n
a ccount o f th e p res enc e the r e o f th e own e rs an d capta in o f th e
S ee N o s 3 7 an d 3 9
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TH E
Wi l l i am
P RO T E CT I O N O F N EUT RAL RI GH T S A T S EA
P
85
F r y e and th ei r documenta ry records and othe r poss ible
w i tnes ses th e Government o f th e Uni t ed S tates v en t ures to s ugges t
th e adv i s abi l ity o f trans fer ring th e nego t i a t i ons fo r t h e se tt lem en t o f
thes e po ints t o th e I mpe rial German Emba ssy a t W ash ing t on
I n vi ew o f th e admi s si on o f l iabi li t y by reason o f specific trea t y
st ipulati ons i t has becom e unne ces sa ry to en t e r into a di scus si on o f
th e m eaning and e ffect o f th e Decla ra t ion o f London wh i ch i s given
some p rom in enc e i n Y our Excell ency s no t e o f A p ri l 5 fu r t he r than
to s ay th a t a s th e Germ an Governm ent has al ready be en advi sed
th e Gove rnm ent o f th e Un ited S tate s does not regard th e Decla rati on
o f London as i n fo rce
B RYA N
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1915
44
l o s s o f A m e r i c an l i v e s th r o u g h t h e
No
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“
.
Th e Ge r m an
F o r e i g n Offic e to th e Ger m an E m bass y at l Vas hi ng to n
P l eas e communi cate th e follow i ng to th e S tate Department : Th e
G erm an Governm en t d es i res to expres s i ts de epes t sympa t hy a t t h e
los s o f l i v es o n bo ard th e L u s i tan i a Th e responsibil ity res t s how
ev er w i th th e B ri ti sh Governm ent wh ich th rough i t s plan o f s ta r v
i ng th e c iv i li an population o f Germany h as fo rced G ermany to re so r t
to retal i ato ry m easu res
I n S p i t e o f th e German o ffer to s top th e s ubmari ne wa r i n c as e
th e sta rv ation pl an wa s gi ven up B ri t i sh m erch ant vessel s a re b eing
gen eral ly a rmed w i th gun s and h ave r epeatedly tried to ram sub
m arines s o t hat a p rev ious s ea rch wa s impos s ible
Th ey cannot th e re fo re b e t reated as ordinary m erch ant v es s el s
A rec ent dec la ration m ade to th e B ri tish P a rliament by th e P a rli a
me nta ry S ec reta ry i n answe r to a q uestion by Lo rd Ch a rl es B eres
ford said t h at at th e p res ent practi cal ly all B ritish m erch ant v es sel s
w ere arm ed and p rovided w i t h h and grenad es
B es ide s i t h a s b een op enly admi tt ed by the Engl i sh p res s th a t th e
L us i tani a on p re vious voyages repeat edly ca rri ed l a rge quanti t i es o f
wa r m ate ri al On th e p res ent voya g e th e L u s i tan i a ca rri ed
case s o f ammunition wh il e th e r est o f h er ca rgo al so consi s t ed
chi efly o f cont rab and
I f England a fte r repeate d o ffici a l and uno ffi ci al wa rnings c o n
s i d e r e d h erse l f ab l e to d ecl are that that boa t ran n o ri sk and t hus
l ight h ea r t edly a ssumed r esponsibi l i t y fo r th e human l i fe o n boa rd a
s team e r wh i ch owing to i t s a rmament and ca rgo wa s l i able t o
dest ructi on th e Germa n Gove rnment i n spi te o f i ts h ea rt felt s y m
p athy for the los s o f A m e ri can li ves cannot bu t regret t h at A me r
i c an s felt mo re i nc l ined t o t rus t to Engl i sh p romi s es rathe r than to
pa y attent ion to th e wa rni ngs from th e Germ an sid e
F O RE I G N O F F I C E
Y
r k Ti m e s M ay I I
T
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e
(
No 4 5
G e r m an s t a t e m e n t M ay I I 1 9 1 5 i n r e g a r d t o t h e
t r e at m e n t o f n e u t r a l v e s s e l s i n t h e w ar z o n e
fai r s to th e A m e r i c an A m
o r F o r ei g n A f
Th e Ge r m an M i ni s te r f
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bass ad o r
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Fi rs t
Th e Imp eri al Ge rman Gove rnm ent h as natural ly no i n
tention o f cau si ng to b e a t tacked by s ubma r i nes o r a i rc ra ft such
.
.
TH E
86
P RO T E CT I O N O F N EU T R A L RI GH T S A T S E A
n eutral S h i p s o f comm e r c e i n th e z one o f n ava l w ar fare more
definitely des cri b ed i n th e noti c e o f th e Ge rman A dm i ralty s ta ff
a s h av e b een gui lty o f no hosti l e a ct O n th e
o f Feb rua ry 4 l ast
contra ry th e mos t defin i te i nstru cti ons h av e rep eatedly b ee n i s su ed
to G erm an w ar v es s el s to avo id att ac k s o n such S h ip s under a l l
c i rcum s tanc es Ev en w h en s u ch sh ip s h av e contraband o f w a r on
bo a rd th ey a r e d e al t wi th by s ubma ri ne s s ol e l y a cco r d i ng to th e
rul es o f i nternati ona l l aw apply i ng to p ri z e w ar fare
S econd
S houl d a n eutra l s h ip n eve rth el es s com e to h a rm th rough
Germa n s ubm a ri n es o r a i rc ra ft o n a c count o f a n un fortunate ( X )
P
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stake
$
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m a n Gov ernment w i l l un res e rv edly recogni z e i ts r espons ibi l i ty th er e
fo r I n such a ca s e i t w i l l exp r es s i ts regrets and a fford damages
w ithout fi rst i ns ti tuting a p ri z e cou rt a cti on
I t i s th e c us tom o f th e G e rm an Gov e rnm ent a s s oon as th e
Th i rd
si nk ing o f a n eut ra l shi p i n th e ab ov e ment ion ed z on e o f n av a l w a r
fa r e i s a s cr ib ed to G erma n w ar v ess el s to i nst i tute a n i m m edi at e
i nv estigati on i nto th e c au s e I f grounds app ea r th e reby to b e gi ven
fo r as so ci ation o f s u ch a hypoth es i s th e G e rm an n avy p la c es i ts el f
i n comm uni cation wi th th e i nt ereste d n eu tra l Gov e rnm ent s o th at
th e l atte r m ay al so ins ti tut e a n i nv esti gati on I f th e Germ an Gov e rn
m en t i s the reby conv i n c ed th a t th e S h ip h as be en d estroyed by Ge r
m any s w a r v es s e ls i t w i l l no t delay i n c a r rying o u t th e p rov i s ion s o f
P a ragraph 2 abov e
I n ca s e th e Germ an Gove rnment contra ry to
th e v i ewpoi nt o f th e neutra l Gov ernm ent i s not convi n ced by th e
resul t o f th e i nve sti gati on th e G erm an Gov e rnment h a s a l r e ady o n
s everal oc cas ions decla red i ts el f r eady to al low th e q uestion to b e
dec ided by an int e rnati onal i nv esti gation com m is s ion a c co rdi ng to
Ch apte r 3 o f Th e H ague Conv ention o f O c tob er 1 8 1 9 07 for th e
pe ac e fu l s ol uti on o f i nt ern ati ona l di sput es
T
r k Ti m e s M a
2
h
N
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F i r s t A m e r i c an n o t e , M ay 1 3 , 1 9 1 5 r e g ar d i n g th e
l o s s o f A m e r i c an l i v e s an d th e i n ju r y to A m e r i c an c o m m e r c e
i n c i d e n ta l t o t h e n av a l w ar far e
No 4 6
.
.
,
.
f S tate to th e A m e r i c an A mbas s ad o r at B e r l i n
P leas e c al l o n th e M ini st er o f Forei gn A ffa i r s and a fte r r ea d ing to
h i m th i s com mun i cat ion l eav e w i th h i m a copy
I n v i e w o f r ecent a cts o f th e Ge rm an au th o ri t i e s i n v i ol ati on
o f A m eri can ri gh t s o n th e hi gh s ea s wh i ch cul m inate d i n th e to r
i
n
e
d
o
m
and
S
inking
o
f
th
e
B
rit
is
h
st
ea
sh ip L u s i tan i a o n M ay 7
p
g
1 9 1 5 by wh i ch ove r 1 0 0 A m e ri can ci ti z ens lost th ei r l i v es
it i s clea rly
w i s e and des i rabl e th at th e Gov ernment o f th e Uni ted S tates and
th e I mp eri a l Ge rm an Gov e rnm ent sh oul d c om e to a cl ea r an d fu l l
unde rstanding a s to th e grav e S i tuation wh i ch h a s r esult ed
Th e s inking o f th e B r it i sh p a s s enge r ste am er F al ab a by a Germ an
subm a rine o n M a rch 28 th rough wh i ch Leon C Th rash er an A me r
i can citi z en w a s drown ed ; th e atta c k o n A p ri l 2 8 o n th e A m e ri can
ves s el C us h i ng by a Germ an aer Op l an e ; th e to rpedoi ng o n M ay 1 o f
th e A m eri can ve ss el Gu l fli g h t by a G erm an s ubm a ri ne a s a re s ul t
o f w hi ch two o r more A m eri can c it i z en s m et th e i r death ; and final ly
th e torp e d oing and s in k ing o f th e steam sh ip L u s i tan i a con s ti tut e a
s eri e s o f events wh i ch th e Governm ent o f th e Uni ted S tate s h as
o b se r ve d w ith gr o w i ng c o nce rn d i st re s s and am az e me n t
Th e S
e c r e tar y o
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,
88
TH E
P RO T E CT I O N OF N EU T R A L RI GH TS A T S E A
c rew an d a l l o n b o a rd o f h er to th e me rcy o f th e s e a i n h er s m a ll
boats Th es e fa cts it i s und ers tood th e I mp er i a l Ge rm an Gov e rnment
frankly admit W e a r e in fo rmed th at i n th e i ns tan ces o f whi ch w e
h av e S po k en t im e enough fo r ev en th a t poo r m eas u re o f s afe t y wa s
and i n a t l east two o f th e cas es ci ted not s o m u ch a s a
n o t giv en
w a rning w as recei ved M an i fes tly s ubm a ri nes c annot b e u s ed aga ins t
m erch antme n a s th e l as t few w e eks h ave S h own w i thout an i n evi
t ab l e vi ol ation o f m any s ac red p r incipl es o f j u sti c e and hum ani ty
A m eri can c i tiz en s a ct w i th i n th ei r i nd i sputab l e r i ghts i n takin g
th ei r s h ip s and i n trav el ing wh er eve r th ei r l egiti m a te bu s i nes s ca ll s
th em upon th e h i gh s ea s and e xerc i s e tho s e ri gh ts i n wh at sh ou ld
b e th e w el l ju s ti fie d confidenc e th at th e i r l i ve s w i l l not b e endangered
by a cts don e i n c l ea r v iol ation o f uni ve r sal ly a c k nowl ed ged i nterna
and ce rtai nly i n th e confid en c e th at th e i r own
ti o n al ob l igati on s
Gove rnm ent wi ll s u sta i n th em i n th e exerci s e o f th ei r ri gh ts
Th e re w a s r ec ently pub l i sh e d i n th e n ewspap ers o f th e Un ited
S tat es I regre t to i n fo rm th e I mp eri a l G erman Gov e rnm ent a fo rm a l
w a rn ing pu rporting to come fro m th e I mp e ri al Ge rman Emb as sy a t
W ash i ngton add res s ed to th e p eop l e o f t h e Unit ed S tat es and s tati ng
i n e ffect th a t any ci t iz en o f th e Uni ted S tat es w ho exe rc i s ed h i s
ri ght o f free t rav el upon th e se as wou l d do so at h i s p eri l i f h i s
j ou rn ey S h oul d take h i m w ith i n th e z one o f w at e rs w i th in wh i ch
th e I mpe ri al Germ an n avy w a s u s i ng s ubm a rin e s agai nst th e c o m
m e rc e o f Gr eat B ri tai n an d Fran c e notwi th stan d ing th e r esp ect ful
b u t ve ry ea rn es t p rot es t o f hi s Gov ernm ent th e Gov ernment o f th e
Uni ted S tates I do not r e fe r to th is fo r th e p u rpos e o f cal li ng th e
attenti o n o f th e I mp e ri a l German Gov ernm en t at th i s ti m e to th e
s u rp ri s ing i rregul a ri ty o f a commun i cati on from th e I mp eri al Ge rm an
Emb a s sy a t W ash i ngton addre ss ed to the p eop l e o f th e Un ited S tat e s
th r o ugh th e newsp ap ers b ut onl y fo r th e pu rp os e o f point ing out
th at no wa rni ng th a t an unl aw ful a n d i nh u m an e a ct w i l l b e c o m
m i tte d c an pos s ibly b e a c cepted as an excus e o r p al li at ion fo r th at
a c t o r as an abatem ent o f th e r espon s i b i l i ty fo r i ts comm i s si on
Long a cqu a i nted as th i s Gov e rnment h as b een w i th th e ch a ra cte r
o f th e I mpe r i al Ge rm an Gov e rnm en t and w ith th e h i gh
p rincipl es
o f equi ty b y wh i ch th ey h av e i n th e p a s t b e en ac tuated and gu ided
th e Gov ernm ent o f th e Uni te d S tates ca nnot b el i ev e th at th e c o m
manders o f th e ve s s el s whi ch comm i tted th es e acts o f l aw l e s sn es s
d id s o exc ept u nde r a m i s app r eh ens i on o f th e o rders i s s u ed by the
I mp eri al Germ an naval author it i es I t tak es i t fo r granted th at at
l eas t wi th i n th e p ra cti ca l pos s i b i l iti e s o f eve ry su ch ca se th e com
m an d er s e v en o f s ubm ari n es w e r e expecte d to do nothi ng th at would
involv e th e l i ves o f noncomb atants o r th e s a fety o f n eutral sh ip s
eve n a t th e cost o f fai l in g o f th ei r obj ect o f captu r e o r des t ru cti on
I t confidently exp ects th er e fo r e th a t th e I mpe ri a l Germ a n Gov ern
m ent w i ll di s avow th e a cts o f wh i ch th e Gov ernm ent o f th e United
S tates compl ai ns th at th ey w i l l m a k e repa rat ion s o fa r a s repa rati on
i s p oss ibl e fo r inj u ri es wh i ch a re w i th out m eas u re and th at th ey wi l l
ta k e imm edi ate steps to pr ev en t th e r ecu rren c e o f anyth ing s o
O bv iou sly s ubv e rsi v e o f th e p ri n cipl es o f wa r fa re fo r wh i ch th e
I mp eri al G erm an Gov ernment h ave i n th e pa st s o w i s ely and s o
fi rm ly contende d
Th e Governm ent and p eopl e o f th e U ni t e d S tat es l oo k to th e
I mperi al Ge rm an Governm ent for j us t p rompt and enli gh tened acti on
i n th i s vi tal m atte r w i th th e gr e at er confid ence b ecaus e th e Uni ted
her
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TH E P ROT E CT I ON OF NEU T R AL R I GH TS AT S E A
89
S tate s an d German y a re bound togeth er not only by spec ial t i es o f
fr i endsh i p but a ls o by t h e expli ci t s t ipula t i ons o f the t reaty o f 1 828
b etween the Un ited S tates and t h e Kingdom o f P rus si a
E x p r e ss mn s o f regre t and o ffers o f reparation i n ca s e o f th e de
s truct i on o f neutra l sh ip s sunk by m i s t ake whi l e they may sati s fy
i nternational obl iga t ions i f no los s o f l i fe results cannot j us t i fy
o r excus e a p racti ce
th e n a t ural and n ece s sary e ffec t o f wh ich i s
to s ub j ect n eutra l nations and neutral p e rsons to ne w and i m m e as
u r ab l e ri s k s
Th e Imp eri al Germ an Governm ent w i l l not expec t th e Gove rn
m ent o f th e Uni ted S tates to omi t any wo rd o r any act neces sa ry
to th e per fo rmanc e o f its s ac red duty o f mainta ining th e ri ghts o f
th e United S t ates and i ts ci tiz en s and o f sa fegua rd ing th ei r free
e x e rci se and enj oyment
B RYA N
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o
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m e m o r an d um , M ay 2 0 , 1 9 1 5 i n
B rit i
*
d e t e n t i o n o f A m e r i c an s h i p s an d c ar g o e s
No 4 7
.
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to
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Th e r e a r e at th e p resent mom ent th re e A m eri can sh ip s
Fi rs t
d eta in ed i n th i s country Tw o o f th em a re cotton S hi p s wh ich a re
d ealt wi th below Th e th i rd i s th e steam er J o s e ph W F o r d n e y
Th i s v esse l w ith a ca rgo o f foodstu ffs con signed t o E Kl i n g e n e r at
Malmo ( Sweden ) wa s b rought into Ki rkwall o n A pri l 8 Sh e h ad
b een s igh ted by H i s Maj esty s S h ips abou t ten m i l es from th e No r
w e g i an coast and h ad th ereupon endeavored wi t h th e evident desi re
to evad e s ea rch to es cap e rapi dly into No rw egi an t erritori al waters
but w ithout s ucc es s
O n th e vesse l s a rrival in Ki r kwal l inqui ri es we r e at onc e ad
d r es sed to h i s Maj esty s M i n i ster at S tockholm with regard to th e
con s ign ee o f th e ca rgo and a r eply was rec ei v ed to th e e ffect th a t
n o p ers on o f th at nam e could b e identifi ed at Malmo though t h ere
was a p erson o f th at name who resided at Goth enbu rg and wa s m an
age r o f th e Goth enbu rg b ranch o f Hugo H ar tv i g and who had stated
th at th e cons ignmen t s address ed to h i m on board th e J o s eph W
F o r d n ey w e re intend ed fo r storage i n M almo
S econd
Th e su spi cious conduct o f th e v ess el i n en d eavo ring to
el ud e H i s Maj esty s p atrol s and th e known conn ecti on s o f t h e con
s i gn ee o f h er ca rgo h av e tended to confi rm oth e r evidenc e wh i ch
h a s c om e to th e knowl edge o f H i s Maj esty s Gov ernm en t th a t t h e
foodstu ffs w er e i n reali ty d estin ed fo r Ge rmany I t wa s accord ingl y
d ec ided th at the ca rgo mus t b e pl aced i n th e pri z e cou rt and t h e
v ess el i s a t pr es ent di s cha rgi ng a t P orti sh ead Engl and o n th e c o m
o
f
wh
i
ch
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ration
S
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l
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i
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H i s M aj esty s Government feel s ati sfied t h at i n the C i rcum stance s
o f th i s ca s e undue inter ferenc e w ith A m er i can i nterests cannot w i t h
r ea son b e i mputed to th em
Th e numbe r o f neutral v esse l s ca rrying A m eric an ca rgoes
Th i rd
and at p res ent h el d up i s th i rty si x O f th es e tw en t y th ree ca rry
c a rgoe s o f A m eri can cotton Th e Uni ted States Governmen t a re
awa r e that si nce th e en fo rcement o f th e blockad e m easures ah
O
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p
p
S ta t e s t b e l l i gere n t an d n eu t r al c o u n t r i e s i n J an u a r y an d F e b ru a r y 9 4 w i th t hos e
i n th sa me m on t h s f 9 5 A a ddi t i onal ta b l e ho w s an i n c re as e i n th A mer i c an
e p o r ta t i o n f b a c on a n d l a r d t n eu t r al c o u n tr i e s i n M a r c h 9 5
.
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1
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,
1
1
.
