Selected Speeches on British Foreign Policy 1738-1914 Part 14

It is only because I do not wish to weary the House that I do not read it all, but it is extremely well written. ['Read.']

Well, then, the dispatch goes on to say:

Such a practice is most injurious to the independence and integrity of the State to which it is applied, because a territory so occupied can scarcely be left by the occupying force in the same state in which it was when the occupation took place. But, moreover, such a practice may recoil upon those who adopt it, and, in the ever-varying course of events, it may be most inconveniently applied to those who, having set the example, had flattered themselves it never could be applied to them. (No. 4, 564.)

Well, the invasion of Schleswig is impending, and then an identic note is sent to Vienna and Berlin in these terms:

Her Majesty's Government having been informed that the Governments of

Austria and Prussia have addressed a threatening summons to Denmark, the undersigned has been instructed to ask for a formal declaration on the part of these Governments that they adhere to the principle of the integrity of the Danish monarchy. (No. 4, 565.)

And again, writing to Lord Bloomfield, the Secretary of State for Foreign Affairs speaks of the invasion as 'a breach of faith which may entail upon Europe widespread calamities'. But all these remonstrances were in vain. Notwithstanding these solemn warnings, notwithstanding this evidence that in the German Courts the just influence of England was lowered, the invasion of Schleswig takes place. And what is the conduct of the Government? They hurry again to Paris. They propose a joint declaration of the non-German Powers. Earl Russell writes to Lord Cowley in the middle of January. An answer was sent, I believe, the next day, the 14th, and this is Lord Cowley's statement in reference to the opinion of the French Government:

As to the four Powers impressing upon the Diet the heavy responsibility that it would incur if, by any precipitate measures, it were to break the peace of Europe before the Conference which had been proposed by the British Government for considering the means of settling the question between Germany and Denmark, and thereby maintaining that peace, can be a.s.sembled, M. Drouyn de Lhuys observed that he had not forgotten that when Russia had been warned by France, Great Britain, and Austria of the responsibility which she was incurring by her conduct towards Poland, Prince Gortsehakoff had replied, 'that Russia was ready to a.s.sume that responsibility before G.o.d and man.' He, for one, did not wish to provoke another answer of the same sort to be received with the same indifference. (No. 4, 536.)

The drama now becomes deeply interesting. The events are quick. That is the answer of the French Government; and on the next day Lord Russell writes to Lord Cowley to propose concert and co-operation with France to maintain the treaty--that is, to prevent the occupation of Schleswig. Lord Cowley writes the next day to Lord Russell that the French Government want to know what 'concert and co-operation' mean.

Lord Russell at last, on January 24, writes to say that concert and co-operation mean 'if necessary, material a.s.sistance to Denmark'. That must have been about the same time when the Cabinet was sitting to draw up Her Majesty's speech, a.s.suring Parliament that negotiations continued to be carried on in the interest of peace. Now, Sir, what was the answer of the French Government when, at last, England invited her to go to war to settle the question between Germany and Denmark? I will read the reply:

M. Drouyn de Lhuys, after recapitulating the substance of my dispatch of January 24 to your Excellency, explains very clearly the views of the French Government upon the subject. The Emperor recognizes the value of the London treaty as tending to preserve the balance of power and maintain the peace of Europe. But the Government of France, while paying a just tribute to the purport and objects of the treaty of 1852, is ready to admit that circ.u.mstances may require its modification. The Emperor has always been disposed to pay great regard to the feelings and aspirations of nationalities. It is not to be denied that the national feelings and aspirations of Germany tend to a closer connexion with the Germans of Holstein and Schleswig. The Emperor would feel repugnance to any course which should bind him to oppose in arms the wishes of Germany. It may be comparatively easy for England to carry on a war which can never go beyond the maritime operations of blockade and capture of ships. Schleswig and England are far apart from each other. But the soil of Germany touches the soil of France, and a war between France and Germany would be one of the most burdensome and one of the most hazardous which the French Empire could engage. Besides these considerations, the Emperor cannot fail to recollect that he has been made an object of mistrust and suspicion in Europe on account of his supposed projects of aggrandizement on the Rhine. A war commenced on the frontiers of Germany would not fail to give strength to these unfounded and unwarrantable imputations. For these reasons, the Government of the Emperor will not take at present any engagement on the subject of Denmark. If, hereafter, the balance of power should be seriously threatened, the Emperor may be inclined to take new measures in the interest of France and of Europe. But for the present the Emperor reserves to his Government entire liberty.

