Mr. Balfour by this time had returned from America.  The fact that he had established these splendid personal relations with Mr. Wilson, and that he had impressed the American public so deeply with his sincerity and fine purpose, made him especially valuable for this particular appeal.  Page and Admiral Sims therefore went to the Foreign Office and laid all the facts before him.  Their own statements, Page informed the Foreign Secretary, were evidently regarded as hysterical and biased by an unreasoning friendliness to Great Britain.  If Mr. Balfour would say the same things over his own signature, then they would not be disbelieved.

Mr. Balfour gladly consented.  He called in Admiral Jellicoe and asked him to draft a despatch, so that all the technical facts would be completely accurate.  He also consulted with Sir Edward Carson, the First Lord of the Admiralty.  Then Mr. Balfour put the document in its final shape and signed it.  It was as follows: 

     Mr. Balfour to the President

     June 30, 1917.

The forces at present at the disposal of the British Admiralty are not adequate to protect shipping from submarine attack in the danger zone round the British Islands.  Consequently shipping is being sunk at a greater rate than it can be replaced by new tonnage of British origin.

The time will come when, if the present rate of loss continues, the available shipping, apart from American contribution, will be insufficient to bring to this country sufficient foodstuffs and other essentials, including oil fuel.  The situation in regard to our Allies, France, and Italy, is much the same.

Consequently, it is absolutely necessary to add to our forces as a first step, pending the adoption or completion of measures which will, it is hoped, eventually lead to the destruction of enemy submarines at a rate sufficient to ensure safety of our sea communications.

The United States is the only allied country in a position to help.  The pressing need is for armed small craft of every kind available in the area where commerce concentrates near the British and French coasts.  Destroyers, submarines, gunboats, yachts, trawlers, and tugs would all give invaluable help, and if sent in sufficient numbers would undoubtedly save a situation which is manifestly critical.  But they are required now and in as great numbers as possible.  There is no time for delay.  The present method of submarine attack is almost entirely by torpedo with the submarine submerged.  The gun defense of merchant ships keeps the submarine below the surface but does no more; offensively against a submerged submarine it is useless, and the large majority of the ships torpedoed never see the attacking submarine until the torpedo has hit the ship[62].

The present remedy is, therefore, to prevent the submarine from using its periscope