S h ipments o f cotton c la i m ing th e abov e p rote cti on a r e to
b e d ecl a r ed b e fore s a i l ing and docum ents p rodu c ed and c ertifi cates
obtained fro m Consul a r o ffi c e rs o r oth e r autho riti e s fi x ed by th e
Gov ernment
Fou rth
I n a c c ept ing th i s s ch em e w hi ch i t m ay b e note d appl i e s
to sh ipm ents o f cotton fo r a n eutra l d es ti n at ion only th e p ri nc ip al
rep res ent ati v es o f th e A m e ri c an co t t on i nter ests de s cri b ed i t to h i s
M aj e s t y s A m ba ss ado r a t W a sh ington as conc e d ing a l l th at th e
A me ri can i nt eres ts coul d p rop e rly ask
I t w a s n ev er sugges ted th at
v ess el s o r c a rgoe s w i t h an en emy d es ti n ati on S h ould b e al lowed to
H i s Maj esty s Governm ent we r e mo reov er gi v en to under
p roc eed
s tand th at th e p rov is ion s o f th e a rra ngem ent w e r e a cc ep tab l e to th e
United S tates Gove rnm ent
F i fth
I t i s intended sh ort l y to fu rni sh a s tat ement S h o wing p r e
c i s e l y wh at ca rgoe s o r
po rtion s o f c argo es h i s M aj es ty s Govern
ment h av e d ea lt w i th unde r th e a b ove a rrangem ent and a s r ega rd s
thos e w h i ch th ey h av e d ec ided to p u rch as e a t th e contra ct p ri c e unde r
th e term s o f P aragraph A o f th e a rran gem ent d i rect di s cus s ion s
h av e a l ready b een op en ed w i th the s p ec i al r ep res entati v e s o f th e
A meri can p arti e s inter es ted i n London
S i x t h — A cons i derab l e porti on o f th e cotton h a s al rea d y b een
sold and a rrangem ents a r e b eing m ade fo r h andi ng ov e r th e p rocee d s
to th e p a rti es entitl ed to rec ei v e th e total v a lu e a s a fi rs t i nstal lm ent
o f th e compl eted t rans a ction
I t i s obv i ou s th a t a l l th es e a rrange
m ents requi r e som e ti m e for adj u stm ent M eanwh i l e i t i s not be
l i e v e d th at th e ori ginal own ers c an a s app ea rs to b e app reh en d ed
b e su ffer ing a cutely b y th e del ay o f fu ll p aym ent I t i s to b e p re
s um ed th at i n a cco rdan c e w ith th e cu stom s o f t ra de th e owne rs d rew
bi ll s to th e v al u e o f th ei r goods b e fo r e o r at th e ti m e o f S h ipment
and i f s uch b i l ls ha v e b een n egot i ated in th e u s ua l w ay i t i s d i ffi cult
to unde rstand why th e d rawe rs sh ould b e put t o i nconveni en c e o n
thi s a ccount at l eas t be fo r e th e date wh en th e b i l l s fal l due
S eventh
O n an impa rti a l r evi ew o f th e facts i t w i l l h i s M aj
e s ty s Gov e rnm ent feel su re
b e adm i tt ed th at no a rb i tra ry i n te r fe r
enc e w ith A meri can i nte rests h as in re ga rd to th e s e c a rgoe s o c
cu rred s eeing th at h is Maj e sty s Gov ernment h a s acted th rough out
con
fo
rm
ity
w
i
th
th
e
te
rm
s
o
f
an
a
rrangem
ent
agr
eeabl
e
to th e
in
i nterests concern e d and th at Un i ted S tat es c i ti z en s w i l l s u ffer no
p ecuni ary l os s
As regards oth er Am e ri can c a rgoe s o r porti ons o f c ar
Ei gh t h
go es wh i ch h av e b een pl a c ed i n th e p ri ze cou rt h i s M aj esty s Gov
e r n m e n t resort to th i s m easu re i n c as es wh er e e ith e r th e goo d s c o n
C
A ll
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T H E P ROT E CT I ON OF NEU T RAL RI GH TS A T S E A
92
count ri es i n q ues t ion i n th e ves s el s wh i ch th ey h av e d eta ine d but
th ey would c a l l attention to th e fa ct th at it i s on ly wh en th ey h ave
b eli eved th em se lv es to b e i n pos ses s ion o f concl us i v e evid en c e o f th e
enemy desti nation o f a ca rgo th a t th ey h av e s ei z ed s u ch a c a rgo and
that A m eri ca n i ntere sts a s fo r i n stan c e i n th e c as e o f cotton h ave
re ceiv ed e sp ec ial ly symp ath et i c cons ide ration
Y
o r k Ti m es M ay 2 1
T
h
e
e
N
w
(
,
'
,
,
,
.
,
,
No 4 8
S tat e m e n t o f th e S e c r e tar y o f S t ate M ay 2 1 1 9 1 5
r e ar d i n g an e r r o r i n N o 4 7
g
Th e fo rei gn t rad e adv i s ers att ention h a s b een c al l ed to th e state
m ent o f th e Foreign O ffi c e o f G r eat B ri ta in p ub li she d i n th is mo rn
i ng s pap ers a n extra ct from wh i ch fo llows :
Fou rth
I n a ccepti ng th i s s ch em e w h i ch i t m ay b e noted ap
p l i es to s h ipm ents o f cotton fo r a n eut ra l d esti nation only th e p rin
rep res en t ativ e o f th e A m eri can i nt er ests d es c rib ed i t to h i s
c i p al
Maj esty s A mb as s ado r a t W a sh i ngton a s c onc eding al l th at th e
A m e ri can in t er ests could p rope rly a sk
I t wa s nev er suggested th at
v es s els o r ca r g o es w i th an en emy d estin ati on S hou ld be a l lo wed t o
p roc eed H i s Maj es ty s Gove rnm ent w ere m o reov e r gi v en to unde r
stand th at th e p rov i s ion s o f th e a r rangem ents we r e ac c eptabl e to th e
”
U ni te d S ta t es Gove rnm ent
Th e p lan re fe rred t o i s th e o n e wh i ch w a s ent er ed i nto b etwe en
th e cotton sh ippe rs o f th i s country and th e B ri ti s h Emb as sy a po rti on
fic e
o f wh i ch i s quoted i n th e s tatem ent o f the B ri ti s h Fo reign O f
W i t hou t di s cu ss ing a t th i s ti m e th e s tatement th at i t w a s n ev er
s uggested th at v es s el s o r c argoes wi th an enemy des tin ation should
”
b e a llowed to p roceed th e fo rei gn trade advi s ers wh o in fo rm al ly and
uno ffic i ally rep res en t ed th e co t ton S hipp ers i n the n egoti at ions wh i ch
l ed to th e s o cal led cotton a rrangem en t state th at i t w as di stin ctly
unde rs tood b etw een S i r A rth u r Ce c i l S p ring Ri c e th e B riti sh A m
b ass ad o r and Rob ert F Ros e the fo r eign t rade a dvi s er conducting
th i s d is cu s si on o n b eh al f o f th e A me ri can cotton export ers th a t
noth ing don e by th e fo rei gn trad e a d v i s ers S houl d b e re garded a s
o ffi ci al and th at ev e ryth i ng don e wa s to b e consi der ed a s i n forma l
and uno ffi c ial and i n no w ay b inding th e Uni te d S tate s Gov ernm ent
to any a rrangem ent r ea ch ed o r b e construed as a r ecogni tion o f
th e O rde r i n Counci l to b e i s su ed o r th e Decl a rati on o f M a rch I
wh ich h a s b een i ss u ed Th i s stat em ent w a s m a d e t o th e B riti sh
A mbas s ado r o n Ma rch 3 wh en the fi rs t con fe ren ce i n th e m atte r
wa s h el d w a s repeated a t e ach sub s equent con ferenc e and e ach
ti m e th e absol ute a ss uranc e fro m th e B ri ti sh A mb a s s ado r wa s r e
c e i v e d th at
i n acti ng for th e cotton s h ippe rs i n any way th e fo rei gn
t rad e adv i s er s were to b e r ega rd e d a s not rep res enti ng th e United
S tates Gov ernm ent i n any m ann er
T
h
( e N e w Yo r k Ti m es M ay 2 2
.
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-
,
—
,
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,
,
,
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,
,
,
,
,
.
,
No
,
m
S
t
a
e
e n t o f t h e B r i t i s h E m b as s
t
49
y
c o r r e c t i n g th e e r r o r i n N o 4 7
.
.
.
Th e
,
M ay
21
,
1
9 5,
1
.
te rm s o f the a rrangement quoted i n th e B ri ti sh statem ent a s
t el egraph ed w er e a rri v ed a t i n London b etw e en a p riv ate re p resent a
t i v e o f th e A me ri can cotton in t erests i n London and B ri t i sh o ffic i al s
i n London Th e re fer ence to th e B ri ti sh A mba ss ado r i n P a ragraph
4 i s the re fore an e rror
.
,
,
.
P RO TE C TI O N
TH E
O F N EUT RAL RI GHT S A T S EA
93
Th e
a rrangement in ques tion fo rmed t h e subj ec t o f convers a t i ons
b et w een th e A mbassador and rep res en t a t i ves o f t he co tt on in t ere s t s
i n th i s country There ne ve r wa s any ques t ion o f a formal and
O ffi ci a l unde rstanding between t h e Uni ted S t a t e s Gove rnmen t and th e
B r i t i sh Emba s sy
.
.
( Th e N e w
NO
0
Yo r k Ti m e s
F i r s t Ge r m an
5
o f A m e r i c an
.
.
lo ss
i n c i d e n t al
live s
,
M ay
t
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an d th e
M ay
i nju r y
t o th e n av a l w ar f a r e
Th e M i n i s te r
22,
28,
1
ding
r e g ar
9 5,
1
t o A m e r i c an
th e
co m m e r c e
*
r
o
ei g n A f
F
fai r s to th e A m e r i c a n A m b as s ad o r
f
Th e unders igned h as th e hono r to m ake t h e fo l l o w m g reply t o
th e note o f H i s Excellency M r J am es W G erard A mbas sado r o f
the Uni ted S tate s o f A m eri ca dated th e fi f t een t h ins t an t o n t he
s ubj ect o f th e i mpai rment o f many A merican in t e rests by th e G er
m an submarine wa r
Th e I mperi al Governm ent has subj e cted th e s ta t ements o f th e Go v
e r n m e n t o f th e Uni t ed S tat es to a ca re fu l exam i na t ion and h as t h e
l ively w is h o n i ts part al so t o contribute i n a conv incing and fri endly
m ann er to cl ea r up any mi sunders t andings whi ch m ay h ave en t e red
i nto th e relations o f the two Governm en t s th rough t h e ev ents m en
ti o n e d by th e A me ri can Government
W ith rega rd fi rs tly to the cas es o f th e A meri can steam e rs C u s h i ng
l i g h t th e A m eri can Embas sy h as al ready b een i n form ed
an d Gu l f
tha t i t i s fa r from the Ge rman Gove rnm en t to h av e any intenti on
o f orde ri ng a ttacks by subma rin es o r fl y e r s o n n eu t ral ves s els in
th e z one wh ich have not been gui l t y o f any hos t il e ac t ; o n t h e con
t r ar y th e mos t exp li ci t ins t ruc t ions h av e been repea t edly given t h e
Ge rm an a rm ed fo rces to avoid at t acking such v es se l s I f n eu t ral
v es s el s have come t o gri e f th rough t h e German subm ari ne wa r du r
i ng th e pa s t few mon t h s by m i s t ake i t i s a ques t ion o f i sol a t ed and
exceptional cas es wh i ch a re t raceabl e to th e m i sus e o f fl ags by t h e
B riti sh Gove rnm ent in connec t ion w i t h carele s snes s o r s uspi ci ous
a ctions o n th e pa rt o f th e cap t a in s o f t h e vess els I n al l cases wh ere
a n eut ral ves s el th rough no fau lt o f i ts o w n h a s come to gri e f
th rough th e German subm a ri ne or fl y e r s acco rding to th e fac t s a s
a sc e rta in ed by th e German Governm en t th i s Governm ent h as ex
p re s s ed i ts regret a t the un fo rtunate occurrenc e and prom ised i n
T h e German Governmen t
d e m n i fic ati o n wh ere th e facts j us t ified i t
w i l l t rea t th e cas es o f th e A me ri can steame rs C a s h i ng and Gu l fli g l z t
ac cordi ng to th e s ame p rincipl es A n i nves t iga t ion o f th es e ca ses
i s i n p rogres s I t s results wil l b e communi ca t ed t o t h e Emba s sy
sho rtly Th e i nvestigati on m i ght i f t hough t desi rabl e b e s upple
m e n te d by an I n t ernati onal Comm i ss ion o f Inqui ry pu rsuan t t o
T itle Th ree o f Th e H agu e Conv en t i on o f O c t obe r 1 8 1 9 0 7 for t h e
paci fic s ett le ment o f in t e rna t ional di spu t es
I n the c as e o f th e si nking o f t he Engl i s h s t eame r F al aba t h e com
m and e r o f th e G erm an s ubma rine had t h e in t en t ion o f al lowing
a
s
s
enge
rs
and
c
rew
ample
O
ppor
t
uni
t
y
t
o
save
thems
el
ves
p
I t wa s n o t unti l t h e captai n dis rega rded t h e orde r t o lay t o and
took to fl i gh t s ending up rocket s ignal s fo r help t h a t th e G erman
commande r o rd ered th e c rew and pass engers by si gnal s and mega
A
s a m atter o f fact h e
hone
l
eav
e
th
e
S
hip
w
ith
in
1 0 m inut e s
t
o
p
or
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See
NO
.
46
.
94
TH E P RO T E CT I O N OF N E U T RA L RI GH T S A T S E A
al low e d th em 2 3 m inut es an d d i d not fi r e th e to rp e d o unti l s usp i ci ous
ste am e rs w er e hu rrying to th e a id o f th e F al aba
W i th rega rd to th e los s o f l i fe w h en th e B r i ti s h p as senger st eam e r
L us i tan i a w as s unk th e G e rm an Gove rnm ent h a s al r eady exp re ss ed
its deep regret t o th e n eutral Gov e rnm ents conce rned th at n ationa l s
o f thos e countrie s los t th ei r l i ve s on th a t oc ca s ion Th e I mp e ri al
Gov ernm ent m us t s tat e fo r the r es t th e i mpr essi on th at ce rtai n
i mportant fa cts most di r ectly conn ected w i th th e s in k i ng o f th e
L us i ta n i a m ay h av e es cap ed th e a ttention o f th e Gov ernme nt o f th e
Uni ted S tates I t th e r e fo re con si d er s i t n ec es s a ry i n th e interest o f
th e c l ea r a nd fu l l unde rstanding a i me d a t by e ith e r Gov ernm ent
p ri m a ri ly to conv i nc e i ts el f th at th e reports o f th e fa cts w h i ch a re
b e fo r e th e two Gove rnm ents are compl ete a nd i n a gre em ent
Th e Gove rnm ent o f th e Un ited S tates p roceeds o n th e a ssumption
th at th e L u s i tan i a i s to b e cons id er ed a s a n o r d ina ry una rm ed m e r
ch an t v es se l Th e I mpe r ia l Gov ernm ent b egs i n th i s connecti o n to
po int out th a t th e L us i tan i a w a s o n e o f th e l a rges t and fa stest En g
l i s h comm e rce st eam ers const ru cted w i th Gov ernm ent funds a s
a uxi l i a ry c rui s ers and i s exp res s ly i ncluded i n th e n avy l i st p ub
l i s h e d by B ri ti sh A dm i ra lty
I t i s m o re ov e r known to th e I mp eri a l
Gov e rnm ent f rom rel i abl e i n fo rm ation fu rn i sh ed by i t s o ffi c ia l s and
n eut ra l pa s s enge rs th at fo r som e ti m e p racti c a l ly a l l th e mo re v al
Engl is h m erch an t v es s el s h av e b een p rovid ed w ith guns
u ab l e
a mmuni t i on and othe r w eapons and rei n fo rced wi th a c rew S p eci a lly
p ra cti c ed i n m anni ng guns A cco rding to repo rts a t hand h e r e th e
L u s i tan i a wh en s h e l e ft Ne w Y o r k undoubtedly h ad gun s on boa rd
wh i ch w er e m ount ed unde r d ec k s an d m ask ed
Th e I mpe ri a l Gov ernment fu rth erm o re h a s th e h ono r t o d i rect
th e p a rti cul a r attention o f th e A m e ri can Gov ernm en t to th e fac t th at
th e B ri ti sh A dm i ral ty by a s ec r et in st ructi on o f Feb ru ary o f thi s
yea r a dvi s ed th e B ri t i sh m e rch ant m a rin e not on ly to se ek p rotecti on
beh ind neu tral fl a gs and m a rki ngs b u t ev en wh en so d isgu i s ed to
atta ck Ge rm a n s ub ma ri n es by ram m in g th em H igh rewa rds have
b een o ffe re d by th e B ri ti sh Gove rnment a s a S p ec i a l i nc enti v e fo r
th e dest ru ction o f th e s ubm a ri n es by m e rch ant v es s el s and su ch
rewa rds h ave a l ready b een p a i d o ut I n v i ew o f th es e fa cts wh i ch
a re s ati s facto ri ly known to i t the I mp eri a l Gov ernm en t i s u nab l e to
cons id er Engli s h m e rch ant v es s el s any longe r a s unde fend ed t er
”
r ito ry i n th e zon e o f m a r iti m e w a r d esi gna ted by th e A dmi ralty
S ta ff o f th e I mp e ri a l G e rm an n avy th e G erman com m ande rs a re
cons e q u ently n o longe r i n a pos i t ion to ob s er v e th e ru l es o f c aptu re
oth erw i s e u s ua l and w ith wh i ch th ey i nva ri ably compli e d b e fo r e th is :
La stly th e I mper i al Gove rnm ent m u st sp eci ally point out that o n
h e r l as t tri p th e L u s i tan i a a s o n ea rl ie r o cca s ion s h a d Cana d ian
troop s and m uni ti on s o n boa rd i n cludin g no l es s than
ca s es o f
amm uni ti on d esti n ed fo r th e d est ru ction o f b rav e Ge r m an s o l d i e r s
wh o a r e fulfill in g wi th s el f s ac r i fic e and d evoti on th ei r duty i n th e
se rvi ce o f th e F ath erlan d Th e German Gov e rnm ent b el i ev es th at
i t a ct s i n j u st s el f d e fen c e w h en i t s eek s to p rotec t th e li ve s o f i ts
soldi e rs by d est roying a mmun iti o n des ti ned fo r th e en emy wi th th e
m ean s o f wa r a t i ts comm and Th e Engli sh s team sh i p company mu st
h ave b een aw ar e o f th e dange r s t o wh i ch pa s s enge rs on boa rd th e
L us i tan i a w e r e expos ed unde r th e c i rcum stan ces I n ta k ing th em
on boa rd i n S p i te o f th i s th e company qui te d eli be rat ely tri ed to u s e
th e l i ve s o f A m er i c an c i t i z e ns as p r o tec t i o n fo r the ammuni t i o n
'
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THE P RO TE C TI O N OE NE UTRAL RI GHTS A T S E A
6
9
s h ips i n th e Engl i s h z one o f nava l war fa re I n cons e q u enc e h e
a r ri v ed a t th e conc lu s ion from a l l th e c i rcum stanc e s th at h e h ad to
dea l wi th a n Engl i s h s team er s ubme rged and attac k ed
Th e to rp edo cam e i n t h e i mm edi ate neighbo rhood o f on e o f th e
convoy s hi p s wh i ch a t on c e rap idly app roach e d th e poi nt o f fi r i ng ;
th at th e s ubm ari n e w as fo rced to go to a great dep th to a voi d be ing
rammed Th e con clus ion o f th e comm ande r th at an Engl i sh convoy
S hip w as conc ern ed w a s i n th i s w ay c o n fir m e df That th e atta cked
s team er c a r ri ed th e A me ri can fl ag w as fi rs t obs erv ed a t the m om ent
Th e fact tha t th e stea m shi p w as p u rsu ing a
o f fi ri ng th e S hot
course whi ch l ed ne ith er to no r from A m e ri c a w a s a fu rth er rea son
why i t d id n o t o cc ur to th e com man d er o f th e s ubm a ri ne th at h e
w a s dea l ing w ith an A m e ri can s team ship