(No. 4, 620.)

Well, Sir, I should think that, after the reception of that dispatch, though it might have been very hard to convince the Foreign Secretary of the fact, any other person might easily have suspected that the just influence of England was lowered in another quarter of Europe.

Sir, I have now brought events to the period when Parliament met, trespa.s.sing, I fear, too much on the indulgence of the House; but honourable members will remember that, in order to give this narrative to-day, it was necessary for me to peruse 1,500 printed folio pages, and I trust I have done no more than advert to those pa.s.sages to which it was requisite to direct attention in order that the House might form a complete and candid opinion of the case. I will not dwell, or only for the slightest possible time, on what occurred upon the meeting of Parliament. Sir, when we met there were no papers; and I remember that when I asked for papers there was not, I will frankly say, on both sides of the House, a sufficient sense of the very great importance of the occasion, and of the singular circ.u.mstance that the papers were not presented to us. It turned out afterwards from what fell from the Secretary of State in another place, that it was never intended that the papers should be presented at the meeting of Parliament. The n.o.ble lord at the head of the Government treated the inquiry for papers in a jaunty way, and said, 'Oh! you shall have papers, and I wish you joy of them.' That was the tone of the First Minister in reference to the most important diplomatic correspondence ever laid before Parliament since the rupture of the Treaty of Amiens: but we are all now aware of the importance of these transactions. It was weeks--months almost--before we became masters of the case, but during the interval the most disastrous circ.u.mstances occurred, showing the increased peril and danger of Denmark, and the successes of the invaders of her territory. We all remember their entrance into Jutland. We all remember the inquiries which were made on the subject, and the a.s.surances which were given. But it was impossible for the House to p.r.o.nounce any opinion, because the papers were not before it, and the moment we had the papers, a Conference was announced.

One word with respect to the Conference. I never was of opinion that the Conference would arrive at any advantageous result. I could not persuade myself, after reading the papers, that, whatever might be the cause, any one seriously wished for a settlement, except, of course, Her Majesty's Ministers, and they had a reason for it. The Conference lasted six weeks. It wasted six weeks. It lasted as long as a carnival, and, like a carnival, it was an affair of masks and mystification. Our Ministers went to it as men in distressed circ.u.mstances go to a place of amus.e.m.e.nt--to while away the time, with a consciousness of impending failure. However, the summary of the Conference is this, that Her Majesty's Government made two considerable proposals. They proposed, first, the dismemberment of Denmark. So much for its integrity. They proposed, in the second place, that the remainder of Denmark should be placed under the joint guarantee of the Great Powers. They would have created another Turkey in Europe, in the same geographical relation, the scene of the same rival intrigues, and the same fertile source of constant misconceptions and wars. So much for the independence of Denmark.

These two propositions having been made, the one disastrous to the integrity and the other to the independence of Denmark, the Conference, even with these sacrifices offered, was a barren failure.

And I now wish to ask--after having, I hope, with some clearness and in a manner tolerably comprehensive, placed the case before honourable members--what is their opinion of the management of these affairs by Her Majesty's Government? I showed you that the beginning of this interference was a treaty by which England entered into obligations as regards Denmark not different from those of France. I have shown you, on the evidence of the Secretary of State, that the present position of France with respect to Denmark is one quite magnanimous, free from all difficulties and disgrace. I have shown you, I think, what every man indeed feels, that the position of England under this treaty, on the contrary, is most embarra.s.sing, surrounded with difficulties, and full of humiliation. I have stated my opinion that the difference between the position of England and that of France arose from the mis-management of our affairs. That appeared to me to be the natural inference and logical deduction. I have given you a narrative of the manner in which our affairs have been conducted, and now I ask you what is your opinion? Do you see in the management of those affairs that capacity, and especially that kind of capacity that is adequate to the occasion? Do you find in it that sagacity, prudence, that dexterity, that quickness of perception, and those conciliatory moods which we are always taught to believe necessary in the transaction of our foreign affairs? Is there to be seen that knowledge of human nature, and especially that peculiar kind of science, most necessary in these affairs--an acquaintance with the character of foreign countries and of the chief actors in the scene?

