American co-operation in guaranteeing peace must depend on the nature of the settlement it self. Since both sides had stated that it was not their intention to crush their antagonists, it must be a peace between equals. It must be a peace founded upon an equality of rights among the nations, irrespective of their size or strength; it must be a peace based upon the principle that govennnents derive all their just poweri from the consent of the governed. The acceptance of this principle, he said, would im ply the inviolable security of life, of worship, and of industrial and social development to all the peoples who have hitherto lived under governments not responding to their wishes. Every great people should be assured of direct access to the sea. Freedom of the seas should be assured. There must be limitations of arma ments, military and naval.
The mass of discussion which this address called forth m Europe and America was in terrupted a note from Germany on 31 Jan. 1917, announcing the immediate resumption of ruthless submarine warfare. This note took cognizance of the President's address, and Ger many declared herself ready to accept self government and equality of rights for all na tions, the freedom of the seas, the open door, and the repudiation of comuelling alliances. I3ut since the attempts of the Central Powers to bring peace had not succeeded, it was now necessary to fight to the bitter end. Thus forced to fight for existence the Imperial gov ernment could not neglect the full employment of all the weapons which were at its disposal.
Two memoranda accompanied the note. "Germany will meet the illegal measures of her enemies,D said the first, "by forcibly prevent ing after 1 Feb. 1917, in a zone around Great I3ritain, France, Italy and the eastern Mediter ranean, all navigation, that of neutrals included, from and to England, from and to France, etc. All ships met within that zone will be sunk?' The other memorandum defined the boundaries of the barred zones, arid the open routes through them and stated the rules for the guidance of American shipping.
This note threw down the gauntlet to the United States. That diplomatic relations would be severed at once was considered certain. Either the President must act, or make a com plete surrender of all he had gained through long months of patient diplomatic endeavor. In fact on 3 Feb. 1917, Mr. Wilson announced to Congress that relations with Germany had been severed. *I think you will agree with me,° he said °that, in view of this declara tion, which suddenly and without prior intima tion of any kind, deliberately withdraws the solemn assurance given in the Imperial govern ment's note of the 4th of May 1916, this govern ment has no alternative consistent with the dignity and honor of the United States but to take the course which, in its note of the 18th of April 1916, it announced that it would take in the event that the German govemment did not declare and effect an abandonment of the methods of submarine warfare which it was then employing and to which it now purposes to again resort. I have, therefore, directed the
Secretary of State to announce to his Excel lency the German Ambassador that all diplo matic relations between the United States and the German Empire are severed, and that the American Ambassador at Berlin will imme diately be withdrawn; and, in accordance with this decision, to hand to his Excellency his passports.) The President still trusted that the Ger man authorities would not go so far as to de stroy American ships and take American lives on the high seas. Should this, however, hap pen, he would take the liberty of coming again before Congress to ask that authority be given him to use any means necessary for the pro tection of American seamen and other citizens.
Germany. meanwhile, had actually begun the sinking of merchant vessels without warning. But the damage done to American shipping was Zimmerman to propose an alliance with Mexico against the United States.
°On the first of February,° the instructions said, °we intend to begin submarine warfare un restricted. In spite of this, it is our intention to endeavor to keep neutral with the United States of America. If this attempt is not suc cessful, we propose an alliance on the following basis with Mexko: That we shall make war together and together make peace. We shall give general financial support and it is under stood that Mexico is to reconquer the lost terri tory of New Mexico, Texas and Arizona. The details are left for settlement °You are instructed to inform the President of Mexico of the above in the greatest oonfi more in apprehension than in fact, as the fear of sinking had kept hundreds of vessels in har bor. President \Nilson, therefore, appeared again before Congress and requested that the authority be given him to supply merchant ships with defensive arms. This request met with vigorous opposition from a small group of senators, and by an active filibuster, was held up for some days. In the end it was passed by an amendment of the Senate's rules which pro vided that by a two-thirds vote a measure might be brought to an immediate vote.