Upon s c rutiny o f th e ti m e and p l a ce o f the o c cu rr enc e d es c rib ed
th e German Gove rnm ent h a s b ecome convi nced th at the a ttack ed
s teams hip wa s a ctua l ly th e A m eri can s team sh ip Gulfli g h t Th ere c an
b e n o doubt a cco rding to th e attenda nt ci rcum stanc es th at th e atta ck
i s to b e attri buted to a n un fo rtun ate a c cident an d not to th e fault
o f the commander Th e Germ an Gov ernm ent exp res s es i ts r egr ets
to th e Gov ernm ent o f th e United S tat es con ce rn ing th i s i nc i dent and
decl a res its el f r eady to fu rn i sh ful l r ecomp ens e fo r th e d amage
th ereby s u sta ined by A m e ri c an ci ti zen s I t i s le ft to th e d is c retion
o f th e A m eri c an Gov ernm ent to p res en t a s tatem ent o f thi s da mage
or
i f doubt m ay a ri s e ov er i ndivi dual p oints to d esi gnate an exp ert
wh o woul d h av e to dete rm i ne togeth e r w ith a Germa n exp ert th e
amount o f d a mage
I t h as n o t yet b een pos sibl e by m ean s o f a n in q ui ry to c l ea r up
ful ly th e c as e o f th e A m e ri can S h ip Cu s h i ng O ffic i a l r eports a vai l
ab l e repor t only on e m erch ant sh i p attacked by a G e rman flying
m a chi n e i n the vi c ini ty o f No r d h i n d Li gh tsh ip Th e Ge rm an av iato r
w a s fo rc ed to cons ider th e v es s el a s hosti l e b ecau s e i t c a rri ed no fl ag
a nd fu rth e r b ecau s e o f n o re cogn iz ab l e n eutra l m a rkings Th e
a tta c k o f fou r bomb s w as o f cou rs e n ot a i m e d at any A me ri can
S h ip
H oweve r th at th e sh ip attac k e d wa s th e A m e ri can s team er Cus h i ng
i s poss i bl e cons ide ring th e ti m e and p la c e o f t h e oc cu rrenc e Nev er
th e l e s s th e G erm a n Gov ernm ent ac co rd ingly re q u es ts o f th e A m e ri
c an Gove rnment tha t i t communi cat e to th e G erma n Gove rnm ent th e
m ateri al wh i ch w a s s ubm itted fo r j u d gment i n o rde r th at w ith th i s
a s a bas i s a furth e r pos i tion c an b e tak en i n th e m atte r
Th e unde rs igned l eav es i t to th e A mba s s ador to b ri ng th e fo re
g oing to th e im medi at e attention o f h i s Gove rnm ent and takes th i s
O pportuni ty to r enew to h i m th e as s u ranc e o f h i s mos t di stingu i sh ed
cons id eration
V ON J A GO W M i n i s te r fo r F o r e i g n A f
fai r s
( Th e N ew Y o r k Ti m e s J u n e 5
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No 5 2
S e c o n d Ge r m an n o t e
” 3*
W i ll i am P F r y e
Th e M i n i s te r fo r F o r e i g n A ffai r s
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Jun e
7
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1
9 5
1
,
in
r e g ar d
to t h e
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to th e
A m e r i c an A m bas s ad o r
Th e
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unde rsi gn ed h a s th e h ono r to m a k e th e follow ing r eply to
th e not e o f H i s Exc ell ency M r J am es W G era rd A mbas sador o f
th e Un i ted S tates o f A m er i ca d ate d A p ri l 3 0 1 9 1 5 Fo reign O ffi c e
S
N o s 3 7 3 9 an d 4 3
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ee
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TH E P RO TE C TI O N O F NEU TR A L
RI GH T S
AT S E A
97
number
on th e subj ect o f th e S in ki ng o f th e A m eri can s ailing
vesse l Wi l l i am P F r y e by th e German auxili ary c ruis er P r i nz E i tel
F r i e dr i c h ;
Th e Ge rman Government cannot admi t that a s th e A meri can Gov
e r n m e n t a ssum es
t h e d estruction o f t h e s ai ling vess el m en t ion ed
cons t i t utes a viol ation o f th e t re aties concluded be t ween P rus si a and
the Uni ted S t a t es a t an ea rl i er date and n o w appli cabl e t o t h e rel a
tion s b e t we en the G erm an Empi re and th e Uni t ed S t ates o r o f t he
A me ri can righ t s deri ved there from
Fo r th es e trea t i es did not have
th e in t ention o f depriving o n e o f th e contracting parti es engaged i n
wa r o f th e right o f s topp ing th e supply o f con t raband to h i s enemy
w h en h e recogni z es th e supply Of such as detri menta l to h i s m i l i t a ry
i nte res ts
O n the contra ry a rti cl e X I I I o f th e P russ ian A mer i can treaty o f
J uly 1 1 I 799 exp res s ly res erv es to th e par t y at wa r th e righ t to
stop th e ca rrying o f contraband and to de t ai n th e contraband I t
fol lows th en th at i f i t cannot b e a ccomp lish ed i n any o t h e r way
th e s toppi ng o f th e supply m ay i n t h e ex t rem e cas e b e e ffec t ed
by th e des t ruction o f th e contraband and o f th e sh ip ca rrying i t
A S a matte r o f cou rs e the obl igation o f th e party a t wa r to p ay
comp ensa tion to th e pa r t i es i nterested o f th e n eutra l cont racting
p ar t y remains i n fo rc e whateve r h e th e manner o f stopp ing th e
supp ly
A c cording to general p r i ncipl es o f internati ona l l aw any exe rci ses
o f th e r igh t o f control ove r th e t rad e i n contraband i s subj ect to
the deci s ion o f th e priz e cou rts e ven though s uch right may b e
restri ct ed by speci a l t reatie s
A t th e b eginnin g o f th e p res ent wa r Germany pursuant to th es e
p rinci pl es establ i sh ed by law p ri z e j uri sdi c t ion for cases o f th e kind
under cons id eration Th e case o f th e Wi l l i am P F r y e i s li kewi s e
s ubj ect to th e G erm an p r iz e j u ri sdiction for the P rus s i an A me rican
treati es m entioned contai n no s ti pulation a s to how t h e amount o f
th e comp ens ation p rov ided by a rticl e X I I I o f th e t reati es c ited i s
to be fixed
Th e Ge rman Gove rnm ent th er efore compl ies wi th i ts t reaty obl iga
t ions to a ful l exten t wh en the p riz e cou rts i nsti tuted by i t i n accord
anc e w i th i nte rnationa l l aw p roc eed i n pu rsuanc e to t h e t reaty sti p u
lation and thu s awa rd th e A merican interested an equi t able
i ndemni ty The re would th ere fore b e no founda t ion fo r a cl aim o f
th e A me ri can Gov ernm ent unl es s th e p riz e cou rt should not grant
indemni ty i n acco rdance with th e t reaty ; i n such event howeve r t h e
G erman Gove rnm ent would not h es i tate to a rrange fo r e q uitabl e
i ndemni ty notwi th standin g
Fo r th e res t p ri ze p roceedings o f th e cas e o f th e F r y e a r e i nd i s
p ens able apa rt from th e A m eri can c la im s for th e reason th a t o t he r
cla i m s o f th e neutral and enemy i nterested p a rti es a re to be c o n
s i d e r e d i n the ma tter
A s w a s sta ted i n th e note o f A pri l 4 l ast th e pri z e court should
h av e to d ecid e th e question wh eth er th e d estruct ion o f t h e S h ip and
c a rgo was legal wh e t her and unde r wh at cond i t i ons the p roper t y
sunk was l i abl e to confis cation and to whom and i n what amount
indemn ity i s to b e pa id prov ided appl i ca t ion t h e re fo r i s rece i ved
S i nc e th e deci s ion o f th e priz e cou rt mus t firs t be aw ai te d b e fo r e
any fur t h er pos ition i s taken by t h e Ge rman Gov ernm en t t h e Si mpl es t
d
nt
rested
a
rt
i
e
s
to
s
ettl
e
th
e
i
r
c
la
i
ms
woul
h
t
n
e
a
i
w y for
e Ame ri c a
p
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TH E
98
P RO T E CT I O N O F N EUT RAL RI GH T S A T
S EA
be to enter th em i n th e comp et ent r eco rds i n a cco rdance w ith th e
p rovi s ion o f th e G erm an cod e o f p ri z e p ro ce edings
Th e und ers igned b egs to s ugges t th at th e amb as sado r b ring th e
above to th e know l edge o f hi s Gov ernm ent and av a i l hi ms el f etc
VO N J A Go w
o r k Ti m e s
une 1 1
Y
T
J
e
N
e
w
h
(
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,
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,
S e c o n d A m e r i c an n o t e , J u n e 9 1 9 1 5 , r e g ar d i n g th e
o f A m e r i c an l i v e s a n d t h e i n ju r y t o A m e r i c an c o m m e r c e i n
No 5 3
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lo s s
,
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,
t o t h e n av a l w ar far e
c i d e n t al
Th e S e c r e tar y
at B e r l i n
o
a
t
t
e
S
f
f
.
i n te r i m to th e A m e r i c an A m bass ad o r
ad
.
a r e i nst ru cte d to d el i v er te x tua l ly th e fo llowi ng not e to th e
M i n i ster o f Fore ign A ffa i rs :
I n comp l i anc e w i th Y ou r Excel l en cy s re q ues t I di d not fa i l to
transm i t to m y Governm ent i m m edi ately upon th ei r r ece ipt you r
not e o f M ay 28 i n r ep ly to my not e o f M ay 1 5 and you r s up p l e m e n
ta ry note o f J une 1 s etti ng fo rth th e conclu sions s o fa r a s r ea ch e d
by th e I mp eri a l Ge rm an Gov ernm ent con c ern ing th e a ttack s o n th e
A m e ri can s team ers Cu s h i ng and Gu l fli g h t
I a m now i ns tr u ct e d by
my Gov ernm ent to comm un i c ate th e fo llow ing i n reply :
Th e Gove rnm ent o f th e Un i ted S tates notes w ith gratifi cat i on th e
ful l recogn i ti on by th e I mpe ri al G erm an Gove rnm ent i n di s cus s in g
th e cas e s o f th e C u s h i ng and th e Gu l fli g h t o f th e p ri ncipl e o f th e
freedom o f a l l p arts o f th e O p en s e a to n eu tra l sh ip s and th e fran k
wi l li ngne s s o f th e I mp e ri al Ge rma n Gov ernm ent to a c k nowl edge and
m eet i ts l iabi l i ty wh ere th e fa ct o f atta c k upon n eutral S h ip s wh i ch
”
hav e not b een gui lty o f any hos ti l e ac t by Germ an ai rc ra ft o r
v es s els o f wa r i s s ati s factori ly es tab l i sh ed ; and th e Gove rnm ent o f
t he Uni ted S tat es w i l l i n due cou rs e lay b e fo re th e I mp eri a l Ge rm an
Gove rnm ent a s i t re q u ests fu l l i n form ati on conc erni ng the a tta c k
o n the s team e r C u s hi n
g
W ith r egard to th e S i nk i ng o f th e s team e r F al aba by wh i ch an
A m eri can ci ti z en lo s t h i s l i fe th e Gove rnm ent o f th e Uni ted S tates
i s s urp ri s ed to find th e I mpe ri a l Germ an Gove rnm ent cont ending
t hat an e ffo rt o n th e p a rt o f a m e rch antm an to escap e captu r e and
s ecu re as s i stan c e alt ers the ob l i gati on o f th e o ffi c e r s eeking to m ak e
th e captur e i n r esp ect o f t h e s a fe t y o f th e l ives o f thos e on bo ard th e
m erch antm an alth ough th e v es s el h ad ceas ed h e r attempt to e s cape
wh en to rp edo ed Th es e a re not n ew c i rcum s tan ces Th ey h av e b een
i n the mi nds o f s tate sm en and o f internati ona l j u ri sts th roughout th e
dev elopm ent o f n av al w a r fa re and th e Gov e rnmen t o f th e Uni te d
S tates does n o t un derstand th at th ey h av e eve r b een h eld to a lte r
th e pr incipl es o f hu mani ty upon wh i ch i t h a s ins i sted Nothi ng but
a ctual fo rcib l e resi stan c e o r conti nu ed e fforts to es c ap e by fl i gh t
wh en o rde red to s top fo r th e pu rpos e o f v i s it on th e p a rt o f th e
m erch antman h a s ev er be en he ld to fo r fe it th e l iv es o f h e r p as senger s
o r c r ew
Th e Gov ernm ent o f th e Un i ted S tates howeve r does not
understand th at th e I mp eri al Germ an Govern m ent i s s e ek ing i n th i s
cas e to r el i ev e its el f o f l i ab i li ty but only i ntends to s e t fo rth th e
c i rcum s tances wh i ch l ed th e comm ander o f th e subma rin e to al low
hi m s el f to be hu rri ed i nto th e cou rs e wh i ch h e took
Y ou r Excel lency s note i n d i s cus s ing th e los s o f A me ri can l i ve s
S ee N os 4 6 a n d s
Yo u
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o
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1 00
TH E P RO T E CT I O N O F N EUT RA L RI GH T S A T
S EA
r ests Th e Gove rnm ent o f the Un it ed S tates i s contending
for s ometh i ng m uch grea te r th an m e r e r igh ts o f p rop erty o r p r i vi leges
o f comm erc e I t i s con t ending fo r noth ing l es s hi gh and s ac re d
th an the ri gh ts o f h um ani ty wh i ch ev ery Gove rn m en t honors its el f
in resp ectin g and wh i ch no Gov ernm ent i s j u stified i n res igning on
b eh al f o f th os e under i ts car e and auth ori t y O nly h er a ctua l r e
wh en o rd ered to d o s o fo r
s i s tan c e to c aptu r e o r re fus al to s to p
th e purpo s e o f v is i t coul d h av e a ffo rd ed th e co mm ande r o f th e
s ubm ari n e any j u sti ficat ion fo r s o m u ch a s put t i ng th e l ives o f those
on board th e S h ip i n j eop a rdy T h i s p ri n cipl e th e Gov e rnment o f
th e Uni t ed S tates unders tand s th e expl i cit i ns tru cti ons i ssued on
A ugu st 3 1 9 1 4 by th e Imp eri a l G e rm an A dmi ral ty to its c o m m an
de rs at s e a to h av e r ecogn i z ed and embodi ed a s do th e n ava l cod es
o f al l oth e r nations and upon i t ev ery t rav el e r and s eam an h ad a
r igh t to d ep en d I t i s u pon thi s p rin ci pl e o f hum an i ty a s w el l a s
upon th e law found ed upon th i s p r in cipl e th at th e Un ited S tate s
m us t stand
Th e Gov ernm ent o f the Uni ted S tat es i s h appy to O b s erv e th at
Y ou r Excel l ency s not e clos es w i th th e i nti m ation th a t th e I mp er i a l
G erm an Gove rnm ent i s w i l l ing now a s b e fo re to a c c ep t th e good
O ffi ces o f th e Un it ed S tat es i n a n a t t emp t to com e to a n unde rstand
ing w ith th e Gov ernm en t o f Great B ri ta i n b y w h i ch th e ch a ra cte r
a nd condi t ions o f th e w a r upon th e s e a m ay b e ch an ged Th e Gov
e r n m e n t o f th e Un i ted S t ates would cons i de r i t a p ri v i l ege th us to
s erv e i ts fri ends and th e world I t s t ands r eady a t any t i m e to
convey to ei the r Gov e rnm ent any i ntim ation o r s uggestion th e oth er
m ay b e w i ll ing to h av e i t convey and co rdi al ly i nv i tes th e I mp e ri al
Ge rman Gov ernm ent t o m ak e us e o f i ts s e rvi ces i n th i s w ay at i ts
conv en i ence Th e whol e w o rld i s conc e rned i n anythi ng th a t m ay
b ring about ev en a p a rti a l a ccom modati on o f i nt erests o r i n any way
m i t igate the t errors o f th e p res ent d i str es si ng confl i ct
I n th e m eanti m e wh atev e r a r rangem ent m ay h app i ly b e m a d e b e
tween th e pa rti es to th e w a r and w h atev e r m ay i n th e opi nion o f
th e I mp eri al Ge rman Gove rnm ent h ave b een th e p rovocati on o r
th e ci rcum stanti a l j us ti fic ati on fo r the p as t a ct s o f i ts comm anders
at s e a th e Gov ernm ent o f th e Uni ted S tates confid ently looks to
s e e th e j u st i c e and h um ani ty o f th e Gov ernm ent o f Germ any v indi
i n al l ca s es wh ere A me ri c ans h av e b een wronged o r th ei r
c ate d
ri ghts as n eutral s i nv aded
Th e Gov ernment o f th e Un i te d S tate s th e r e fo r e v e ry ea rn estly
and very s ol emnl y renew s the r ep resentati ons o f i ts note t ran sm i t t ed
to th e I mp eri al Ge rm an Gove rnm ent o n th e 1 5 t h o f M ay and r el i es
i n th es e r epres entati on s upon th e p rin ciple s o f h uman ity th e uni
v e r s al l y
recogni z ed u nders tandings o f i nte rn at i ona l l aw and th e
anci ent fri endsh ip o f th e G erman n ati on
Th e Governm ent o f th e Un ite d S tate s cannot adm i t th at th e
p ro cl amation o f a w a r zon e fro m wh i ch n eutra l sh i p s h av e b e e n
w arn ed to k eep away m ay be m ade to op er ate as i n any degree an
abb revi ati on o f the ri ghts ei th er o f A m e ri ca n sh ipm a ste rs o r o f
A m eri can c iti z ens bound on law fu l er rands as p a ss engers o n m e r
ch ant S h ips o f b el li ger ent n ational i ty I t doe s not un d erstand th e
I mpe ri al Ge rm an Gov ernment to qu esti on th os e righ ts I t under
stands i t al so to a cc ep t as e stabl i sh ed b eyond qu e sti on th e pri ncipl e
th at th e l i ves o f noncomb atants canno t l aw full y o r ri gh t fully b e pu t
i n jeopard y by th e cap tu r e or d estr uc t i o n o f an unr e s i sti n g m er
S i bi l i ty
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TH E P ROT E CT I O N O F N E U T RAL RI GH T S A T S E A
I OI
c h an tm an ,
and to recogni z e th e obl igation to ta ke su ffici ent p re
cau ti on t o ascer t ai n wh e t h er a suspec t ed me rchan t man i s in fac t o f
bell i ge ren t n a t ionali ty o r i s in fact ca rrying contraband o f wa r und e r
a n eu t ra l fl ag Th e Government o f t h e Un i ted S tate s t here fore
deems i t reasonabl e to expec t t ha t t h e Imperi al Germ an Governmen t
w i l l adopt t h e m easu res necessa ry to pu t t h es e pri ncipl es in t o p r a c
t i c e i n resp ect o f t h e s a feguard ing o f A merica n l ives and A m eri can
S h i ps and asks for assu rances tha t th i s wi l l be done
R O B ER T L A N S I N G
D
l e afle t )
( i p C0 r r
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NO 5 4
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to th e
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Br i t i s h m e m o r an d u m J u n e 1 7 1 9 1 5 i n r e fe r e n c e
f
r
e
t a t m e n t o f A m e r i c an c o m m e r c e
S e c r e tar y o f S tate fo r F o r e i g n A f
fa i r s ad i n te r i m to th e
.
,
,
,
.
Th e
A m e r i c an A m bas s ad o r
.