Sir, for my part I find all these qualities wanting; and in consequence of the want of these qualities, I see that three results have accrued. The first is that the avowed policy of Her Majesty's Government has failed. The second is, that our just influence in the councils of Europe has been lowered. Thirdly, in consequence of our just influence in the councils of Europe being lowered, the securities for peace are diminished. These are three results which have followed in consequence of the want of the qualities to which I have alluded, and in consequence of the management of these affairs by the Government. Sir, I need not, I think, trouble the House with demonstrating that the Government have failed in their avowed policy of upholding the independence and integrity of Denmark. The first result may be thrown aside. I come therefore to the second. By the just influence of England in the councils of Europe I mean an influence contra-distinguished from that which is obtained by intrigue and secret understanding; I mean an influence that results from the conviction of foreign Powers that our resources are great and that our policy is moderate and steadfast. Since the settlement that followed the great revolutionary war, England, who obtained at that time--as she deserved to do, for she bore the brunt of the struggle--who obtained at that time all the fair objects of her ambition, has on the whole followed a Conservative foreign policy. I do not mean by Conservative foreign policy a foreign policy that would disapprove--still less oppose--the natural development of nations. I mean a foreign policy interested in the tranquillity and prosperity of the world, the normal condition of which is peace, and which does not ally itself with the revolutionary party of Europe. Other countries have their political systems and public objects, as England had, though they may not have attained them. She is not to look upon them with unreasonable jealousy. The position of England in the councils of Europe is essentially that of a moderating and mediatorial Power.

Her interest and her policy are, when changes are inevitable and necessary, to a.s.sist so that these changes, if possible, may be accomplished without war, or, if war occurs, that its duration and asperity may be lessened. This is what I mean by the just influence of England in the councils of Europe. It appears to me that just influence of England in the councils of Europe has been lowered.

Within twelve months we have been twice repulsed at St. Petersburg.

Twice have we supplicated in vain at Paris. We have menaced Austria, and Austria has allowed our menaces to pa.s.s her like an idle wind. We have threatened Prussia, and Prussia has defied us. Our objurgations have rattled over the head of the German Diet, and the German Diet has treated them with contempt.

Again, Sir, during the last few months there is scarcely a form of diplomatic interference which has not been suggested or adopted by the English Government--except a Congress. Conferences at Vienna, at Paris, at London, all have been proposed; protocols, joint declarations, sole mediation, joint mediation, identic notes, sole notes, united notes--everything has been tried. Couriers from the Queen have been scouring Europe with the exuberant fertility of abortive projects. After the termination of the most important Conference, held in the capital of the Queen, over which the chief Minister of Her Majesty's foreign relations presided, and which was attended with all the pomp and ceremony requisite for so great an occasion, we find that its sittings have been perfectly barren; and the chief Ministers of the Cabinet closed the proceedings by quitting the scene of their exertions and appearing in the two Houses of Parliament to tell the country that they have no allies, and that, as they have no allies, they can do nothing. Pardon me, I must not omit to do justice to the exulting boast of the Secretary of State, who, in the midst of discomfiture, finds solace in the sympathy and politeness of the neutral Powers. I do not grudge Lord Russell the sighs of Russia or the smiles of France; but I regret that, with characteristic discretion, he should have quitted the battle of the Conference only to take his seat in the House of Lords to denounce the perfidy of Prussia, and to mourn over Austrian fickleness. There wanted but one touch to complete the picture, and it was supplied by the n.o.ble lord, the First Minister.

