ls thus endangered by warning them
beforehand_. For the rest, however, the Austrian Government is not
convinced, despite careful consideration of all legal questions
concerned, that the subjects of neutral countries have any claim to
immunity when travelling on board enemy ships.

The principle that neutrals shall also in time of war enjoy the
freedom of the seas extends only to neutral vessels, not to neutral
persons on board enemy ships, since the belligerents are admittedly
justified in hampering enemy traffic at sea as far as lies in their
power. Granted the necessary military power, they can, if deemed
necessary to their ends, forbid enemy merchant vessels to sail the
sea, on pain of instant destruction, as long as they make their
purpose known beforehand so that all, whether enemy or neutral, _are
enabled to avoid risking their lives_. But even where there is doubt
as to the justification of such proceeding, and possible reprisals
threatened by the opposing side, the question would remain one to be
decided between the belligerents themselves alone, they being
admittedly allowed the right of making the high seas a field for their
military operations, of suppressing any interruption of such
operations and supremely determining what measures are to be taken
against enemy ships. The neutrals have in such case no legitimate
claims beyond that of demanding that due notice be given them of
measures contemplated against the enemy, in order that they may
refrain from entrusting their persons or goods to enemy vessels.

The Austrian Government may presumably take it for granted that the
Washington Cabinet agrees with the foregoing views, which the Austrian
Government is fully convinced are altogether unassailable. To deny the
correctness of these views would imply--and this the Union Government
can hardly intend--that neutrals have the right of interfering in the
military operations of the belligerents; indeed, ultimately to
constitute themselves the judges as to what methods may or may not be
employed against an enemy. It would also seem a crying injustice for a
neutral Government, in order merely to secure for its subjects the
right of passage on enemy ships when they might just as well, or
indeed with far greater safety, travel by neutral vessels, to grasp at
the arm of a belligerent Power, fighting perhaps for its very
existence. Not to mention the fact that it would open the way for all
kinds of abuses if a belligere