’
H i s M aj es t y s Gov ernm ent h ave o n va riou s occa sions and
notably i n th e commun ica t i on whi ch wa s addressed t o t h e Uni t ed
S t a t e s A mba ss ador o n Ma rch 1 5 las t gi ven as surances to t h e Uni t ed
S t ate s Go vernm ent t ha t t h ey would make i t t h ei r fi rs t a im t o mi ni
m i z e th e i nconv en i en c e whi ch mu st inevi t ably b e caus ed t o neu t ra l
comm e rc e from th e existenc e o f a s t ate o f war a t s ea and in pa r
ti c u l ar from th e m ea su res t ak en by the al li ed Gove rnm en t s for th e
res t ri c tion o f th e enem ies ov ersea trade I n v i ew o f t h e rep res en t a
t ion and compla i nts made to t h is d epa r t m ent by th e A mba s sado r from
ti me to ti m e as to t h e p ecul ia r h a rdsh ip s all eged to h ave been w rongly
i nfl i cte d o n A m e ri can trade and s h ipping by th e O pe ra t i on o f t hose
me asu res h i s Maj esty s Governmen t des i re to o ffer th e fol low ing
O bs erv ations respecting th e manner in wh i ch th ey h ave consi sten t ly
e ndeavored to gi ve pra c t i ca l e ffect to thos e as surances
2
I t wi l l b e reca ll ed th at at th e moment wh en h i s Maj esty s Gov
t hey
e r n m e n t announced th ei r m easu res aga inst enemy commerce
d ecla red th ei r i n t en tion to re frai n a l t oge t h er from th e exe rci s e o f
th e right to confis cate S h ip s o r cargoes wh i ch b ell igeren t s had
a l ways p re viou sly cl ai m ed i n respect to b reach es o f blockade ; t ha t
under A rti cl e 1 o f th e enactmen t o f M a rch 1 1 i t was exp res sly p ro
v i d e d that any p erson cla imin g to b e in t eres ted i n goods placed i n t h e
pr i z e cou rt i n pu rsuanc e o f t he p rov i si on o f t ha t ena c t men t mi gh t
fo rthwi t h i s su e a wri t agains t t h e p roper o ffice r o f t h e Crown th e
obj ec t being to con fe r upon claimants t h e ri gh t to ins t i t u t e p roceed
i ngs w ithou t wai t ing fo r t h e w ri t o f t h e P rocu ra t or General and
t hu s to remov e a l l possi bl e caus e o f legi t imate gri evance on accoun t
and th at finally a pacific a ssu rance wa s given to t h e
o f delay ;
Un i ted S tates Gov ernm ent t h at the ins truc t ions to b e i s sued by h i s
M aj es ty s Gov ernment t o t h e fl eet and to t he cus t oms O fficial s and
executi v e o ffici als conc ern ed would impress upon t h em t h e du t y o f
a cti ng with th e u t most desp at ch cons i s t en t wi t h t h e O bj ec t i n vi ew
and o f showing i n eve ry ca se s uch considera t ion fo r neu t ra l s a s
m igh t b e compati bl e w i t h th a t obj ec t namely t o prevent ves sel s
c a rryi ng goods fo r o r com in g from t h e en emy s te rr it ory
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TH E
1 02
P RO T E CT I O N O F N EUT RA L RI GH T S A T S EA
c o nc es s ions ov er an d abov e th os e enum erated h ave moreo v er
b een m ad e i n favo r o f Un i ted S tate s c it iz ens
h
us
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s
M
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m ents o f A m eri can cotton i n a c co rdanc e w i th th e prov i s ion s o f a n
a rrangem ent a r rived a t i n di rect co ll abo ration w ith rep res entati v es
o f th e A m e ri can cotton i nte rests I n a c c ept ing th i s s ch em e th e
p rincip a l rep res entat i v e o f thos e interes ts d es crib ed i t a s conceding
a l l t h at A m eri can i nte rests co uld p rope rly a sk Th e p rov i s ion s o f th e
a r rangem ent w e re a s th e Uni te d S tates A mba s s ado r i s aw a re a s
fol low s :
1
A l l cotton fo r w h i ch cont ra cts o f s a l e a nd frei gh t engagem ents
h av e al ready b een m ad e b e fo r e th e 2 d M a rch i s to b e al low ed fre e
( o r bough t a t c ontra ct p ri ce i f stopped ) p rov i ded th e s h ip sa i l s n ot
l ate r th an th e 3 I s t M a rch
S i m i la r treatm ent i s to b e a c co rd ed to al l cotton i ns u red b e fo r e
2
th e 2 d M a rch p rovide d i t i s pu t o n boa rd no t l at e r th an th e 1 6 th
c i al
,
,
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’
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,
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,
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,
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,
hd ar c h
.
All
S hi pm ent s o f cotton c l a i m i ng th e abov e p rote ct ion a r e t o
b e d ecla red be fo r e s a i l ing and th e docum ents p rodu ced to and
c ertifi cates obta in e d from cons u l a r O ffi c ers o r oth e r auth o ri ty fixed
”
by th e Gove rnm ent
5 Cons i de rabl e S h ipm ent s o f cotton h av e al r eady b een d eal t w i th
und er th i s a rrangement and i n c e rta i n c a s es th e dates S p ec i fied h av e
b e en extend ed i n favo r o f A m e ri ca n s hi pp ers Th e B oa rd o f T rad e
h av e al ready pa id a s um exc eed i ng
pound s st e rl in g to va ri ou s
A m e ri can cl a i mants and al l cl a i m s a re b eing and w i l l continu e to be
paid a s rapidly a s th ey a r e p res ented a nd th e p roo fs o f titl e c an b e
che c k ed I f i n s om e c as es p rogres s h a s b e en del ayed th i s h a s be en
du e t o th e fact wh i ch h as s e rious ly emba r ras s ed H i s M aj esty s Gov
th a t a numb e r o f cons i gn m ents fo r whi ch th e A m eri can
e r nm ent
S h ippe rs h a d sp eci fica l ly i nvoked th e p rot ecti on o f th e a rrangem ent
a re now cl aimed by S w edi sh and Dutch fi rm s wh os e t itl e o f owne r
sh ip n otw i t h standing th e a cti on o f th e A m e r i can S h ippe rs app ea rs
i n som e ca s es t o b e v al id and i n oth ers h as l e d to th e i s su e o f
w ri ts i n th e p ri z e cou rt
6 I t h as b een expl i citly a cknowl edged by th e S pe c i a l r ep r es enta
t i v e s o f th e A m eri can c l ai m ants
w h o h av e b e en i n con stant and
di rec t comm uni cati on w ith th e B o ard o f Trade th at al l th e cl ai m s
so
fa r s ubm itted und er th e cotton a rrangem ent h ave b een s et t l ed
w i th the u tm ost p romptitud e s o s oon a s th e p rodu ction o f th e n e c e s
sa ry do cum ents by th e cl a imants al low ed o f th i s b ei n g done Th ere
i s at th e p res ent m oment n o cl a i m b e fo re h i s M aj esty s Gov ernm ent
th at h a s not be en pa id and th e s um s s o pai d ov e r a r e a l re ady c o n s i d
e r abl y i n exce ss o f th e a mounts real i z ed by th e s al e o f th e goods
A
S
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rd
s
th
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re
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ra
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a
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ay
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li
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ith
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f
7
c as e s o f d eta ine d ca rgo es
th e fol l ow in g facts and figu res m ay be
q uote d
Th e tota l nu mb e r o f v es sel s wh i ch h avin g c l eared from Uni te d
S tate s ports S in c e th e ini ti ation o f the retal i ato ry m ea su res again s t
Ge rm an t ra d e a re st il l d etai ned i n Un it ed Ki ngdom po rt s i s twenty
S ev en ; o f th i s numb er ei gh t a re d i sch a rging cotton wh i ch h i s M aj
e st
y s Gov ernm ent h a s agre ed t o pu rch a s e unde r th e abov e a r range
m ent O f th e rema inin g n i n ete en ves s el s s ev en a re f r ee to dep art
a s soon a s th e i tem s o f th ei r c a rgo p l ac ed i n th e p ri z e cou rt h av e b een
di s ch arged Th e othe r twel v e o f w hi ch th ree only a r e A meri can
“
3
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,
NE U TRAL RI GHTS AT S E A
TH E P RO TE C TI O N OF
1 04
a l r eady been s h ipp ed to th e i r d est i n ation Fi rs t J un e w as a ccor d
i n g l y fixed a s the dat e a fte r wh i ch th e p ri v i l ege a l low ed i n th e c as e
o f su ch s h ipm ents s hould ceas e ; bu t onc e mor e a sp ec i al favo r w a s
granted by extending th e d ate i n exc eptiona l ca s es to th e 1 5 th Ju ne
I mporters i n th e Un ited S tates h a v ing now h ad th ree month s
12
i n wh i ch to cl ea r o ff th ei r pu rch as e s i n enemy ter ritory h i s M aj
Gov ernm ent t rus t th at in p r es en ce o f the ci rcumstan c es
e s ty s
enum erated the Uni ted S ta tes Gov e rnm ent w i l l a c k now l edge th e
great con siderati on w h ich h a s b e en s hown to A m e ri c an i nte rests
13
Ne v erthel es s a fresh app ea l h a s n o w b een m ade to h i s Maj
Gov e rnm ent th a t sh i pm ents o f A m eri ca n own ed goods o f
e s ty s
enemy o rigin i f p a i d fo r be fo r e th e b egi nni n g o f M arch should b e
a llowe d to be S h ipp ed w ithout m ol est ation a fter th e 1 5 th J un e Th e
app ea l i s b as ed p ri nc ip al ly upon th e contention s ( a ) th a t i n sufli c i e n t
tim e h a s al r eady elaps ed ; ( b ) th a t n o m ention o f a ti m e li mi t i s
m ade in the ena ctm ent o f th e 1 1 th M a rch ; ( c ) th a t th e p roo fs o f
owne rsh ip r e q u i red by H i s M aj esty s Gov ernment a re o f a n e x act ing
n atu re and i nvo l v e mu ch ti m e fo r p repa rati on
1 4 Th e fi rs t contenti on
a
h
a
s
a
l
ready
b
e
en
dea
l
t
w
i
th
r
A
s
e
( )
ga rds ( b ) an d ( c ) i t i s t ru e th at th e enactm ent o f th e 1 1 th M a rch
contain s no menti on o f a ti m e li m i t B ut i t s eem s to b e o v e rlooked
th at th e tim e l im it h a d be en fixed only for th e sp eci a l i m muni ty
granted a s a n exc epti on fro m th a t ena ctm ent I t w a s a s a fri endly
con ces s ion to A m eri c a n i nt ere sts th a t h i s M aj esty s Gove rnm ent
a greed to an i nv esti gation o f c lai m s outs i de th e p ri z e cou rt A s fo r
t h e exacti ng natu re o f th e p roo fs r equ i red by h i s M aj esty s Gov ern
m ent exp e ri en c e h a s sh own tha t s u ch p roo fs w er e ne c es sa ry
15
I n de fe ren ce h ow ev e r to th e renewe d r ep r es entations o f th e
Uni ted S tates A mbas sa d o r h i s M aj e sty s Gov ernment h av e gi ven
fu rth e r di r ection s th a t in al l s u ch ca s es a s m ay h av e b ee n sp eci al ly
subm itt ed th rough th e B ri ti sh Emba s sy a t W a sh ington o r to h i s M aj
e s ty s Gov ernm ent di rect o n o r b e for e J un e 1
and
p
as
s
e
d
th
e
goods
5
sh a l l b e a l lowed to p ro c eed w i th out i nt er fe r enc e i f sh ipped f rom a
n eutral po rt o n th e condi tions al ready l ai d d own notw ith standi ng th e
fact th at sh ipment m ay not h ave b een m ade b e fo re J un e 1 5
16
H is M aj esty s Gov e rnm ent w i l l a lso b e p r epa re d h erea ft er to
give sp ec i a l cons id eration to c a s es p res ent ed to th em and invol ving
pa rti cul a r h a rdsh i ps i f th e goods conc ern ed a r e re q u i r e d fo r neutra l
Governments o r mun i ci pal iti es o r i n re sp ect o f wor k s o r publ i c u t i l
i ty and wh er e p aym ent c an b e sh own to h av e b een m ade be fo re
Ma rch 1 1 9 1 5
1
W
ith th e a b ov e exc epti on s h i s M aj esty s Government r egret
7
they cannot conti nu e to de al th rough th e diplom ati c ch annel wi th
i nd iv idua l c as es but th ey would again po int o u t that s p eci a l p rovi
s ion i s m ad e fo r th e cons ide ration o f su ch cas es in th e pri z e cou rt
18
Com pl ai nts h av e n o t i n fre q u ently b een m ad e th at un d u e d el ay
occu rs i n de al ing wi th A m eri c an ca rgoe s i n th e p r i ze cou rt A n i n
te r e s ti n g comm ent o n th i s subj ect w a s m ade by th e P res i dent o f th e
p ri z e court i n th e c as e o f th e Cargo e x st eam sh ip Og e e c h e e on the
i 4 th
i nstant H i s l o rdsh ip a cco rding to th e t rans c ript f rom th e
O ffi cia l sho rth and w ri te r s notes m ad e th e fol lowi ng ob s ervations :
I t i s a v ery extra o rdi na ry th ing th at wh en th e Crown a re r eady
to go o n the cl ai mants com e h e r e and s a
cannot
p
roc
e
ed
f
r
o
W
e
y
s i x w e eks
S om e day towa rd th e end o f l ast t erm I h ad a r o w o f
em inent couns el i n front p res si ng m e to fi x a ca s e a t onc e I fixe d
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TH E
P RO TECTI O N O F N EUT RAL RIGH T S AT
S EA
1 05
i t v ery nea rly at onc e
that i s to say th e s econd day o f th e fol low
i ng te rm :T
hey al l cam e and sa id :
W e wan t an adj ou rnmen t for
S i x we e k s
19
Th e S ol ic i to r Genera l h ereupon rema rked :
I f I m igh t s ay
so o n that o n e o f t h e reasons I appli ed t o day on beh al f o f t h e Crown
th a t th e matter should be dea lt with a s soon a s possi bl e i s for th a t
ve ry r ea son Th ere ha s been such a s trong de s i re on th e pa rt o f
A m e ri ca and A m eri can c i t i z ens th at th ere sh ould be n o delay but
”
one find s in fa ct th e del ay com es from th ere
20
Th e P res ident th en stated :
I know that I do not kno w
xv at
i s but I am anxious that th ere S hould be no
exp
lanation
th
e
( i e ay
21
I t i s tru e th at a number o f ca ses p ri ncipal ly rel ating to c argoes
wh ich though ostens ibly consi gn ed to a person i n a neu t ral coun t ry
a re i n reali ty bel i eved to b e des tined fo r the en emy have been pend
i ng i n th e p riz e cou rt fo r som e time Th e Un ited S t a t es Government
a re awa re th at most o f th es e ca rgoes consi s t o f m ea t and la rd and
th at m u ch o f th e del ay i n b ringing the s e ca rgoes to adj udi ca t ion wa s
d ue to th e fact tha t negotiations w ere b eing carri ed o n fo r many
we ek s w ith a repres enta t ive o f th e principal A m eri can m eat packe rs
fo r an ami cabl e s et t lem ent o u t o f court W h en a t l eng t h owing t o
th e fa i lur e o f th e negoti ations hi s Maj esty s Gov ernment decided
th at th ey woul d continue th e p rize cou rt p roc eedings and had at t h e
re q u est o f t h e cla imants fixed th e ea rli est poss ibl e date fo r th e h ea r
i ng coun s el for th e l at t e r aske d fo r an adj ournm ent i n t h ei r int er
e s ts d esp i te th e fact th at th e C rown w as by h i s o w n adm i s s ion
r eady to p rocee d
22
H i s M aj es t y s Gov ernment a re earn estly des i rous o f removi ng
al l cau s e s o f avoidab l e del ay i n deal in g wi th A m eri ca n ca rgoes and
ves s el s wh i ch m ay be d etained and any speci fic i nqui ries o r r e p r e
s e n tati o n s wh i ch m a y b e made by th e Uni ted S tates Gov ernmen t i n
regard to pa r t i cul a r ca ses w i l l a lways rec ei ve th e most ca re ful con
s iderati on and al l in formati on whi ch can be a fforded without p r e j
but
u d i c e to p ri z e cou rt p roceedings wil l b e rea d i ly communi cated
th ey c an s ca rcely adm i t that o n th e bas i s o f actua l facts any sub
s tan ti al gri ev anc e o n th e pa rt o f A m eri can c itiz ens i s j ustified o r can
b e s ustained and th ey the re fore confidently appeal t o t h e O pi ni on
o f th e Un ited S tates Governm ent a s enl igh tene d by th is m emorandum
—
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u ne
r k Ti m e s
J
Y
o
T
h
e
N
e
w
(
,
Th i r d A m e r i c an
No 5 5
”
W i l l i am P F r y e
.
.
e c r e tar y
Jun e
2 4, 1
9 5 in
1
,
r ega
rd
t o th e
.
.
Th e S
n o te ,
25 ,
o
A
e r i c a n A m b as s ad o r
m
t
t
h
e
t
t
e
a
o
S
f
at
B e r l in
.
a re in structed to p resent th e following note to t h e German
Mi ni st e r o f Forei gn A ffai rs :
I h av e th e hono r to in form you r Exc el lency th at I duly c o m
m u n i c ate d to my Gove rnment you r no t e o f t h e 7 th i ns t an t on t he
s ubj ec t o f th e c lai m p res ented i n my no t e o f A p r i l 3 l as t o n beh al f
P
i lli a
W
A
th
e
owne
rs
and
cap
t
ai
n
th
e
merican
s
a
i
l
ing
vess
el
f
o
of
m
F r y e i n con sequ enc e o f he r dest ruction by the Ge rman aux i l i a ry
c ru i s e r P r i nz E i te l F r i e d r i c h
I n reply I a m i ns tr ucted by m y Gove rnm ent to say tha t i t ha s
ca re fully cons id ered th e rea sons given by th e I mp er i a l Ge rman Gov
Yo u
.
.
.
.
See Nos
.
3 7, 39 , 43
and
52
.