Sir, I listened with astonishment--I listened with astonishment as the n.o.ble lord condemned the vices of his victim, and inveighed at the last moment against the obstinacy of unhappy Denmark. Denmark would not submit to arbitration. But on what conditions did the German Powers accept it? And what security had Denmark? That if in the Conference she could not obtain an a.s.surance that the neutral Powers would support her by force on the line of the Schlei--what security, I say, had she that any other line would be maintained--an unknown line by an unknown arbiter? Sir, it does appear to me impossible to deny, under these circ.u.mstances, that the just influence of England in the councils of Europe is lowered. And now, I ask, what are the consequences of the just influence of England in the councils of Europe being lowered? The consequences are--to use a familiar phrase in the dispatches--'most serious', because in exact proportion as that influence is lowered the securities for peace are diminished. I lay this down as a great principle, which cannot be controverted, in the management of our foreign affairs. If England is resolved upon a particular policy, war is not probable. If there is, under these circ.u.mstances, a cordial alliance between England and France, war is most difficult; but if there is a thorough understanding between England, France, and Russia, war is impossible.

These were the happy conditions under which Her Majesty's Ministers entered office, and which they enjoyed when they began to move in the question of Denmark. Two years ago, and even less, there was a cordial understanding between England, France, and Russia upon this question or any question which might arise between Germany and Denmark. What cards to play! What advantages in the management of affairs! It seemed, indeed, that they might reasonably look forward to a future which would justify the confidence of Parliament; when they might point with pride to what they had accomplished, and appeal to public opinion to support them. But what has happened? They have alienated Russia, they have estranged France, and then they call Parliament together to declare war against Germany. Why, such a thing never happened before in the history of this country. Nay, more, I do not think it can ever happen again. It is one of those portentous results which occur now and then to humiliate and depress the pride of nations, and to lower our confidence in human intellect. Well, Sir, as the difficulties increase, as the obstacles are multiplied, as the consequences of the perpetual errors and constant mistakes are gradually becoming more apparent, you always find Her Majesty's Government nearer war. As in private life we know it is the weak who are always violent, so it is with Her Majesty's Ministers. As long as they are confident in their allies, as long as they possess the cordial sympathy of the Great Powers, they speak with moderation, they counsel with dignity; but, like all incompetent men, when they are in extreme difficulty, they can see but one resource, and that is force.

When affairs cannot be arranged in peace you see them turning first to St. Petersburg--that was a bold dispatch which was sent to St.

Petersburg in January last, to ask Russia to declare war against Germany--and twice to Paris, entreating that violence may be used to extricate them from the consequences of their own mistakes. It is only by giving Government credit, as I have been doing throughout, for the complete sincerity of their expressions and conduct, that their behaviour is explicable. a.s.sume that their policy was a war policy, and it is quite intelligible. Whenever difficulties arise, their resolution is instantly to have recourse to violence. Every word they utter, every dispatch they write, seems always to look to a scene of collision. What is the state of Europe at this moment? What is the state of Europe produced by this management of our affairs? I know not what other honourable gentlemen may think, but it appears to me most serious. I find the great German Powers openly avowing that it is not in their capacity to fulfil their engagements. I find Europe impotent to vindicate public law because all the great alliances are broken down; and I find a proud and generous nation like England shrinking with the reserve of magnanimity from the responsibility of commencing war, yet sensitively smarting under the impression that her honour is stained--stained by pledges which ought not to have been given, and expectations which I maintain ought never to have been held out by wise and competent statesmen.

