The Americans were delighted with this very doubtful promise, and they believed that they had forced Germany to give up the worst features of the blockade. If you read the promise carefully, you will see that the Germans had so worded it that they could still proceed in the old way. A submarine might give passengers time to get into small boats in mid-ocean, but how could it ensure their safety? There was a case during the "blockade" of men who had escaped in a boat being afloat for four days without food and water, and some of them dying from exposure. Then, again, the promise only applied to passenger liners, and not to merchant ships. It was quite easy for a submarine commander to sink a liner, and then pretend that it had resisted or tried to escape. Above all, nothing was said about the right of Americans to sail the seas without their lives being endangered by warships. Nevertheless, the Americans were delighted with the promise, and plumed themselves greatly on having done a great service to mankind. Three days later came a rude awakening. On the night of 4th September the Allan liner _Hesperian_ was torpedoed by a German submarine _without warning_. The liner was then 130 miles west of Queenstown She kept afloat for some time, and was towed towards port, but went down at seven o'clock on the morning of 6th September. There was a small loss of life, and there were two Americans on board. It was now clear to everybody that the German promise was a mere "scrap of paper." Wrath surged up again in the United States, but it led to nothing. The Germans untruthfully declared that the vessel was sunk by a mine and not by a submarine. During the last three weeks of August and the first week of September ships of all sorts were sunk at the rate of about sixteen a week. Then came a rapid falling off, and during the week ending 10th October only two ships were sent to the bottom. The submarine blockade was fizzling out. The Germans had changed their policy, not because of the protests of the Americans, but because they had discovered that the game was not worth the candle. Mr. Balfour, in a letter to a correspondent, gave the true reason why the Germans were bringing the blockade to an end. He said that while the losses of German submarines had been very great, the British merchant navy was stronger than when the blockade began. Though many innocent persons, women and children as well as men, had been robbed and killed, the criminals had paid a heavy toll. The reason why the Germans had changed their policy was not because the United States had protested, not because the Germans had revolted against lawless cruelty. "No. The reason is to be found elsewhere. It is to be found in the fact that the authors of the submarine policy have had time to measure its effects, and that deeds which were merely crimes in May, in September were seen to be blunders."