TH E
1 06
P RO T E CT I O N O F N EU T RAL RI GH T S A T
S EA
'
for u rging th at th i s cl a im s hould b e pa s s e d upon by th e
G erm an p r iz e cou rt i nstead o f b ei ng s ettled by di r ect diplom ati c
di s cuss ion b etwe en th e tw o Gov ernm ents a s p ropos ed by th e Gov ern
m ent o f the Uni ted S tat es and th at i t regrets to find th at i t c anno t
con cu r i n th e conc lu s i ons rea ch e d by th e I mp eri a l G erm an Gov ern
m ent
A s po inte d o u t i n my l as t note to y o u o n th i s s ubj ect d at ed A p ri l
3 0 th e Gov ernment o f th e Un i ted S tate s h a s cons i d ered th at the
only question under di s cus s i on w a s th e m ethod wh i ch should b e
adopted fo r a s ce rtai n ing th e a mount o f th e indem nity to b e p a id
unde r an adm i tted l i abi l i ty and i t note s w i th s u rp ri s e th at i n addi
tion to th i s q u estion th e I mp e ri al Germ an Go v e rnm ent now d es i r es
to rai s e s om e qu es ti ons a s to th e m ean ing and e ffect o f th e t reaty
s tipulations und er wh i ch i t h as a dmi tted i ts l i abi l i ty
I f the Gov ernm ent o f th e Un i ted S tat es co rre ctly un d erstan d s th e
p osi tion o f t h e I mp e ri a l Ge rm an Gove rnm ent a s n o w p res ente d i t i s
t h at th e p rovi s ion s o f A rti cl e 1 3 o f th e Tr eaty o f 1 799 b etwe en th e
Uni ted S tates and P ru s s i a w h i ch i s conti nu ed i n fo rc e by th e Tre aty
o f 1 8 28 j ustified th e comm ande r o f th e P r i n z E i te l F r i e d r i c h i n s i n k
ing th e Wi l l i am P F r y e a l though m a king th e I mp eri a l Ge rman Go v
th e dam ages s u ffe red i n con s e q u enc e an d th at
e r n m e n t l i ab l e fo r
i nas mu ch a s th e trea ty p rovi d es no sp ec ifi c m ethod fo r as certa ini ng
th e amount o f i nd em ni ty to b e p ai d th at qu es tion m us t b e s ubm itted
to th e Germ an p ri z e cou rt fo r d ete rm i nati on
Th e Gov ernm ent o f th e Un it ed S ta tes o n th e oth er h an d d o es n ot
find i n th e t r ea ty s tipul ation m entioned any j u stifi cation fo r th e
s inking o f th e F r y e and does not cons ide r th a t th e Ge rm an p ri z e
cou rt h a s any j u r isdi ct ion o v er th e qu es tion o f th e amount o f i n
d e m n i ty to b e p a i d by the I mp e ri a l G erm an Gove rnm ent on account
o f i ts adm itted l iab i l i ty fo r th e d estructi on o f a n A m eri c an v e s s e l
o n th e high s e as
Y o u s tat e i n you r note o f th e 7 th i nstant th at A rti cl e 1 3 o f th e
above m entione d T r eaty o f 1 799 exp r es s ly res e rv es to th e p a rty a t
wa r th e right to s top th e ca rry in g o f contrab and and to d eta i n th e
contrab and ; i t fol lows th en th at i f i t c annot b e a ccomp li sh ed i n any
oth er way th e s topp ing o f th e supply m ay b e i n th e extrem e c a s e
e ffected by the d estru ction o f th e contraban d a n d o f th e S h ip ca rry
”
ing i t
Th e Go vernm ent o f th e U n ite d S tates cannot con cu r i n th is c o n
elus ion O n th e cont ra ry i t holds th at thes e treaty p rovi s i on s do
not authori z e th e d es t ru ct i on o f a n eutra l v es s el in th e c i rcumstanc es
B y i ts exp res s te rm s th e t reaty p roh ib i ts e v en th e det ent ion o f a
n eu t ral ves s el ca rrying cont rab an d i f th e m as te r o f th e v ess el i s
w i ll ing to su rrende r th e contrab and A rti cl e 1 3 p rovi d es :
I n th e
ca s e suppos e d o f a ve s s el s topp ed fo r a rti c l es o f contraband i f th e
m a ster o f th e v e s s el s topp ed w i ll de l iv e r o u t th e goo ds suppos ed to b e
o f contrab and n atu r e
h e sh al l b e p erm i tted to do i t and th e v es s el
sh al l n o t in th at c as e be ca rri ed into any p o rt no r fu rth e r detained
”
bu t sh al l b e al low ed to p roc e ed on h e r v oyage
I n th is cas e the admi tted facts S h ow that pu rs uant to ord ers from
th e commande r o f th e Ge rm an c ru is e r th e m aster o f th e F r y e
unde rtook to th row ove rboa rd th e ca rgo o f th a t v es sel but th at b e fore
th e wo rk o f d eli v e ri n g o u t th e ca rgo w as fini sh ed th e v ess el w i th
th e ca rgo wa s sun k by order o f th e Germ an comm ande r
ern
ment
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TH E P RO T E CT I O N O F N EUT RA L R I GH T S A T S EA
1 08
an d wh ethe r and unde r wh at conditions th e p rop erty s un k wa s l i abl e
”
to confis cati on
wh i ch yo u s ta t e i n you r note date d J un e 7 a re
q uesti on s wh i ch sh ould b e dec ided by th e p ri z e cou rt I n so fa r a s
th es e quest ion s r ela te t o th e ca rgo t h ey a r e outs id e o f the p resent
di s cu ss ion b ecause a s poin ted out i n my p rev iou s note to you o n th e
s ubj ec t dated A pri l 3 0
th e cl a i m u nde r di s cu ss ion d o es n o t i nc lude
”
damage s fo r th e d es truction o f th e c a rgo
Th e r eal qu esti on betw een th e two Gove rnm ent s i s wh at r ep a rati on
mu s t be m ade fo r a b rea ch o f t reaty O b li gati ons and th at i s n o t a
q u estion whi ch fall s w i th in th e j u r i sdi ction o f a p ri z e court
I n my note on th e subj ect th e Gove rnm ent o f th e Uni ted S t ate s
r e q uested th at
fu l l rep a ration b e m ad e by t he I mperi a l Germ an
”
Gove rnm ent fo r th e d est ruction o f th e Wi l l i am P F r y e
R epa ra tion
n ece s s a ri ly i n cl ud es a n i n d emn i ty fo r th e a ctu al p e cuni a ry los s s u s
fai n ed and th e Go v e rnm ent o f th e Uni ted S tates takes th i s o p p o r
tu n i ty to a s su r e th e I mp eri al G e rm an Gov ernm ent th at s uch an i n
d e m n i ty i f p rom ptly p a id w i l l be a ccepted a s s at is fa cto ry r epa ration
but i t does no t re s t wi th a p ri z e cou rt to d ete rm in e wh at r epa ration
shoul d b e made o r wh at rep a rati on wou ld b e s at i s fa cto ry to th e
Government o f th e Un it ed S ta tes
Y ou r E xc el l en cy s tate s i n you r note o f J un e 7 th at i n th e event
th e p ri z e cou rt should not grant i nde m n ity i n a cco rd an c e w ith treaty
r equ i rem ents th e G e rm an Gov e rnm ent w ou l d not h es itate to a r range
fo r e q u itabl e indemni ty but i t i s a l so ne ces s a ry th at th e Gov ern ment
o f th e Unite d S ta t es sh ould b e s ati s fie d wi th th e amoun t o f th e m
d e m n i ty and i t would s eem to b e mo re app rop ri ate and conv en i ent
that an a rrangem ent fo r e q ui table i nd emn ity s hould b e a gree d upo n
now rath e r th an l ate r Th e dec is i on o f the p r i z e c ou rt ev en o n th e
question o f th e amount o f i nd emn ity to b e p ai d would not b e bi nd
i ng o r conclu s i v e o n th e Gov ernm ent o f th e Uni ted S tat es
Th e Gov ernm ent o f th e Uni ted S tate s al so d i s s ents from th e v i e w
expres s e d i n you r not e th at th ere woul d b e no foundation fo r a
cla i m o f th e A me ri can Gove rnm ent unl es s th e p ri z e cou rts s houl d
”
not grant i nd emn ity i n a c cordan c e wi th the treaty
Th e cl a im p r e
s ented by th e A m eri can Gov ernm ent i s for an i n d emn i ty fo r a v i o
l ation o f a t reaty i n di s ti nction from an i ndemn ity i n ac cordance
w ith th e t r eaty and th e re fore i s a m atte r fo r adj us tm ent by di re ct
d iplomati c di scu s s i on b etwe en th e two Go v ernm ents an d i s i n n o
way depen d ent upon th e a ction o f a Ge rm an pri ze cou rt
F o r th e reason s abov e s tat ed th e Gove rnm ent o f th e U n i te d S tate s
cannot recogni z e the p ropri ety o f s ubm i tti ng th e cl a i m p res ent e d by
i t on b eh al f o f th e owne rs an d c ap ta in o f th e F r y e to th e German
p ri ze cou rt fo r s ettlem ent
Th e Gov ernm ent o f th e U n i te d S tates i s n o t c o nc ern e d w i th any
p roc eedings wh i ch th e I mp e ri a l Germ an Gov e rnm en t m ay w i sh to
ta k e o n oth e r cl aim s o f n eutra l and ene my inte rested p a rti es wh i ch
h av e n o t b een p r es ent e d by th e Gov ernm ent o f th e Uni ted S tates
but whi ch y o u state i n you r note o f J une 7 m a k e p ri z e c ou rt p r o
c e e d i n gs
i n th i s cas e i ndi spens abl e and i t d o es not perc ei ve th e
n ecess i ty fo r postponin g th e s ettl em ent o f th e p r es ent cl a i m pending
th e consideration o f thos e oth er cl aim s by th e p ri ze cou rt
Th e Gove rnment o f th e Uni t ed S t ate s th e re for e su g ges ts th at
th e I mp eri al G erm an Gov ernm ent r eco ns ide r th e subj ect i n th e l i gh t
o f th es e consi de rati ons
and b ecau se o f th e obj e ctions aga in st r e
th e Go v ern m ent o f th e U nite d S ta tes
s ortin g to th e p ri ze cou rt
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THE
P ROT E CTI O N O F N EUT RAL RI GH T S AT S EA
1 09
r en ews i ts form e r suggestion that an e ffor t be made t o set t le t h i s
cl a i m by d i rect d i ploma t i c negoti ations
L AN S I N G
T
( h e Ne w Yo r k Ti m es J u n e 29
.
.
.
,
No
,
S e c o n d Ge r m a n n o t e , J u l y 8 , 1 9 1 5 , r e g ar d i n g th e
56
l o s s o f A m e r i c an l i v e s an d th e i n ju r y to A m e r i c an c o m m e r c e
*
n
i
i
c d e n ta l t o th e n av a l w ar f ar e
.
.
.
Th e M i n i s te r fo r F o r e i g n A fi ai r s to th e A m e r i c an A m bass ad o r
Th e unde rs igned ha s the hono r to mak e t h e fol lowing reply t o h i s
Exc ell ency A mba ssado r Gera rd to th e no t e o f t he 1 0 th ul t imo re th e
i mpa i rment o f A meri can in t eres t s by t h e Germ an subma rine w a r :
Th e I mp erial Gov ernm ent learned w i t h s a t i s fac t ion from th e no t e
h ow ea rne s tly th e Gove rnment o f th e Uni t ed S tates i s concerned in
s e eing th e p ri nciples o f humani ty real i z ed i n t h e presen t war A lso
‘
.
.
th i s app ea l finds ready ech o i n Germany and th e Imperi al Govern
m en t i s qu ite wi ll ing to perm i t its statements and deci sions in th e
p res ent ca s e to b e gove rned by th e pr inciples o f humanity j us t a s i t
h a s don e a lways
Th e I mp eri a l Gove rnmen t w el com ed wi th gratitude wh en t he A m er
i can Gove rnment i n th e note o f M ay 1 5 i t sel f recal led t h at Germany
had alway s p e rm itted its el f t o b e governed by t h e p rinciples o fp rogres s
and hum an i t y i n d eal ing w i t h th e law o f ma ri t ime wa r
S i nce th e t i m e when Frederi ck t h e Grea t nego t iated w ith J oh n
A dam s B enj am in Frankli n and T homas J e fferson the T rea t y o f
F ri endship and Commerc e o f S eptember 9 1 7 8 5 between P rus s ia and
t h e Repub li c o f th e W est Ge rman an d A m eri can s t atesmen h ave i n
fac t a lway s stood t ogeth er i n th e s t ruggl e for th e freedom o f th e
s ea s and fo r th e protection o f p eac eabl e t rad e
In th e i nte rnati onal proce edings wh i ch S inc e h av e b een conduct ed
fo r the regu la t i on o f t h e l aws o f mar iti me wa r Germany and A me ri ca
h ave j ointly advocated p rogress iv e p ri ncipl es espec ially th e abol i sh
m en t o f th e right o f captu re at s e a and th e p rote ction o f th e i nte re s t s
o f neut ra ls
Even at th e beginning o f th e presen t wa r t h e German Gove rnm ent
i mm edi ately de cl a red i t s w i lli ngn es s i n re spons e t o p roposal s o f t h e
A m eri can Gov ernment t o rati fy t h e Decla ra t ion o f London and
th e reby subj ec t i t sel f i n th e u se o f i ts naval fo rces to a ll th e r e str i c
ti on s p rov id ed th ere in i n favo r o f n eu t ral s
Ge rmany l ikewi s e h a s be en a lways t enac iou s o f th e princi pl e tha t
wa r S hould b e conducted agai nst t h e a rmed and o rgan ized forces o f
but th a t th e enemy c i vil ian popula t ion mus t be
an enemy coun t ry
spa red a s fa r a s po ssi bl e from t h e measu res o f wa r Th e I mper i al
Gove rnment ch eri sh es t he d efini t e hope t h at som e w ay w i l l be found
wh en pea c e i s concluded o r pe rh aps earl i e r t o regul a t e th e l aw o f
m ari ti me wa r i n a m ann er gua ran t e eing t h e freedom o f t he s ea s and
w i l l w elcome i t w i t h grati t ude and sa t is fac t i on i f it c an work hand
i n h and w i t h t h e A m e ri can Governm en t on t ha t occ asion
I f i n t h e p res en t wa r th e principles wh i ch Should b e th e ideal o f
th e futu re h ave been trave rs ed more and mo re t h e longe r i t s du ra t i on
th e Germ an Gov ern me nt h as no guil t t h erei n I t i s known t o t h e
A m er ican Gov ernment h o w G ermany s adversa ri es by comple tely
pa ra lyzing p eac eable tr affic be t we en Germany and neutral coun t r i es
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S e e No s
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46,
50,
5
1
,
53
.
TH E
1 10
P R O T E CT I O N O F N EUT RA L RI GH T S A T
S EA
h av e a i med from th e v ery b eginn ing an d w ith i nc rea s ing l ack o f
consi de ration a t th e d es tru ction not S O mu ch o f th e a rmed forc es a s
th e l i fe o f th e G erm an n ation r ep ud iati ng i n doing s o al l th e rul e s
o f i nte rn ationa l l aw and di s rega rd ing a ll right s o f n eut ra l s
O n November 3 1 9 1 4 Engl and d ec la red th e No r t h S e a a w a r a rea
and by p lanting poorly an cho red m in es and by th e stopp age and c ap
tu re o f v es sels m ad e p as s age extrem ely dang erous and di ffi cul t fo r
n eutra l sh ipping the reby a ctu al ly block ading n eutra l coasts and p orts
cont ra ry to al l i nte rnationa l l aw Long b e for e th e beginn ing o f sub
m a ri ne wa r Engl and p ra cti ca l ly com pl et ely i nte rc epted l egi ti mate
neutral na vi gation to G erm any a lso Thus G ermany wa s d r iv en to
a subm a ri ne wa r on trad e
O n Nov embe r 1 4 1 9 1 4 th e Engl i s h P rem i e r d e cl a re d i n th e H ous e
o f Common s th at i t w a s o n e o f Engl and s p ri ncip a l ta s k s to p rev ent
foo d fo r th e G erm an pop ul ati on from rea ch i ng Ge rm any v i a n eutra l
po rts S i nc e M a rch I En gl and h a s b een t ak ing fro m n eutra l sh ips
wi thout furthe r fo rm al i ty a l l m e rch andi s e p ro c eeding to Ge rm any
as w el l a s a l l m erch andi se com ing from G ermany ev en wh en n eutral
p roperty J ust as i t w a s a l s o w ith th e B o ers th e Germ an peop l e i s
n o w to b e gi ven th e ch o i c e o f p eri sh ing from s ta rv ati on w ith i ts
wom en and ch i ld re n o r o f r elin q ui sh ing i ts i ndep endenc e
W h i l e o u r en emi e s thus loudly and O p enly p rocla i m ed w a r w ithou t
m e rcy unti l o u r utte r destru ction w e w er e conducti ng a wa r i n s el f
d e fense fo r ou r n ati on a l exi stenc e and fo r th e s ak e o f pe ac e o f an
a s su red p erman en cy We h a v e b een ob l iged to adopt a s ubm a ri ne
wa r fa re to m eet th e de cl a red i ntentions o f ou r enem i es an d the m etho d
o f wa r fa r e adopted by th em i n cont rav ention o f internat i onal l aw
W ith all i ts e fforts i n p rinci p le to p rot ect n eutra l l i fe and p rop erty
from d am age a s mu ch as pos s ib l e th e G erm a n Gov e rnm ent re cog
n i z e d un rese rv edly i n i ts m emorandu m o f F eb rua ry 4 th at th e i nte r
e sts o f n eut ral s m i ght su ffe r from th e s ubm a ri ne wa r fa re H ow ev e r
th e A m eri c an Go v e rnment w i l l al s o u nde rstand and app re c i ate th at i n
th e figh t for exi s t enc e w h i ch h a s b e en fo rced upon Ge rm any by i ts
adv ers a ri es and announc ed by th em i t i s th e s a c red duty o f th e I n i
p e ri al Gove rnm ent to do a l l w i thi n it s powe r to p rotect and s av e th e
l i ve s o f Ge rm an s ubj ects I f th e I mperi al Gov e rnm ent w e r e de rel i ct
in th es e i ts duti e s i t would b e gu i l ty b e for e God a nd h i sto ry o f th e
v io l ation o f thos e p rinc ipl es o f h i ghe s t h umani ty w h i ch a re th e fo und a
ti on o f ev ery n ati onal exi st en ce
Th e cas e o f th e L u s i tan i a S h ow s w i th h o rr i b l e c le a rn es s to w h at
j eopa rdiz ing o f h um an l i v es th e m anne r o f condu ctin g w ar employed
by ou r adve rsa ri es le ads I n th e m o st di rect cont radi ction o f i nte r
nation al l aw al l d i stin cti on s b etw e en m erch antm en and w a r ve s sel s
h av e b een obl iterated by th e ord er to B ri tish m erch antm en to a rm
th e ms elves and to r am sub ma ri ne s and th e p rom i s e o f rewa rds the r e
fo r and neutral s wh o u s e m e rch antm en a s trav el e rs th ereby h av e
b een expos ed i n an in c reas ing degre e to a l l th e dange r s o f wa r
I f th e Comm and er o f th e Germ an s ub m arine wh i ch d est royed th e
L us i tan i a h ad c au s e d th e c rew and pa ss enge rs to ta k e t o th e boats
b e fo re fi ring a to rp ed o th i s woul d h av e m eant th e s u re d estru cti on o f
h i s o w n v es s el A fte r th e expe ri enc es i n s inki ng m u ch s m al l e r and
l es s s eawo rthy ve ss el s i t wa s to b e exp ected th a t a mi ght y sh ip l ik e
th e L u s i tan i a wou ld rema in above wate r l on g enough even a fte r th e
torpedoing t o pe rm i t pas s engers to enter th e sh i p s boats Ci rcum
s t ances o f a v ery pecul i a r ki nd e sp ec ial ly th e p resenc e o n boa rd o f
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TH E P RO T E CT I O N O F N EUT RA L RI GH TS A T S E A
1 12
th e Go vernm ent o f G rea t B ri tai n w ith p arti cu la r r e ferenc e to the
alterati o n o f m ariti me w a r Th e I mp e ri a l Gove rnm ent w i l l a lways
b e glad to m ak e u s e o f th e good o ffic es o f th e P r es id ent and hop es
t ha t h i s e fforts i n th e p r es ent cas e as w el l a s i n th e di r ec tion o f the
lo fty id eal o f th e fre edom o f th e s ea s w i l l l ead to an unders tandi ng
Th e unde rs i gned r equ ests th e A mb a s s ado r to b r ing th e abov e to
th e knowl edge O f th e A m eri ca n Gove rnm ent and ava i l s h i ms el f o f
th e opportun i ty to ren ew to hi s Exce l le ncy th e a s s u ranc e o f h i s most
di stingu i sh ed c ons ide rati on
VO N J A GO W
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T
Y
r
T
i
u
l
J
h
e
N
e
w
o
k
m
es
,
(
y
1 0,
S u mm ar y o f Am e r i c an
No 5 7
ag ai n s t B r i t i s h p r i z e c o u r t p r o c e d u r e
“
.
.
Th e S e c r e tar y
c av e at
”
,
J u ly
1
4
1
,
915,
.
r i c an A m b as s ad o r
t
A
t
a
t
h
e
t
m
e
S
o
e
f
L o ndo n
I n vi ew o f d i fferenc es wh i ch a re unde rs tood to e xi st betw een th e
two Gove rnm ents a s to th e p r in ci pl es o f law appl i cab l e i n p ri z e court
p roce edi n gs i n c as es i nvolvi ng A m eri ca n i nte res ts an d i n o rde r to
a void any mi s unders tandin g a s t o the a tti tude o f th e Un i ted S tat es
i n rega rd to s uch p roc e edi ngs you a r e i nstru cted to i n fo rm th e B ri t
i sh Gove rnm ent th at in s o fa r a s th e i nte re sts o f A m eri c an c iti z en s
a r e conce rned th e Gove rnm ent o f the Uni t ed S tates w i l l i ns i s t upon
th ei r ri ghts und er th e p rincip l es and rul es o f i nte rnational l aw a s
h ith erto est ab li shed gov erning n eut ra l t rad e i n ti me o f w a r wi th out
l imitation o r impai rm e n t by O rde rs i n Counci l o r othe r m uni c ip a l
l egi s l ation by th e B ri ti s h Gov ernment and w i l l not r ecogni z e th e
v ali di ty o f p ri z e cou rt p roc e edings tak en und e r rest rai nts im pos e d by
B riti sh m un i c ipal law i n de rogation o f th e right s o f A m e ri can c it i z en s
unde r i nte rnationa l law
o
at
.
,
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,
.