Sir, this is anarchy. It therefore appears to me obvious that Her

Majesty's Government have failed in their avowed policy of maintaining the independence and integrity of Denmark. It appears to me undeniable that the just influence of England is lowered in the councils of Europe. It appears to me too painfully clear that to lower our influence is to diminish the securities of peace. And what defence have we? If ever a criticism is made on his ambiguous conduct the n.o.ble lord asks me, 'What is your policy?' My answer might be my policy is the honour of England and the peace of Europe, and the n.o.ble lord has betrayed both. I can understand a Minister coming to Parliament when there is a question of domestic interest of the highest character for consideration, such as the emanc.i.p.ation of the Catholics, the principles on which our commercial code is to be established, or our representative system founded. I can quite understand--although I should deem it a very weak step--a Minister saying, 'Such questions are open questions, and we leave it to Parliament to decide what is to be our policy.' Parliament is in possession of all the information on such subjects that is necessary or can be obtained. Parliament is as competent to come to a judgement upon the emanc.i.p.ation of any part of our subjects who are not in possession of the privileges to which they are ent.i.tled; the principles on which a commercial code is to be established or a representative system founded are as well known to them as to any body of men in the world; but it is quite a new doctrine to appeal to Parliament to initiate a foreign policy. To initiate a foreign policy is the prerogative of the Crown, exercised under the responsibility of const.i.tutional Ministers. It is devised, initiated, and carried out in secrecy, and justly and wisely so. What do we know as to what may be going on in Downing Street at this moment? We know not what dispatches may have been written, or what proposals may have been made to any foreign Power. For aught I know, the n.o.ble lord this morning may have made another proposition which might light up a general European war.

It is for Parliament to inquire, to criticize, to support, or condemn in questions of foreign policy; but it is not for Parliament to initiate a foreign policy in absolute ignorance of the state of affairs. That would be to ask a man to set his house on fire. I will go further. He is not a wise, I am sure he is not a patriotic, man who, at a crisis like the present, would accept office on conditions.

What conditions could be made when we are in ignorance of our real state? Any conditions we could offer in a vote of the House of Commons carried upon a particular point might be found extremely unwise when we were placed in possession of the real position of the country. No, Sir, we must not allow Her Majesty's Government to escape from their responsibility. That is at the bottom of all their demands when they ask, 'What is your policy?' The very first night we met--on February 4--we had the same question. Parliament was called together by a Ministry in distress to give them a policy. But Parliament maintained a dignified and discreet reserve: and you now find in what a position the Ministry are placed to-night.

Sir, it is not for any man in this House, on whatever side he sits, to indicate the policy of this country in our foreign relations--it is the duty of no one but the responsible Ministers of the Crown. The most we can do is to tell the n.o.ble lord what is not our policy. We will not threaten and then refuse to act. We will not lure on our allies with expectations we do not fulfil. And, Sir, if it ever be the lot of myself or any public men with whom I have the honour to act to carry on important negotiations on behalf of this country, as the n.o.ble lord and his colleagues have done, I trust that we at least shall not carry them on in such a manner that it will be our duty to come to Parliament to announce to the country that we have no allies, and then declare that England can never act alone. Sir, those are words which ought never to have escaped the lips of a British Minister. They are sentiments which ought never to have occurred even to his heart. I repudiate, I reject them. I remember there was a time when England, with not a t.i.the of her present resources, inspired by a patriotic cause, triumphantly encountered a world in arms. And, Sir, I believe now, if the occasion were fitting, if her independence or her honour were a.s.sailed, or her empire in danger, I believe that England would rise in the magnificence of her might, and struggle triumphantly for those objects for which men live and nations flourish. But I, for one, will never consent to go to war to extricate Ministers from the consequences of their own mistakes. It is in this spirit that I have drawn up this Address to the Crown. I have drawn it up in the spirit in which the Royal Speech was delivered at the commencement of the session. I am ready to vindicate the honour of the country whenever it is necessary, but I have drawn up this Address in the interest of peace. Sir, I beg leave to move the resolution of which I have given notice.

BENJAMIN DISRAELI EARL OF BEACONSFIELD JULY 18, 1878 BERLIN TREATY

My Lords, in laying on the Table of your Lordships' House, as I am about to do, the Protocols of the Congress of Berlin, I have thought I should only be doing my duty to your Lordships' House, to Parliament generally, and to the country, if I made some remarks on the policy which was supported by the Representatives of Her Majesty at the Congress, and which is embodied in the Treaty of Berlin and in the Convention which was placed on your Lordships' Table during my absence.

My Lords, you are aware that the Treaty of San Stefano was looked on with much distrust and alarm by Her Majesty's Government--that they believed it was calculated to bring about a state of affairs dangerous to European independence, and injurious to the interests of the British Empire. Our impeachment of that policy is before your Lordships and the country, and is contained in the Circular of my n.o.ble Friend the Secretary of State for Foreign Affairs in April last.

