The case of the Law, which was carrying lemon-box staves to Palermo,
disclosed a ruthlessness of method which deserves grave condemnation,
but was accompanied by no circumstances which might not have been
expected at any time in connection with the use of the submarine
against merchantmen as the German Government has used it.
In sum, therefore, the situation we find ourselves in with regard to
the actual conduct of the German submarine warfare against commerce
and its effects upon our own ships and people is substantially the
same that it was when I addressed you on the 3d of February, except
for the tying up of our shipping in our own ports because of the
unwillingness of our ship-owners to risk their vessels at sea without
insurance or adequate protection, and the very serious congestion of
our commerce which has resulted, a congestion which is growing rapidly
more and more serious every day.
This in itself might presently accomplish, in effect, what the new
German submarine orders were meant to accomplish, so far as we are
concerned. We can only say, therefore, that the overt act which I
have ventured to hope the German commanders would in fact avoid has
not occurred.