( Th e Ne w
Yo r k Ti m es, A ug us t 4
,
NO 5 8
P ar ap h r as e o f A m e r i c an n o t e J u l y 1 5 1 9 1 5 p r o
”
t e s t i n g ag ai n s t th e s e i z u r e o f t h e c ar g o o f th e
Ne c h e s
Th e S e c r e tar y o f S tate to th e A m e r i c an A m bas s ad o r at L o n do n
A mb as s ado r P age i s i n fo rm ed th at i t h a s b een b rought to th e att en
tion o f th e dep a r t m en t th a t th e s te am sh ip N e c h es o f A m e ri can regi s
te r s ai l ing from Rotterda m fo r th e United S tate s ca rrying a gen e r al
ca rgo a fte r b e i n g d etai n ed at th e Downs wa s b rought to London
wh ere i t w as re q u i red by the B ri ti s h autho ri t i e s to di s ch a rge c a rgo
th e p r o perty o f A m e ri can ci t i z en s
I t app e ars th at th e ground advan c e d to s u sta in thi s a ction i s th at
th e goods ori ginated i n p art a t le as t i n B el gium an d fal l th ere fo re
w i th in th e p rov is ions o f P a ragraph 4 o f th e O rder i n Coun ci l o f
Ma rch 1 1 whi ch st ipul ate s th at eve ry m erch ant v es s el s a i l ing fro m
a port oth e r th an a Ge rm an po rt c a rryi ng goods o f en emy o rigin
may be requ i red to di s ch arge s uch goods i n a B riti sh o r al l i ed po rt
A mbassado r P age i s i nst ructed in thi s ca s e to reiterate th e pos i tion
o f th e Gov ernm ent o f th e Un ited S tate s a s s e t fo rth i n th e depa rt
m ent s ins tru cti on o f M a rch 3 0 1 9 1 5 w i th r es p ec t to th e O rde r i n
Counci l menti on ed th e i nternationa l i nva l idi ty o f wh i ch th e Gov ern
ment o f th e Un ited States r ega rds as pl a in ly i llu s tr ated by th e p res ent
i nstanc e o f th e s ei z ur e o f A m eri can own ed goo d s pa ss in g from th e
n eu t ral port o f Rotter d am to a neutra l port o f th e Un i ted S tate s
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:
TH E
P RO T EC T I O N
O F N EUTRAL RI GH T S
AT S E A
1 13
m erely b ecause th e goods came o riginally from terri tory i n th e posse s
Si on o f an en emy o f G reat B ri tai n
M r P age i s al so inst ructed t o i n form th e Fore ign O ffice that th e
l egal i ty o f thi s sei zu re cannot be admi tt ed and t ha t i n t h e v iew o f
th e Government o f the Uni ted S tates i t v iol ates th e righ t o f t h e
C i t i z ens o f one neutra l to trade wi th t hos e o f ano t h e r a s wel l a s w i t h
thos e o f be lligerents except i n con t raband o r i n v iola t ion o f a l egal
b lockad e o f an enemy s eaport ; and that t h e righ t o f A me rican owners
o f goods to b r ing them o ut o f Holland i n due cou rs e i n n eu t ra l sh ip s
mu st h e i ns i sted upon by th e Uni ted S tates even though such goods
m ay h av e com e o riginally from the terri t ori es o f e nemi es o f G rea t
B ri ta in H e i s di rected fu rth er to insi st upon th e desi re o f th i s Gov
e r n m e n t that goods taken from the N e c h e s wh i ch a re t h e p roperty o f
A me ri can c i ti z ens S h ould b e exp edi t iously released to be fo rwa rded t o
th ei r d esti nati on and to request that h e b e advi s ed o f th e B ri ti sh
Gov ernment s in t end ed cou rs e i n thi s m atte r at th e ea rl i es t mom ent
conveni ent to th at Gov ernment
T
h
Y
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e
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e
w
o
r
k
i
m e s A ug u s t 4
(
No 5 9
Ge r m an m e m o r an d u m J u l y I 5 1 9 1 5 i n r e g ar d t o
”
th e
Ne b r as k an
Th e M i ni s ter fo r F o r e i g n A ffai r s to th e A m e r i c an A m bas s ad o r
Th e G erman Gove rnment received from newspaper repor t s t h e i n
t e ll i g e n c e th at th e A m eri can s t eamer N e b r as kan had been damaged
by a m in e o r torpedo o n th e s ou t hwest coa st o f I reland I t the re fo re
s ta rted a tho rough i nvesti gation o f t h e ca s e wi thout del ay and from
th e res ult o f th e i nve stiga t i on i t h as becom e convinced th at the dam
ag e to th e N e br as kan wa s caused by an a t tack by a subm arine
O n th e ev ening o f M ay 2 5 las t th e s ubmarine m e t a steamer bound
w estwa rd wi thout a flag and no neutral m a rkings on he r freeboa rd
abou t 6 5 n auti cal m i le s w est o f F as tn e t Rock NO appl ianc e o f any
k i nd fo r th e i lluminati on o f the fl ag o r m arki ngs wa s to b e s een I n
th e twi l ight whi ch h ad al ready s e t in th e nam e o f th e steamer wa s
no t vi si bl e from th e submarine S i nce th e commander o f th e s u b
m ar in e wa s obl iged to as sum e from h i s w id e experi ence in th e a rea
o f m a rit im e w ar th at only Engli sh steam ers and no n eutra l steame rs
t rav ers ed th e wa r a re a without fl ag and m arkings h e a t tacked t h e
v ess el with a torpedo in th e convi c t ion t hat h e had an en emy ves sel
b e fo r e h i m S om e ti m e a fter th e sh ot th e commande r saw tha t th e
ve ssel h ad i n th e m eanti m e hoi s t ed t h e A m erican fl a g A s a c o n s e
h
e
cou
rs
e
refrained
from
any
fu
rth
e
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at
t
ack
S
inc
e
t
h
e
f
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e
n
c
u
e
q
v es s el r em ai ned afloat h e had no occasion to conce rn h ims el f fur t he r
wi th th e boats wh ich h ad b een l aunched
I t re su lts from th i s th at wi t hou t a doubt th at at t ack o n th e steam e r
Ne b r as kan wa s not m eant for t h e A meri can fl ag nor i s it traceabl e
to any faul t o n the p a rt o f th e command er o f t h e German subma rin e
bu t i s to b e cons idered an un for t unate accident Th e Ge rm an Go v
o
f
exp
res
ses
its
regret
at
th
e
occu
rrenc
e
to
th
e
Governmen
t
e r nment
th e United State s o f A m eri c a and d ecla res i ts readines s t o make com
A
th
e
damage
t
h
ereby
sus
t
a
in
ed
by
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eri
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it
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zens
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TH E
1 14
P RO T E CT I O N O F N EUT RA L RI GH T S A T S E A
T h i r d A m e r i c an n o te , J u l y 2 1 , 1 9 1 5 , r e g ar d i n g th e
l o s s o f A m e r i c an l i v e s an d th e i n ju r y t o A m e r i c an c o m m e r c e
i n c i d e n t al t o th e n av a l
No 6 0
.
Th e S
.
e c r e tar y o
A
r i c an A m b as s ad o r
t
t
h
e
m
t
a
e
t
o
e
S
f
at
B er l i n
.
a re in struc ted to de l i v e r te x tua lly th e fol lowi ng Note to th e
M i ni st er fo r Fo reign A ffai rs :
Th e not e o f the I mp er i al German Gov ernm ent d ated th e 8 th o f
J uly 1 9 1 5 h a s r ece iv ed th e c a r e ful cons idera ti on o f th e Gov e rnment
o f th e United S tates and i t regrets to b e obli ged to s ay th at i t h a s
found i t v ery uns ati s fac t ory b e cau s e i t fa i l s to me et th e re al di ffer
e n c e s b etween th e two Go v ernm ents and i ndi cates no way i n w h i ch
th e a cc epted p ri ncip l e s o f l aw and h um ani ty m ay b e app l i ed i n the
grav e matte r i n controve rsy b ut p ropos es o n th e cont ra ry a r range
m ents fo r a p arti a l s u sp ens ion o f thos e p rinc ip l es wh i ch v i rtual ly s e t
th em a sid e
Th e Gove rnment o f th e U ni te d S tates notes w i th s ati s f action th at
th e I mp eri a l G e rma n Gove rnm ent re cogn i z es w ithou t res e rvati on
th e val idity o f th e p ri nc ipl es i ns i s ted on i n th e s ev e ra l c o mm u n i c a
ti ons wh i ch th i s Gov ernm ent h a s addr esse d to th e I mp eri a l G erm an
Governm ent w ith re ga rd to i ts announcem en t o f a w a r z on e and t h e
u s e o f s ubm a ri nes agai nst m e rch antm en o n th e hi gh s e a s
th e p ri n
th at th e ch a racte r and c argo o f
c i p l e th at th e h igh s eas a r e fre e
a m erch antm an mu st fi rs t b e a s ce rta ine d be for e sh e c an l aw fully b e
s ei z ed o r d es troyed and th a t th e l i v es o f non comb atants m ay i n no
c a s e b e p ut i n j eop a rdy u nle s s th e v es s el res i s ts o r s eek s to es cape
a fte r bei ng summ oned to subm it to exa mi na tion fo r a b ell i ge rent a ct
o f retali ation i s p e r s e an a c t beyond th e l aw and th e d e fens e o f an
ac t a s r etal i ato ry i s an admi s s ion th at i t i s i l l ega l
The Gov e rnment o f th e Uni ted S tat e s i s h ow ev e r k een l y d i s ap
p o i nte d to find th at th e I mpe ri al G erm an Gov ernm ent re gar d s i tsel f
a s i n l arge d egre e exempt from th e O bl igat ion to obs e rv e th es e p rin
even wh e re n eut ra l v es s el s a r e conc erned by wh at i t b el i eve s
c i p le s
th e pol i cy and p racti c e o f th e Go v e rnm ent o f G reat B ri ta in to b e i n
th e p res ent w a r wi th r egard to n eutra l comm e rc e Th e I mperi a l
Ge rm an Gove rnm ent w i l l re adi ly u nd erstand th at th e Gov ernment o f
th
Uni ted S tat es c annot di s cus s th e pol i cy o f th e Gov ernm ent o f
G reat B ri tai n w ith r ega rd to n eutra l t ra d e exc ept w i th th at Go ve rn
m ent i ts el f and th at i t m us t r ega r d th e condu ct o f othe r b ell i ge r ent
Gov ernm ents a s i r rel ev ant t o any di s cus s i on w ith th e I mperi al G er
m an Gove rnm ent o f wh at th i s Gove rnm ent rega rds as grav e and u n
j u stifiabl e vi ol ati ons o f th e r i gh ts o f A me ri can c iti z ens by Ge rm an
naval comm and ers
I ll egal and i nh um an a cts h o w eve r j u stifi ab l e th ey m ay b e thought
to b e agains t an enemy wh o i s b el i ev ed to h a ve ac ted i n c o n tr av e n
t ion o f l aw an d hum an ity a re m ani fe s tly i nde fens i bl e w h en th ey
depri ve n eutra l s o f t h ei r a cknowl edged ri gh ts p ar t i cul a rly wh en th ey
v iol ate th e ri gh t to l i fe its el f I f a bel lige rent c anno t retal i ate aga i nst
an enemy w i t hou t i nj uring th e l i ve s o f neut rals a s wel l as th ei r p rop
e r ty humani ty as w ell a s j u sti c e and a du e regard fo r th e d igni ty o f
n eu t ral powe rs S hou ld di ctat e th at th e p ra cti c e b e d i s conti nu ed I f
per si sted in i t woul d i n su ch ci rcum stan c es cons t i tute an unpa rdonabl e
o ffens e agains t the sov ereignty o f th e n eu t ra l n ati on a ffect e d
Th e Gov ernm ent o f th e Unit ed S tat es i s not unm i nd ful o f th e
S ee N o s 4 6 5 0 5 5 3 5 6
Yo u
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TH E P RO T E CT I ON O F N EUT RA L RI GH T S A T
1 16
S EA
I n th e m eantim e th e v e ry v a lu e whi ch th i s Gov ernment s ets upon
th e lon g and unb ro k en fri endsh ip b etw een th e p eople and Gov ern
m ent o f th e Un i ted S ta tes and th e p eop l e and Gov ernm ent o f th e
G erm an n ati on imp el s i t to p r es s ve ry s ol emnly upon th e I mp eri al
Germ an Gov e rnment th e n eces s ity fo r a s c rup ulou s ob se rv an c e o f
n eut ra l ri ghts i n th i s c rit i ca l m atte r F ri endsh ip i ts el f p rompts i t to
s ay to th e I mp eri a l Gov e rnm en t th at rep eti ti on by the comm ande r s
o f G erm an nav a l v ess el s o f a cts i n contra venti on o f thos e ri ght s m u st
be rega rded by th e Gov ernm ent o f th e Un i t ed S tates wh en they
a ffect A m e ri c an c i ti z ens a s d el ib erately un fri endly
LANS I NG
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( Th e N e w
No 6 1
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c an n o t e
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i g h t s ( NO
Th e S
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Yo r k Ti m es, J u l y
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l y i n g t o th e A m e r i
v i o l at i o n o f n e u tr a l
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f
f
or
F o r e ig n A f
fai r s to th e A m e r i c an A m
.
O n th e 2 d o f A p ri l you r Excel len cy h anded to m e a copy o f a
com muni ca ti on conta ini ng th e c ri ti c i sm s o f th e Uni ted States Go v
e r n m e n t o n th e m easu res w e h av e be en con st rai n ed to take on a ccoun t
o f the m enac e to p ea ce ful com m e rc e r e sulting from th e G erm an sub
ma r ine pol i cy Thi s comm un i cation h a s r ec ei v ed th e mo st c a r e fu l
cons ide ration o f hi s M aj esty s Gov ernm ent
2
I ful ly ap p reci ate th e fri endly S p i ri t and the c ando r wh i ch a r e
shown i n th e comm un i cation a nd replyi ng i n th e s am e sp i ri t I t rus t
t ha t I m ay be ab l e to convi n c e you r Exc el l en cy and a l so th e A dm in
i s tr ati o n a t W a sh ington th at th e m ea sures w e h a ve announced a r e
not only re a son abl e an d n eces s a ry i n th ems elv es but cons titute n o
mo re th an a n a dapt ation o f th e o l d p ri ncipl es o f blo c k a d e to th e
p ecul i a r c i rcu m stance s w i th wh i ch w e a re con fronted
3 I ne ed s ca rc ely dwel l o n th e obli gation i n cumb ent upon th e
A l l i e s to t ake ev ery s tep i n th ei r pow e r to ov e rcom e thei r common
enemy i n v i ew o f th e s ho ck in g v i olat ion o f th e re cogni z ed ru l es and
p rin cipl es o f ci vi li z e d w a r fa re o f wh i ch h e h a s b een gu i lty d u ring
th e p res ent struggle Y o u r Exc el l ency s a ttenti on h as al ready b een
d rawn to s om e o f th es e p roc eedings i n th e m emo ran d um wh i ch I
h and ed to you o n th e 1 9 th Feb rua ry S i n c e th at tim e Lo rd B ryc e s
report b a s ed on e v iden c e c a re ful ly s i fted by l egal exp erts des c ri b ing
th e atrociti es com m itt ed i n B elgium ; th e poi sonin g o f wel l s i n Ger
m an S outh we st A fri ca th e u s e o f poi s onou s gas es agai ns t th e t roop s
i n Fl and ers and fina l ly th e s inki ng o f th e L u s i tan i a w i thout any
opportuni ty to pa ss enge rs a nd noncombatants to s av e th ei r l ive s h av e
sh own h o w i ndisp ens abl e i t i s th at w e S h ould l eav e unu s ed no j u s t i
fiab l e m ethod o f de fendi n g ou rs elve s
4 Y ou r Excell en cy w i l l rem emb e r th a t i n m y note s o f th e 1 3 th
and 1 5 th Ma rch I expl a in ed th at th e al li ed Governm ents i nten d ed to
m eet th e G erm an attemp t to s top al l suppl i es o f ev e ry ki nd from le av
in g o r enter ing B ri ti sh o r F re nch po rts by th em s el ves interc epting
goods go ing t o o r from Ge rm any I r ead th e communi ca ti on from
you r Exc el lency s Gove rnment n ot a s qu esti on in g th e nec es si ty for
ou r t a k in g al l t h e steps op en to u s to c ri ppl e th e en emy s trade but
a s di re cte d sol ely to th e q u estion o f th e l egiti m a cy o f th e pa r t i cul a r
m easu res a d opted
5 In the va ri ou s note s wh i ch I h av e rece ived from you r Excel
1
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T H E P RO TE CTI O N O F N EUTRA L RI GH T S AT S EA
1 1
7
l eney th e r i ght o f a bell ige rent to es tabl i sh a blockade o f th e enemy
ports i s adm i t t ed a right wh i ch h as obviously n o value save in so
fa r a s i t g i ves power t o a belli ge ren t to cut O ff t he s e a borne expo r t s
a nd i mports o f h i s enemy Th e con t en t i on whi ch I unders t and t h e
Un i ted S t ates Governm ent now put forwa rd i s t ha t i f a bell i ge ren t i s
s o C i rcumstanced that h i s commerc e can p ass t h rough adj a cen t neu t ra l
po rts a s eas i ly as through por t s i n h i s own te rri t o ry h is O pponen t h a s
n o r i ght to i nte rfere and m ust restri ct h i s m easu res o f blockade i n
s uch a manner a s to leave such avenues o f commerc e sti l l open t o hi s
a dve rsa ry
Th i s i s a contention wh i ch h i s M aj esty s Gove rnm ent feel unabl e
to acc ept and wh i ch s eems to th em unsusta inable e i t her in poi n t o f
l aw o r upon p rincipl es o f in t e rnationa l equi ty Th ey a re u nable t o
a dm i t th a t a belli gerent v iolates any fundam ental princi pl e o f i n t e r
n ati o nal law by applying a blockade i n s uch a way a s t o cut o f
f th e
enem y s commerc e with foreign countri es t h rough neut ral por t s i f
the c i rcumstances render s uch an appl i cation o f th e p rincipl es o f
blockade th e only m eans o f making it e ffective Th e Governm en t
o f th e Uni t ed S ta t es i ndeed intimates i ts r eadi ness to take i n t o a ccoun t
th e great changes wh i ch h ave occu rred i n th e condi tion s and m ean s
o f n ava l wa r fa re s inc e th e rules h i th erto gove rning lega l blockad e
”
were formulated and r ecogniz es that th e form o f clos e blockade
w i th i ts cordon o f S h ips i n t h e im mediate o ffing o f th e blockaded por t s
i s n o longe r p racti cabl e i n th e face o f an enemy poss ess ing t h e means
a n d opportun ity to m ak e an e ffecti ve de fens e by th e us e o f s ubma rines
”
m ine s and a i rc ra ft
6 Th e only qu estion then wh i ch c an a ri s e i n rega rd to th e m eas
u re s res orted to fo r th e pu rpos e o f c a rrying out a b lockad e upon t hes e
ext ended l in es i s wh eth er to use you r Excellency s wo rds t hey con
fo rm to the sp i ri t and p rincipl es o f t h e es s enc e o f t h e rul es o f wa r
and w e S h al l b e content to apply th i s te st t o th e ac t ion whi ch we h ave
taken i n s o fa r a s i t h as neces sitat ed i nter ferenc e w ith n eutra l coni
m erc e
o
f
I
t
m
ay
b
e
not
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i
n
th
i
s
connection
th
at
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wa r th e United S tates found th ems elv es unde r th e n eces si t y o f d e
m i le s O f coas t l in e a m i l itary opera
c l a r i n g a blockade o f som e
ti on fo r wh ich th e numb er o f v es sel s avai l abl e was a t fi rs t ve ry smal l
I t was vita l to th e caus e o f th e Uni ted S tate s i n th at great s t ruggl e
th at th ey shoul d b e able to c u t o ff th e trade o f th e Sou t he rn S t a t es
Th e Con federate a rm i es w e re d epend ent on s uppli e s from O v ersea s
and th os e suppl i es could not be obtained w ithout exporting the co tt on
whe rewi th to pay fo r th em
To c u t o ff th i s trade th e United States could only rely upon a
b l ockad e Th e di fficulti es con fronting th e Federa l Gove rnm en t we re
i n p a rt d u e to th e fact th at n eighbo ring n eut ra l terri t o ry a ffo rded con
v e n i e n t c ent res from whi ch con t raband c o uld b e i n t roduced i n t o t h e
terri to ry o f th ei r enem ie s and from wh i ch blockad e runnin g could b e