Our present contention is that we can show that, by the changes and modifications which have been made in the Treaty of San Stefano by the Congress of Berlin and by the Convention of Constantinople, the menace to European independence has been removed, and the threatened injury to the British Empire has been averted. Your Lordships will recollect that by the Treaty of San Stefano about one-half of Turkey in Europe was formed into a State called Bulgaria--a State consisting of upwards of 50,000 geographical square miles, and containing a population of 4,000,000, with harbours on either sea--both on the sh.o.r.es of the Euxine and of the Archipelago. That disposition of territory severed Constantinople and the limited district which was still spared to the possessors of that city--severed it from the Provinces of Macedonia and Thrace by Bulgaria descending to the very sh.o.r.es of the Aegean; and, altogether, a State was formed, which, both from its natural resources and its peculiarly favourable geographical position, must necessarily have exercised a predominant influence over the political and commercial interests of that part of the world. The remaining portion of Turkey in Europe was reduced also to a considerable degree by affording what was called compensation to previous rebellious tributary Princ.i.p.alities, which have now become independent States--so that the general result of the Treaty of San Stefano was, that while it spared the authority of the Sultan so far as his capital and its immediate vicinity, it reduced him to a state of subjection to the Great Power which had defeated his Armies, and which was present at the gates of his capital. Accordingly, though it might be said that he still seemed to be invested with one of the highest functions of public duty--the protection and custody of the Straits--it was apparent that his authority in that respect could be exercised by him only in deference to the superior Power which had vanquished him, and to whom the proposed arrangements would have kept him in subjection.

My Lords, in these matters the Congress of Berlin have made great changes. They have restored to the Sultan two-thirds of the territory which was to have formed the great Bulgarian State. They have restored to him upwards of 30,000 geographical square miles, and 2,500,000 of population--that territory being the richest in the Balkans, where most of the land is rich, and the population one of the wealthiest, most ingenious, and most loyal of his subjects. The frontiers of his State have been pushed forward from the mere environs of Salonica and Adrianople to the lines of the Balkans and Trajan's Pa.s.s; the new Princ.i.p.ality, which was to exercise such an influence, and produce a revolution in the disposition of the territory and policy of that part of the globe is now merely a State in the Valley of the Danube, and both in its extent and its population is reduced to one-third of what was contemplated by the Treaty of San Stefano. My Lords, it has been said that while the Congress of Berlin decided upon a policy so bold as that of declaring the range of the Balkans as the frontier of what may now be called New Turkey, they have, in fact, furnished it with a frontier which, instead of being impregnable, is in some parts undefended, and is altogether one of an inadequate character. My Lords, it is very difficult to decide, so far as nature is concerned, whether any combination of circ.u.mstances can ever be brought about which would furnish what is called an impregnable frontier. Whether it be river, desert, or mountainous range, it will be found, in the long run, that the impregnability of a frontier must be supplied by the vital spirit of man; and that it is by the courage, discipline, patriotism, and devotion of a population that impregnable frontiers can alone be formed. And, my Lords, when I remember what race of men it was that created and defended Plevna, I must confess my confidence that, if the cause be a good one, they will not easily find that the frontier of the Balkans is indefensible. But it is said that although the Congress has furnished--and it pretended to furnish nothing more--a competent military frontier to Turkey, the disposition was so ill managed, that, at the same time, it failed to secure an effective barrier--that in devising the frontier, it so arranged matters that this very line of the Balkans may be turned. The Congress has been charged with having committed one of the greatest blunders that could possibly have been accomplished by leaving Sofia in the possession of a Power really independent of Turkey; and one which, in the course of time, might become hostile to Turkey. My Lords, this is, in my opinion, an error on the part of those who furnish information of an authentic character to the different populations of Europe, who naturally desire to have correct information on such matters. It is said that the position of Sofia is of a commanding character, and that of its value the Congress were not aware, and that it was yielded to an imperious demand on the part of one of the Powers represented at the Congress. My Lords, I can a.s.sure your Lordships that there is not a shadow of truth in the statement. I shall show that when the Congress resolved to establish the line of the Balkans as the frontier of Turkey, they felt that there would have been no difficulty, as a matter of course, in Turkey retaining the possession of Sofia. What happened was this. The highest military authority of the Turks--so I think I may describe him--was one of the Plenipotentiaries at the Congress of the Porte--I allude to Mehemet Ali Pasha. Well, the moment the line of the Balkans was spoken of, he brought under the notice of his Colleagues at the Conference--and especially, I may say, of the Plenipotentiaries of England--his views on the subject; and, speaking as he did not only with military authority, but also with consummate acquaintance with all these localities, he said nothing could be more erroneous than the idea that Sofia was a strong strategical position, and that those who possessed it would immediately turn the Balkans and march on Constantinople. He said that as a strategical position it was worthless, but that there was a position in the Sandjak of Sofia which, if properly defended, might be regarded as impregnable, and that was the Pa.s.s of Ichtiman. He thought it of vital importance to the Sultan that that position should be secured to Turkey, as then His Majesty would have an efficient defence to his capital.

