The negotiations over the _Sussex_ had taught Mr.Wilson this truth.

He understood that the pledge which the German Government had made was only a conditional one; that the submarine campaign had been suspended only for the purpose of giving the United States a breathing spell during which it could persuade Great Britain and France to make peace.
"I repeat my proposal," Bernstorff cabled his government on April 26,[38] "to suspend the submarine war at least for the period of negotiations.

This would remove all danger of a breach [with the United States] and also enable Wilson to continue his labours in his great plan of bringing about a peace based upon the freedom of the seas--i.e., that for the future trade shall be free from all interference in time of war.
According to the assurances which Wilson, through House, has given me, he would in that case take in hand measures directly against England.

He is, however, of the opinion that it would be easier to bring about peace than to cause England to abandon the blockade.

This last could only be brought about by war and it is well known that the means of war are lacking here.