fac i l itated Y ou r Exc ellency w ill no doubt r em ember h o w in o rde r
to m eet th i s n ew di fficulty th e o l d p rinci ple s rel a t ing to con t raband
an d b lockade we r e d eveloped and th e doct rin e o f con t inuous voyage
w as appl ied and en forc ed unde r whi ch goods d es t ined fo r th e enemy
t e rri to ry w ere intercep t ed b e fo re they reach ed the n eu t ral po r t s from
w h ich th ey we re to b e r e expo rted
8 Th e di fficulti es wh i ch impos ed upon th e U n ited S ta t es th e n e c e s
s i ty o f resh aping s om e o f th e old rules a re somewhat akin to thos e
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TH E P RO T E CT I O N O F N EU T R A L RI G H T S A T
1 18
S EA
w i th wh i c h th e A ll i es a re now fa ced i n dea l ing w i th th e tr ade o f th ei r
en emy A dj a c en t to Ge rm any ar e v a riou s ne ut ra l countri es w h i ch
a ffo rd h er conven i ent opp o rtuni ti es fo r ca r rying o n h e r t ra de w i t h
fo rei gn countri es H e r o w n t er ri tori es a re cov er ed by a netwo rk o f
ra i lways and wat erways wh i c h e n abl e h e r comm e rc e to p a s s a s c o n
v e n i e n tl y th rough p o rts i n s uc h n eutral countri es a s th rough h er own
A b lockade l im i ted to en emy po rts would l eav e open route s by w hi ch
every kind o f G e rm an comm erc e could p a s s al mos t a s ea s i ly a s th rough
the po rts i n h er own te rr itory Rotte rdam i s i ndee d th e nea res t O ut
l et fo r som e o f th e i ndu stri a l d i s tri cts o f G ermany
9 A s a coun terpo i s e to th e fre edo m w i th w h i ch on e b ell i ge rent
m ay s end h i s com m e r ce a cro s s a n eutra l count ry w i thout comp ro
m i s i n g its ne utra l i ty th e othe r b el l igeren t m ay fa i rly cl a i m to interc ept
s uch com m e rce be for e i t h as r each ed o r a f t e r i t h a s l e f t th e n eutra l
S tat e p rov i ded o f cou rs e th at h e c an es tab l i s h th at th e com m erce
wi th w h i ch h e i nte r fe re s i s th e com m er c e o f h i s en emy a nd not c o m
m e rc e w h i ch i s bon a fid e d esti ned fo r o r p roc eedi ng fro m th e n eutra l
S tate I t s eem s a cco rd ingly th at i f i t b e r ecogni z ed tha t a blo ckad e
i s i n c e rta in c as es the app rop r i at e m ethod o f inte rc epti ng th e trad e
o f an enemy country
and i f th e b lo ckade can on ly b ecom e e ffecti v e
by extendi ng i t to en emy comm erc e p a s s ing th rough n eutra l po rts
s u ch a n exten s ion i s de fe n s i bl e and i n a cco rdanc e w i th p rincip l es
whi ch h av e m et w i th gen eral a c cep tance
To th e co n tention th at s u ch a cti on i s not d i r ect l y s upporte d
10
by w ri tten a utho ri t y i t m ay b e repl i ed th a t i t i s th e bu s i n es s o f
w ri te r s on i nt ern a t ion al l aw to form ul ate ex i sting rule s rath e r t h an
to o ffe r s uggesti ons fo r th ei r a d apt a ti on to a lte red c i rcum s tanc e s
and you r Exc el l en cy wi l l r em emb er th e unm ea su red t e rm s i n wh i ch
a group o f p romi n ent int erna tional l awye rs o f a ll n ation s cond emne d
th e doct ri n e wh i ch h ad b e en la id down by th e S upr em e Cou rt o f th e
Uni ted S tates i n th e c as e o f th e S pr i n g bo k a doctri ne uph eld by th e
Claim s Comm i s s i on at W a sh i ngton i n 1 8 7 3 B u t th e Uni ted S tat es
and th e B ritish Gov ernm ent took a b roader v i ew and l ooked b el ow
th e su r fac e a t th e und erlyi n g pu rpos e and th e Gov ernm ent o f th i s
count ry whos e n ational s w ere th e s u ffere rs by th e extens ion an d
dev elopm ent o f th e o l d meth ods o f blockad e m ade by th e Uni t e d
S tat es du r i ng th e c i v i l w a r a b sta ined from a ll p r o tes t a gai ns t th e
deci s ion s by wh i ch th e s h ip s and the i r ca rgo es w ere condemn ed
1 1
W h at i s r eal ly i mpo rtant i n th e gen era l inte r es t i s th at adapta
tions o f th e o l d rul es S houl d n ot b e m ad e u nl es s th ey a r e con si st en t
wi th th e gen e ra l p r incip l e s upon w hi ch a n admi tt ed bel l igerent ri gh t
i s b a s ed I t i s a l so e s s enti a l that al l unnec es sa ry i nj u ry to n eutral s
s hould b e avoi d ed W ith th es e condi tions i t m ay b e s a fely a ffi rm ed
th at th e step s w e a re takin g to i nterc ept commodit i es o n th ei r w ay
to and from Ge rm any ful ly comply W e a re i nter fe r ing w ith no
goods wi th wh i ch we should n o t b e ent i tle d to i nter fer e by blo ckad e
i f th e geograph i c al pos iti on and th e cond i t ion s o f G erma ny a t p resent
w e r e su ch th at h e r com m erc e p as s ed th rough h e r o w n ports W e
a r e t aki ng th e u tmost po ss ibl e c a r e not to i nter fer e w i th comme rce
genuin ely destin ed fo r o r p ro c e edin g from n eut ra l countri es Fu rthe r
mo re w e h av e tempe red th e s everity w i th w h i ch ou r m eas u r es mi gh t
p res s upon n eutra l s by not apply ing th e rul e wh i ch w as i nv a ri ab l e
i n th e o l d form o f b lockad e th at sh ip s and good s o n th ei r way to
o r from th e blo ckaded a r ea a r e l i abl e to condemnation
1 2 Th e com muni cati on m a d e b y th e Unite d S tates E m b ass y o n
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TH E
1 20
P RO T E CTI O N O F N EUT RA L R I GH T S A T S EA
I t i s n o t nec es s a ry to d i s c us s th e ext en t to wh i ch th e s econ d
rul e o f th e D ecla r ati on o f P a ri s i s a ffecte d by th es e m easu res o r
wh ethe r it cou ld b e h el d to app ly a t a l l as b etwe en G r ea t B ri ta in and
th e Un it ed S tate s I n a ctual p ra cti c e h owev e r w e a re not deta ining
Th e
g oods o n th e sol e ground that th ey a re th e p rop erty o f an ene my
p urpos e o f th e m ea s u re s w e ar e taki n g i s to inter cep t com me rc e on i ts
w ay from and to th e en emy country Th ere a r e m any ca s es in wh i ch
p roo f tha t th e goods we r e enemy p rop erty w ould a ffo rd strong e v i
d en ce th a t th ey w e re o f en emy o ri gi n o r en emy d es tin ation and it i s
on ly i n s uch ca se s th at w e a r e d eta i ni n g th em W he r e p roo f o f
enemy own e rsh ip would a ffo r d no ev id enc e o f s u ch o rigi n o r d esti n a
t ion w e a r e n o t i n p ra cti c e d etai ni ng th e goods
18
H i s M aj esty s Go vernm en t h av e b e en grat ifi ed to obs e r v e th at
th e m easu res wh i ch they a r e en fo rc in g h av e h a d no d et ri menta l e ffe ct
Figu r e s o f rec ent m onth s
o n th e comm erce o f th e Un ited S tat es
S how th a t th e inc rea s ed O pportuni ti e s a fforded by th e w a r for A m e r
i can comm er c e h ave mor e tha n comp ens at ed fo r th e l o s s o f th e Ger
m a n and A us tri an m a r k ets
19
I t rus t th a t i n th e l igh t o f th e above e x p l anations i t w i ll b e
r eali z e d th at th e m e asu re s to wh i ch w e h av e r eso rte d h av e b een not
o nly j usti fi e d by the exigenc i es o f th e c as e but c an be d e fend ed a s
i n a ccordan c e w i th gene ra l p rin cip l es wh i ch h a v e com m ended them
s elv es to th e Gov ernm ents o f both countri es I a m gl ad to be abl e
to a s s u re you r Exc el l en cy t h at w e sh al l conti nue to apply th ese m eas
u re s wi th ev ery des i r e t o oc c asi on th e l eas t po ss ib le am ount o f i n
conveni enc e to p ersons engaged i n l egit i m ate com me rce
I h av e & c
E GREY
( Th e N ew Yo r k Ti m e s A ug us t 4
17
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No 6 2 T h i r d Ge r m an n o t e J u l y 3 0 1 9 1 5 i n r e g ar d to t h e
”
W i l l i am P F r y e
Th e M i ni s te r fo r F o r e i g n A ifai r s to th e A m er i c an A m bas s ado r
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Th e
un d e rs i gned h as the h o n o r to i n form h i s E x c el len cy M r J am e s
W Ge ra rd A mb a ss ado r o f th e Un i te d S tates o f A m eri c a i n r eply
t o th e note o f th e 2 6 th ul ti mo Fo rei gn O ffi ce N0
o n th e s ubj ect
o f th e s i nki ng o f the A m e ri can m e rch ant v es sel kV i l l i am P
F r y e by
th e G erm an auxi l i a ry c ru i s e r P r i n c e E i te l F r i e d r i c h th at th e p o i nts
o f v i ew b rough t ou t i n th e not e h av e b een c a re ful ly exam ined by
the I mp eri a l German Go v ernment Th i s e x am in ation h a s l ed to th e
fol low ing conclu s ions :
Th e Go v e rnment o f th e U n i te d S ta tes b e l i e v es th a t i t i s in cumb ent
upon i t to ta k e th e po s i tio n th at th e t r eaty ri ghts to wh i ch A me ri ca
i s enti tle d a s con ta i n e d i n A rti cle 1 2 o f th e P russ ia n A m e ri can t reaty
o f am i ty and comm e rc e o f S ep temb er 1 0
1 78 5
and i n A rti cl e 1 3 o f
th e P rus s ian A m e ri c an t reaty o f am i ty and com m erce o f J u ly 1 1
1 79 9
w ere v iol ate d by th e s in k i ng o f th e Wi l l i am P F r y e I t i nter
r
e
t
s
c
th
es
e
a
rti
l es as m ean ing th at a m erch antm an o f th e neutral
p
cont racting pa rty ca r ry in g contraband c annot i n any ci rcum sta nc es
b e de s troyed by a w arsh ip o f th e bel l i gerent contr acting pa rty and
th at th e s in k ing o f th e Wi ll i am P F r y e w as th er e fo r e i n v iol ati on o f
th e t reaty ev en i f h e r c a rgo S ho uld h ave c ons i ste d o f cont raband
wh i ch i t le a ves outs ide o f th e di s c uss i on
Th e G erm an Gove rnment cannot a cc ept th i s v i ew
It i ns i s ts a s
S ee N o s 3 7 39 43 5
55
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2.
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TH E
P RO TE CTI O N O F N EUTRA L RI GHT S AT S E A
121
he reto fore th at th e commande r o f th e Ge rm an auxi lia ry c rui s er ac t ed
i n th e l egal exerc i s e o f t h e ri gh t o f con t rol o f t rade i n con t raband
en j oyed by wa rsh i ps o f be lligerent na t ions and t h at t he trea t y s ti p u
l ati o n s m ent i oned merely obl ige the G erm an Government to make
c o m p n s ati o n for th e damage s ustai ned by th e A merican c iti zens
co n
c erne
I t i s not d isputed by th e A m e rican Governmen t tha t accord ing to
r
i n c 1 l e s o f i nternationa l l aw a b ell igerent i s au t ho riz ed in
ene
ra
l
p
p
g
Si nk i ng neutra l ves sels under a lmost any condi t ion s fo r ca rrying con
tr ab an d
A s i s wel l known th es e princi pl es we re laid down i n A r t i cl es
49 and 5 0 o f th e Declarati on o f London and we r e recogni z ed a t t ha t
ti m e by th e duly empow e red d elegates O f a l l the nation s wh ich pa r
ti c i p ate d i n the con ferenc e i ncluding th e A meri can delega t es to be
d ecla rati v e o f exi sting international law ( s ee p rel i mina ry claus e o f
th e Decla ration o f London ) mo reove r a t t h e beginning o f th e p re s
ent wa r th e A m e ri can Government p ropos ed to th e bel ligerent n a t ions
t o rati fy th e Dec la ration o f Lon d on and giv e its p rovi si ons form al
v al idity al so
Th e German Gov ernment h as al ready expla in ed i n i ts not e o f A p ri l
4 l as t fo r wh at reason i t cons iders th a t th e condi t ions j us t i fying t h e
s inking unde r i nterna t i ona l law we re p resent i n t h e cas e o f t he Wi l
l i am P F r y e
Th e ca rgo cons i sted o f condi t ional cont raband t he
destinati on o f wh i ch fo r th e hos ti l e a rmed forc es wa s t o b e presum ed
unde r th e c i rcum stanc es ; n o p roo f to O vercome thi s presump t ion ha s
been fu rni sh ed Mor e than h al f the ca rgo o f th e v es sel wa s con t ra
band s o that th e v ess el was l i abl e to confis ca t ion Th e a t tempt t o
b rin g th e A m e ri can v ess el i nto a German port would hav e grea t ly
i mpe ri led th e G erm an ves sel i n th e given s itua t ion o f t h e wa r and a t
any rat e p racti ca lly de feated th e s ucces s o f he r fu r t h er O pe rations
Th u s th e auth ori ty fo r S inking th e v es sel wa s given a ccording to
gen era l p ri ncip l es o f i nte rna t i ona l law
Th er e only rem a ins then to b e exami ned th e question h ow fa r th e
P ru ss i an A m eri can treaty s tipulations modi fy th es e princi ples o f inte r
n ationa l l aw
I n th i s connect ion A rti cl e 1 2 O f the Treaty o f 1 78 5 provides that
i n the event o f a wa r betwe en one o f t he contr acting pa rti es w i t h
anoth e r pow er th e free commerce and i n t ercours e o f th e n ational s
o f the pa rty rem ai ning neu t ral with th e belli gerent powe rs S h al l not b e
i nte rrupted bu t tha t on th e contrary th e v es s el o f t h e n eutra l pa rty
m ay n a vi ga te freely to and from th e po rt s o f th e bell igerent pow er
ev en n eutral i z i ng enemy goods on board th ereo f H owev er t h i s
a rti cl e me rely fo rmul ates gen eral rul es fo r th e freedom o f maritim e
inte rcou rs e and l eaves th e qu es t ion o f con t raband un t ouched ; t h e
S p ec ifi c sti pul ations o n th i s point a re contai ned i n th e fol lowi ng a rti cl e
whi ch i s m ateri a lly i d enti cal with A rti cl e 1 3 o f th e Treaty o f 1 79 9 n o w
in forc e
Th e pl a i n i ntention o f A rt i cl e 1 3 i s to establ i sh a reasonabl e c o m
p romi s e b etwe en th e mi l ita ry interests o f the b el lige rent con t rac t ing
pa rty and th e commerc i al interes t s o f th e n eutra l pa r t y O n the o n e
h and th e bel li ge ren t pa rty i s to h av e th e r i gh t to prevent th e tr an s
o
n
o
f
wa
r
l
i
es
to
hi
s
adversa
r
i
es
even
wh
en
ca
rr
i
ed
u
s
o
r
a
t
i
o
n
)
t
p
v ess el s o f th e n e u tr f
fpa rty ; o n th e oth e r h and th e comm erce and
navi gat ion o f th e n eutral pa rty i s to b e inter fe red w i t h a s l i tt le a s
pos si bl e by th e m ea su re n ecessa ry fo r such pre vent i on and reason
abl e compensation i s to b e pai d fo r any i nconven i enc e o r dam age
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a
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TH E P RO T E CT I O N O F N E U T RA L RI GH TS A T S E A
1 22
wh i ch m ay n eve rth el es s ensue from th e p roc ee d ings o f th e b el l iger ent
p a rty
A rti cl e 1 3 re c i te s th e followi n g m ea ns wh ereby th e b el l i ger ent pa rty
c an p revent th e v es s els o f th e neutra l p a rty from ca r rying w a r s upp l i e s
to h i s adve rs a ry Th e detention o f th e S h ip and c argo fo r s u ch
l ength o f t im e a s th e b el li ger ent m ay th i nk ne c es s a ry ; fu rth ermo r e
th e tak ing o ve r o f th e w ar sto re s fo r h i s o w n u s e p ayi ng th e ful l
val u e o f th e s am e as a s ce rtai ne d a t th e pl a c e o f desti nati on Th e
ri gh t o f s in k ing i s n o t menti on ed i n th e tr eaty and i s th ere fo r e
ne ithe r exp ress ly p e rm itted no r exp r es s ly p roh ib i te d s o th at o n th i s
oi
nt
th
e
pa
rty
s
tipul
at
ions
mu
s
t
be
suppl
em
ented
by
th
e
gene
ra
l
rul
e
s
p
F rom th e m eani ng an d spi ri t o f th e t reaty i t
o f int ernat i ona l l aw
rea l ly app ea rs o u t o f th e qu es tion th at i t w a s i nt en d ed to exp ect o f
th e b el l i ger ent th at h e sh ou ld p erm i t a v es se l loaded w ith contrab and
fo r examp le a sh ip m en t o f a rm s an d amm un i ti on o f d ec i s i ve im po rt
a nc e fo r th e outcom e o f th e w a r to p roc eed unh in d e re d to h i s enemy
w h en ci rcums tan c es forbi d th e c arryi ng o f th e
i nto port i f th e
general rul es o f i nte rnationa l l aw a l l ow S i n k i ng o f th e ve s s el
Th e rem a in ing stipu l ations o f A rti cl e 1 3 must l ik ew i s e b e c o n s i d
e r e d i n th i s l i gh t ; th ey p rov ide th at th e Capta i n o f a v es s el stopp e d
s h al l b e al low ed to p roce ed o n h i s voyage i f h e d eli ve rs ou t th e c o n
Fo r s uch de l i v e ring
tr ab an d to th e w a rsh ip wh i ch stopp ed hi s v es s e l
o f c ou rs e b e cons i dere d wh en th e ensu i ng l o ss o f ti m e
o u t cannot
i mp eri l s ei th e r th e wa rsh ip h e rse l f o r th e s u cc e s s o f h e r othe r O p e ra
t i on s I n th e ca s e o f th e Wi l li am P F r y e th e G e rman comman d er
a t fi rs t t ri ed to h av e m atte rs s e ttl ed by the d el i v e ry o f contraban d
but convinc ed hi m se l f o f th e i mp ra cti cabi l ity o f thi s att empt in th at
i t woul d expos e h i s sh ip to a tta c k by wh ateve r s up e ri or forc e o f enemy
wa r v es sels pu rs u ing h i m an d wa s a c co rdi ngly obl i ged to d ete rm ine
upo n th e s i nking o f th e F r y e Thu s h e d id n o t e x c ee d o n th i s po int
th e li mi ts to wh i ch h e wa s bound by A rti cl e 1 3
H ow ev e r A rti cle 1 3 a s se rts i ts el f h er e to th e ext ent th at i t foun d s
th e obl i gation to comp ens ate th e A m eri can c it iz ens a ffected wh erea s
a ccording to th e gen e ra l rul es o f i nte rn ation al l aw th e b el l i ge rent
p a rty does not n e ed to grant compens ati on fo r a v es s el l aw ful ly s un k
F o r i f by A rti cl e 1 3 th e m ere ex e rc i s e o f ri gh t o f h i ghw ays m a k e s
th e b e ll ige rent l i abl e fo r comp ens ati on th i s m us t apply a fo rti ori to
th e exerc is e o f th e ri ght o f s ink ing
Th e question wh ethe r th e Ge rm an com man d e r a cte d l egal ly wa s
p r i ma ri ly a s ubj e ct fo r th e cons ide ration o f th e Ge rm an p ri z e cou rts
a ccordin g to gene ra l p ri ncip l es o f i nt e rn ational l aw as lai d down al so
i n A rti c l e I o f Th e H agu e Conv enti o n fo r th e e stab li shm ent o f an
i nternationa l pr i z e c ou rt and i n A rt i cl e 5 1 o f th e Decl arati on o f
London Th e Ge rm an Gov ernm ent cons e q u ently l ai d th e c as e o f
th e Wi l l i am P F r y e b e fo re th e comp et ent p ri z e cou rt at H ambu rg
a s wa s stat ed i n i ts note o f th e 7 th ul t Th i s cou rt foun d by i ts
j udgment o f th e l o th i nst th a t th e c a r go o f th e A m eri can ves s el
Wi l l i am P F r y e w a s contraband ; th a t th e ve s s el could not b e ca rri ed
into p ort and th at th e si n k i ng wa s th ere for e j ustifi ed ; at th e s am e
ti m e th e cou rt exp ress ly recogni z ed th e va l idity o f th e P rus s i an
A m eri can tr eaty s tipu lations s ev eral ly
mo d e l fo r th e rel ations b e
tw een th e Ge rm an Empi r e and A m eri ca s o th at th e s in k ing o f th e
sh ip and ca rgo s o fa r a s A m e ri can p rop e rty m a k es th e Ge rm an E m