That position was secured. It is a pa.s.s which, if properly defended, will prevent any host, however powerful, from taking Constantinople by turning the Balkans. But, in consequence of that arrangement, it became the duty of the Plenipotentiaries to see what would be the best arrangement in regard of Sofia and its immediate districts.

The population of Sofia and its district are, I believe, without exception, Bulgarian, and it was thought wise, they being Bulgarians, that, if possible, it should be included in Bulgaria. That was accomplished by exchanging it for a district in which the population, if not exclusively, are numerically, Mohammedan, and which, so far as the fertility of the land is concerned, is an exchange highly to the advantage of the Porte. That, my Lords, is a short account of an arrangement which I know has for a month past given rise in Europe, and especially in this country, to a belief that it was in deference to Russia that Sofia was not retained, and that by its not having been retained Turkey had lost the means of defending herself, in the event of her being again plunged into war.

My Lords, it has also been said, with regard to the line of the Balkans, that it was not merely in respect of the possession of Sofia that an error was committed, but that the Congress made a great mistake in not retaining Varna. My Lords, I know that there are in this a.s.sembly many Members who have recollections--glorious recollections--of that locality. They will know at once that if the line of the Balkans were established as the frontier, it would be impossible to include Varna, which is to the North of the Balkans.

Varna itself is not a place of importance, and only became so in connexion with a system of fortifications which are now to be razed.

No doubt, in connexion with a line of strongholds, Varna formed a part of a system of defence; but of itself Varna is not a place of importance. Of itself it is only a roadstead, and those who dwell upon the importance of Varna and consider that it was a great error on the part of the Congress not to have secured it for Turkey, quite forget that between the Bosphorus and Varna, upon the coast of the Black Sea, the Congress has allotted to Turkey a much more important point on the Black Sea--the harbour of Burgos. My Lords, I think I have shown that the charges made against the Congress on these three grounds--the frontiers of the Balkans, the non-retention of Sofia, and the giving up of Varna--have no foundation whatever.

Well, my Lords, having established the Balkans as the frontier of Turkey in Europe, the Congress resolved that South of the Balkans, to a certain extent, the country should be formed into a Province to which should be given the name of Eastern Roumelia. At one time it was proposed by some to call it South Bulgaria; but it was manifest that with such a name between it and North Bulgaria there would be constant intriguing to bring about a union between the two Provinces. We, therefore, thought that the Province of East Roumelia should be formed, and that there should be established in it a Government somewhat different from that of contiguous provinces where the authority of the Sultan might be more unlimited. I am not myself of opinion that, as a general rule, it is wise to interfere with a military Power which you acknowledge: but, though it might have been erroneous, as a political principle, to limit the military authority of the Sultan, yet there are in this world other things besides political principles--there are such things as historical facts, and he would not be a prudent statesman who did not take into consideration historical facts as well as political principles. The province which we have formed into Eastern Roumelia had been the scene of many excesses, by parties on both sides, to which human nature looks with deep regret; and it was thought advisable, in making these arrangements for the peace of Europe, that we should take steps to prevent the probable recurrence of such events. Yet to do this, and not give the Sultan a direct military authority in the province, would have been, in our opinion, a grievous error. We have, therefore, decided that the Sultan should have the power to defend the barrier of the Balkans with all his available force. He has power to defend his frontiers by land and by sea, both by the pa.s.ses of the mountains and the ports and strongholds of the Black Sea. No limit has been placed on the amount of force he may bring to bear with that object. No one can dictate to him what the amount of that force shall be; but, in respect to the interior and the internal government of the province, we thought the time had arrived when we should endeavour to carry into effect some of those important proposals intended for the better administration of the States of the Sultan, which were discussed and projected at the Conference of Constantinople.