pi r e l i abl e fo r in d emni ty Th e P ri z e Cou rt wa s unabl e to fix th e
Om i s s i on s
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TH E P RO TE C TI O N OF
1 24
N EU T R A L RI GH TS A T S E A
i l lu st rati ng furth e r th e att itud e a d opt ed by th e j udges o f
B riti s h p ri z e cou r t s tow a rd th es e two s ou rc es o f l aw th e m un i cipa l
legi s la ti on o f i ts s ove re ign on th e on e h and and th e p ri nci ple s o f
i nterna tiona l l aw on th e othe r I S houl d l ike to r e fe r you r Exc el l ency
t o a clas s i ca l p as s age i n th e j udgm ent o f Lord S towel l in th e ca s e o f
th e F o x i n wh i ch th at famou s J udge Ob s er v e d i n th e cou rs e o f th e
di scus s ion :
A qu estion h a s b een s tate d : W h at w ou ld b e th e d ut y o f th e
cou rt under O rders i n Counc i l th at w er e r epugnan t to th e l aw o f
nation s $ I t h as b een contende d o n o n e si d e th a t th e cou rt wou ld
at a l l ev ents be bound to e n fo rc e th e O rd e rs i n Counci l o n th e oth e r
tha t th e cou rt would b e bound to apply th e rul e o f th e l aw O f nation s
ad apted to th e pa rti cul a r ca s e i n di s rega rd o f th e O rd ers i n Counc i l
Th i s cou rt i s bound to admini ste r th e l aw o f nati ons to th e
subj ect s o f oth e r count ri e s i n th e di ffe rent r el ation s i n wh i ch th ey
may b e p l ac ed towa rd th i s country and i ts Gov ernm ent Th at i s
wh at oth e rs h a v e a ri gh t to dem and fo r th ei r s ubj ect s an d to c o m
pl a i n i f th ey r ec ei v e i t n o t Thi s i s i t s unw ri tt en l a w ev id enced i n
t he cou rs e o f it s deci s ions an d col l ect ed from th e common u sage o f
c i v i li z ed S ta tes A t th e s am e tim e i t i s s tri ctly t ru e th at by th e
Consti tuti on o f th i s country th e King i n Counci l pos s es s e s l egi sl a t i v e
rights ov e r th i s court and h a s pow e r to i s su e o rde rs and i ns t ructi on s
wh i ch i t i s boun d to ob ey an d en forc e ; and th es e cons titute th e w ri t
ten l aw o f thi s cou rt
Thes e two p ropos itions th at th e cou rt i s b ound to a d mi n i ster th e
l aw o f nati on s and th at i t i s bound to en fo rc e th e King s O rders i n
Counc i l a re n o t at a l l i ncons i stent w i th ea ch o t h er becau s e the s e
o rde rs and i nstru cti on s a r e p r esum ed to con fo rm th em s el ves u nd er
th e given ci rcums tan c es to th e p rin ci pl es o f i t s unw ri tten la w Th ey
a re ei th e r d i recto ry app li c at ion s o f thos e p rin c ipl es to th e ca s e s i n d i
c ate d i n th e m —
ca s es wh i ch w i th a l l th e facts and C i rcum stanc es
b elonging to th em a n d wh i ch con sti tut e th e i r l ega l ch a ra cte r coul d b e
but i mpe r fectly k nown to th e cou rt itse l f ; o r th ey a r e pos iti v e r egu
l ati o n s con si stent w ith th e s e p r in cipl es applyin g to m att ers wh i ch
requi re mor e ex act an d d efini t e ru l e s th an thos e gen era l p rinc ipl es
a r e capabl e o f fu rni sh ing
Th e con stituti on o f th i s cou rt r e l at i vel y to th e l egi sl ati v e pow e r
o f th e King i n Coun ci l
i s analogou s to th at o f th e Cou rt s o f Comm on
Law r elati v el y to th at o f th e P a rl i am ent o f th i s Ki n gdom Th es e
cou rts h av e the i r u nwritt en l aw th e a pp rov e d rea sons princi pl es o f
natu ra l rea son and j u sti c e ; th ey h ave l ik ewi s e th e w ritten o r statute
la w i n A cts o f P a rl i am ent wh i ch a r e di rectory appl ic ations o f th e
sam e p rinci pl es to pa rti cu la r subj ects o r po s iti v e regulations cons i s t ent
wi th th em upon m atte rs wh i ch woul d rem a in to o mu ch at l a rge i f
th ey we r e l e ft to th e imp er fect i n fo rm ation wh i ch th e court s could
ext ra ct from m e re gene ral sp ecul ations
W h at would b e th e duty o f th e indi v i d ua l s w h o p res ide i n th es e
cou rt s i f r e q u i re d to en fo rc e a n A c t o f P a rli ament wh i ch contra
di cted th os e p ri nciple s i s a qu esti on wh i ch I p resum e th ey w o ul d not
ente rtai n a p rio ri b ec au se th ey w il l not ente rtain a p rio ri th e s uppo
s i ti o n th a t any su ch wi l l a ri s e
I n l ik e m ann er th i s cou rt wi l l not l et
i ts el f loos e i nto sp ecul ation s a s to wh a t would b e its d u ty u n d e r su ch
an em e rgen cy ; b ecaus e i t c annot wi thou t ext reme i ndecen cy p r e
sum e th a t any su ch em ergen cy wi l l h app en A n d i t i s th e l es s di spos ed
t o enter t ai n th em b ecau s e i ts own ob s e rvati on and exp e ri ence attes t
4
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As
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T H E P RO TE CTI O N O F N EUT RAL RI GH TS
AT S E A
1 25
the genera l con form i t y o f such o rders and i nstructions to i t s p rinci
”
p l es o f unw r i tten l aw
T
h
e
above pas sa g e ha s recently been quoted and adopted by t he
5
P res i den t o f t h e pr i z e court i n th e ca s e o f t h e $ a m o r a i n whi ch S i r
S Evan s s a id :
I make bold to express t h e hope and beli e f t hat
the nat i ons o f th e world need not b e appreh ens ive t ha t O rd ers i n
Counci l wi l l emanate from th e Governm ent o f th i s coun t ry i n s uch
V i olat i on o f th e a cknowledged l aws o f na tions tha t i t is concei vable
tha t o u r pri z e tribuna ls holdi ng th e law o f na t ions i n re verenc e
would be ca ll ed upon to di s rega rd and re fuse obedi enc e to th e provi
”
s i on s o f such orders
6 I n th e note wh i ch I handed to your Excell ency on th e 2 3 d o f
J uly I endeavored to convi nce th e Governmen t o f th e Uni t ed S t a t e s
and I trus t wi th success that th e measu res t hat w e h ave fel t our
s elves comp elled to adopt i n cons equenc e o f th e numerous a c t s com
m i tte d by ou r enemi es i n v iolation o f th e l aws o f wa r and t h e d ic
tates o f hum ani t y a re cons i s tent wi th th e p ri ncipl es o f in t erna t ional
la w Th e l egali t y o f th es e mea sures has not yet fo rm ed t he subj ec t
o f a deci si on o f th e p ri z e cou rt ; but I w ish to take t hi s O pportuni t y
o f rem inding you r Excel lency that i t i s open t o any Un i t ed S t a t e s
c i tiz en whos e c la im i s be fore t h e p ri z e court to contend th at any O rde r
i n Counci l wh i ch may a ffect h i s cl aim i s i nconsi s tent w i th th e pri n
c i p l e s o f inte rnationa l l aw
and i s th ere for e not b indi ng upon the
cou rt I f th e p ri ze cou rt dec l ines to a cc ept h i s con t entions and i f
a fte r s uch a deci s ion h as b een uph eld o n appea l by th e J ud ici a l
Commit t e e o f h i s M aj esty s P ri vy Council the Gov ernmen t o f t h e
United S tates o f A me ri ca cons ider that there i s se rious ground for
ho ldin g tha t th e dec is ion i s incorrect and in fringes t he righ t s o f th ei r
c itiz ens i t i s open to th em to c la im th at i t should b e subj ecte d to r e
v i ew by an i n t ernational tribunal
T
hi s p rinciple that th e dec i sions o f th e national p rize cour t s
7
m ay p roperly be subj ected to inte rnati ona l r ev iew wa s conceded by
G reat B ri t a in in A r t i cl e V I I o f th e J ay trea t y o f 1 79 3 and by th e
Uni ted S tates o f A m eri ca unde r th e T re aty o f Wa sh ington o f 1 8 7 1
Y ou r Exc ell en cy wi l l no doubt rem embe r th at c e rta in cas es ( colle e
”
M atamo ros cas es ) were subm i tted to th e
ti v e l y known a s the
comm i s s ion establ i sh ed under A rti cle s X I I X V I I o f th e Trea t y o f
Wa sh ington In e ach o f thes e ca ses p roceedings i n pri z e h ad been
i n stituted i n th e p ri ze cou rts o f the Uni t ed S tate s and i n ea ch cas e t h e
j udgment o f th e S uprem e Cou rt th e court o f l ast resort i n ca s es o f
p ri z es h ad b een ob t ai ned Th e Un ited S tates fil ed a d emu rre r in
th es e ca s es all eging th at as th ey had been h ea rd by th e p ri z e cou r t s
o f th e Uni ted S tate s o f o rigina l and appellat e j u ri sdicti on th e deci si on
and no cla im bas ed upon it could be
o f th e appel lat e cou rt w as final
mad e be fo r e th e commi s s ion Th e demurr er was unanimously ov er
rul ed and th e case s h ea rd and th e agent o f the United S t ates in
h i s reports o f th e proc eedings o f th e commi ss ion stated th a t h e per
ma i ntain ed no doubt o f th e j u ri sdi cti on o f th e comm i ss ion
s o n all y
a s an inte rnational t ribunal to revi ew the deci si ons o f th e pri z e cou r t s
o f th e Un i ted S tates wher e th e pa rti es a lleging th em sel ve s aggri eved
h ad p ros ecuted th ei r cl aim s by appeal s to the court o f la st re sor t ;
a s th i s j u ri sd icti on $ how e v e r had been s om etim es q uesti oned h e
d eem ed i t d esi rabl e that a forma l a d j u d i cation by th e commi ss ion
should b e held upon thi s question
8 Th e s am e p rincip l e w as accepte d bot h by th e U n i te d S tates
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TH E P RO TE CT I O N OF N EUT R A L RI GH T S A T
1 26
S EA
’
Gov e rnm ent a nd h i s M aj esty s Gov ernm ent i n 1 9 0 7 i n conne cti on
wi th th e p ropos ed e stab l i sh m ent o f an i nterna tiona l p ri ze court
a lthough ce rta i n constitut iona l di fficul ti es h av e l ed th e Uni ted S tates
Gov ernm ent to p ropos e tha t th e ri gh t o f r ecou rs e to th e i nt e rn ati ona l
p ri z e cou rt i n conne ction wi t h a d ec i s ion o f th e S up rem e Court o f
th e Uni te d S tates shoul d ta k e th e fo rm o f a d i r ect c l a i m fo r c o m
,
i
on
n
s
a
t
e
p
.
b
I
t
i
s
c
l
e
a
r
th
ere
fore
th
at
oth
th
e
U
ni
te
d
S
tate
s
Gov
ernm
ent
9
an d h i s M aj es ty s Gov ernm ent h a v e adopte d th e p rin cipl e tha t th e
d eci s ions o f a n ati onal p ri z e court m ay b e O p en to rev i ew i f i t i s h eld
i n th e p ri z e cou rt and i n th e J udi c ial Comm ittee o f th e P ri vy Coun
c i l on appe al th at th e o rde rs an d i ns tructions i s su ed by hi s M aj esty s
Gove rnm ent i n m att e rs r elating to p riz e a r e i n h a rmony w i th th e
p r i ncipl es o f i nternational law ; and s hould th e Gove rnm ent o f th e
Uni ted S ta tes un fo rtunately fee l c omp el l ed to m a inta in a contra ry
v i ew h i s M aj e sty s Gov e rnm ent w i l l b e p repa re d to conc ert w i th th e
Un ited S tat es Gov ernment i n o rde r to de c i d e u pon th e be s t w ay o f
applyi ng th e ab ove p ri nc ip l e to th e s itu ation wh i ch would th en h av e
a ri s en I t rus t h ow ev e r th a t th e d e fens e o f ou r a cti on wh i c h I
h ave a l r eady commun i cated to you r Exc ellen cy and the w i l l ingnes s
o f h i s M aj esty s Gove rnm ent
( wh i ch h a s b een S hown i n s o m any
i n st anc es ) to m a k e rea sonab l e conce s s ion s to A m er i ca n i nt er ests w i l l
p rev en t th e n e c e s si ty fo r s uch a ct ion a ri s ing
10
I n any ca s e I t rus t th at th e expl anati on s gi v en abov e w i l l r e
mov e the m i s app reh ens i on unde r wh i ch I c annot but fe e l the Gov ern
m ent o f th e Un ite d S tate s a r e l abo ring a s to th e p ri nci p l es appl i ed
by B ri ti sh p ri z e cou rts i n d ea l ing w ith th e ca s es Wh i ch com e b e fo re
th em
I hav e & c
E GREY
,
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( Th e N e w Y o r k Ti m e s A ug us t 4
64
B r i t i s h n o t e J u l y 3 1 1 9 1 5 r e p l y i n g t o NO 5 8
S e c r e tar y o f S tate fo r F o r e i g n A ffai r s to th e A m e r i c an
,
No
.
.
.
.
Th e
b as s ad o r
,
,
,
,
.
.
Am
.
Th e
note wh i ch you r Exc el l ency add res s e d to m e o n th e 1 7 th inst
resp ecting th e d et en t i on o f th e c a rgo o f th e s tea ms h ip N e c h es h a s I
n e ed h a rdly s ay rec ei ved th e c a re ful attention o f h i s M aj esty s Go v
.
,
’
$
,
e r n m ent
.
Th e note
2 3 d insta nt
wh i ch I h a d th e hono r to s en d to you r Excel lency o n th e
h as al ready expl a in ed th e v i ew o f h i s M aj esty s Govern
m ent o n the l egal a spe ct o f th e q u estion though i t was p repa red
b e fo re you r Excell ency s comm un i ca t i on o f th e 1 7 th h ad b ee n rec ei ved
and p ending consi deration by th e Governm en t o f th e Uni ted S tates
o f the v i ews an d a rgum ents s et forth i n th e B ri ti sh note o f the 2 3 d
i t i s u nne c es s a ry for m e to say m o re o n th e q uestion o f r igh t or o f l aw
Th er e i s h ow ev er on e gene ra l obs ervation th at s eem s r el evant to
th e note from your Exc el lency s respe ctin g th e c a rg o o f th e N e c h e s
I t i s th e p racti c e O f th e G e rm an Gov ernm ent i n the waters th rough
wh i ch the N e c h e s w a s pa s si ng to s in k n eutra l a s w el l a s B ri ti sh
me rch ant v es s el s i rresp ecti v e o f th e d estin ation o f th e v es sel o r o ri gin
o f th e ca rgo
and without p rop e r r ega rd o r p rov i s ion fo r the s a fety
o f p as s enge rs o r cr ew s m any o f whom h ave lost th ei r l i ve s i n c o n
s equence Th ere c an b e no qu estion th at th i s a cti on i s contra ry to
t h e recogni z ed an d s ettl e d rule s O f i n t ern ati o n al l aw a s w e ll as to
th e p rinc ip l e s o f h um an it y
’
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-
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THE P ROT E CT IO N
1 28
O F N E UT RA L
RI GH T S AT S E A
I mp e ri al Ge rm an Gove rnm ent u nde r i ts a dmi tted l i ab i l ity fo r th e
los s es o f the owne rs and Captai n on a ccount o f th e d es truc tion o f th e
F r y e s hou ld be s ettl ed by d ipl omati c n egot iat i on and it enti r ely c o n
cu rs w i th th e s uggestion o f th e I mp eri al Germ an Gov ernm ent th at th e
s i mples t way would b e to agre e a s p ropos ed i n you r note
th at each
o f th e tw o Gov ernments des ignat e a n exp e rt a nd th at th e two exp erts
j oi ntly fix th e amount o f indemni ty fo r th e v ess el an d any A m eri ca n
”
p rope rty whi ch m ay h av e be en s un k w i th h e r to b e p a i d by th e
I mp eri a l G erm an Gov e rnment w h en as c erta in ed as s tate d i n you r
note It i s a s sum ed th at th e a rrangem ent w i l l i ncl ude s om e p rov i s ion
fo r ca ll in g i n a n ump i re in ca se th e e xp e rts fa i l to agre e
Th e Gove rnm ent o f th e Un i ted S ta tes notes th a t you r s uggestion
i s m ade w ith th e exp r es s r es e rvati on th at a p aym ent unde r th i s
a rrangem en t wou ld not con sti tute an admi s s ion th at A m eri can treaty
ri ghts h ad b e en v i ol a ted but wou ld b e re ga rde d by the I mp e ri a l Ge r
m an Gov ernm ent me r ely a s fu lfil li ng a duty o r pol i cy founded on
exi sti ng t reaty s tipul ati ons A paym en t m ade on th i s un d e rs t andi ng
would b e enti rely a cc ept abl e to th e Gov e rnm ent o f th e Un i ted S tates
p rov ided th at th e a c c eptanc e o f s uch p aym ent S hould li k ew i s e b e
und erstood to b e w i tho ut p rej udi c e to th e c ont ention o f th e Gov ern
ment o f th e Uni ted S tates th at th e s ink ing o f th e F r y e w a s w ith out
l e gal j u st i ficati on an d p rovi d ed a l s o th at an a r ra n gement c an b e
a g reed u pon fo r th e i m m edi at e sub mi s s i on to a rbi t rati on o f th e que s
ti on o f l ega l j u sti fi cati on i n s o fa r a s i t i nvol ve s th e int erp retati on o f
exi st i ng t reaty sti pu l ati on s
T h e re can b e no di fferenc e o f opi ni on b etw een th e two Gov ernm ents
a s to th e d es i rab i l ity o f h a vi ng th i s qu estion o f th e tru e i nten t and
mean ing o f th ei r treaty stip ul ation s determ i n ed wi th out d el ay and
to th a t end th e Gov e rnm en t o f th e Un it ed S tates p ropos es th a t th e
al te rnati v e suggest ion o f th e I mp eri al German Gov e rnm ent al so b e
adopted s o th at thi s q u esti on o f trea ty i nte rp retati on c an be s ubm i tted
fo rthwi th to a rb it rati on pu rsu ant to A rti cl e X X X V I I I o f Th e H agu e
convention fo r th e p ac i fi c s ettl em ent o f i nternational d i s pute s
I n th i s way both th e q uest ion o f i nd emni ty and th e q u est ion o f
t reaty interp r etati on c an p romptly be s ettl ed and it w i l l b e obs e rv ed
t h at th e only ch ange m ade i n th e pl an p ropos ed by th e I mpe ri a l Ge r
m a n Governm ent i s th at i n st ead o f eli mi n atin g e i th e r on e o f i t s
a lte rn ativ e suggesti on s th ey a re both gi ve n e ffect in o rder th a t bo t h
o f th e qu esti on s unde r di s cu s si on m ay b e dealt w ith at th e s am e t i me
I f th i s p ropos al p rove s ac ceptab l e to th e Imp eri al Ge rman Gov e rn
m ent i t w i l l b e n ec e ss a ry a l s o t o determi n e wh eth e r pending th e
a rb it ral aw ard th e I mp eri al Ge rm an Gov ernm ent S h al l gov e rn its
naval ope rati on s i n a ccordanc e wi th it s o w n inte rp retation o r i n
a cco rdanc e wi th th e i nt erp ret ati on m a intai ned by th e Uni ted S tat es
a s to th e obl i gati on s i mpos ed by th ei r t reaty s tipul ati ons an d the
Gov ern ment o f th e Uni ted S tates would b e gl ad to h av e an exp re s
s ion o f th e v i ew s o f th e I mp eri al G erman Gove rnm ent on th i s po int
LA N S I N G
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r k Ti m e s A ug u s t
Y
o
T
h
e
N
w
e
(
,
No
66
.
B r itish
.
c o n tr ab an d
co t ton
n
r
c
a
m
a
o
o
t
,
p
l
i
1
8
,
Au gu st
21
,
1
9 5,
1
d e cl ar i n g
of
No w th ere for e we do h ereby d ec l are by and wi th th e advi c e
,
f ou r
Counc i l tha t during th e con t i nuanc e o f t h e w a r o r un t i l w e
S ee N os 6
3
P ri vy
*
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o
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I O,
,
1
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,
TH E
P RO TE CT I O N O F N EUT RAL RI GH T S
AT S E A
1 29
do gi v e fu rth er publi c notice th e following arti cles wi l l b e treated a s
absolutely con t raband i n add i t ion t o t hos e se t ou t in ou r royal p roc
l am ati o n a fo rem en t ioned : Raw cotton co t ton l inte rs co tt on wa s t e
and cot t on ya rn
A n d we do h e reby fu rth er decl are th a t th i s ou r royal p rocl ama t i on
sh al l take e ffec t from th e date o f i t s publ i ca t i on i n t h e London
,
,
,
.
Gaz
e tte
.
( Th e N e w
Yo r k Ti m e s A ugust
,
22,
,
,