My Lords, I will not enter into any minute details on these questions.

They might weary you at this moment, and I have several other matters on which I must yet touch; but, generally speaking, I imagine there are three great points which we shall have before us in any attempt to improve the administration of Turkish Dominion. First of all, it is most important--and we have so established it in Eastern Roumelia--that the office of Governor shall be for a specific period, and that, as in India, it should not be for less than five years.

If that system generally obtained in the dominions of the Sultan, I believe it would be of incalculable benefit. Secondly, we thought it desirable that there should be inst.i.tuted public a.s.semblies, in which the popular element should be adequately represented, and that the business of those a.s.semblies should be to levy and administer the local finances of the province. And, thirdly, we thought it equally important that order should be maintained in this province, either by a _gendarmerie_ of adequate force or by a local militia, in both cases the officers holding their commissions from the Sultan. But the whole subject of the administration of Eastern Roumelia has been referred to an Imperial Commission at Constantinople, and this Commission, after making its investigations, will submit recommendations to the Sultan, who will issue Firmans to carry those recommendations into effect. I may mention here--as it may save time--that in all the arrangements which have been made to improve the condition of the subject-races of Turkey in Europe, inquiry by local commissions in all cases where investigation may be necessary is contemplated. Those commissions are to report their results to the Chief Commission; and, after the Firman of the Sultan has been issued, the changes will take place. It is supposed that in the course of three months from the time of the ratification of the Treaty of Berlin, the princ.i.p.al arrangements may be effected.

My Lords, I may now state what has been effected by the Congress in respect of Bosnia--that being a point on which I think considerable error prevails. One of the most difficult matters we had to encounter in attempting what was the object of the Congress of Berlin--namely, to re-establish the Sultan as a real and substantial authority--was the condition of some of his distant provinces, and especially of Bosnia. The state of Bosnia, and of those provinces and princ.i.p.alities contiguous to it, was one of chronic anarchy. There is no language which can describe adequately the condition of that large portion of the Balkan peninsula occupied by Roumania, Servia, Bosnia, Herzegovina, and other provinces. Political intrigues, constant rivalries, a total absence of all public spirit, and of the pursuit of objects which patriotic minds would wish to accomplish, the hatred of races, the animosities of rival religions, and, above all, the absence of any controlling power that could keep these large districts in anything like order--such were the sad truths, which no one who has investigated the subject could resist for a moment. Hitherto--at least until within the last two years--Turkey had some semblance of authority which, though it was rarely adequate, and when adequate, was unwisely exercised, still was an authority to which the injured could appeal, and which sometimes might control violence. But the Turkey of the present time was in no condition to exercise that authority. I inquired into the matter of those most competent to give an opinion, and the result of my investigation was a conviction that nothing short of an army of 50,000 men of the best troops of Turkey would produce anything like order in those parts, and that, were the attempt to be made, it would be contested and resisted, and might finally be defeated. But what was to be said at a time when all the statesmen of Europe were attempting to concentrate and condense the resources of the Porte with the view of strengthening them--what would have been the position of the Porte if it had to commence its new career--a career, it is to be hoped, of amelioration and tranquillity--by dispatching a large army to Bosnia to deal with those elements of difficulty and danger? It is quite clear, my Lords, that such an effort at this moment by Turkey might bring about its absolute ruin.

Then what was to be done? There have been before, in the history of diplomacy, not unfrequent instances in which, even in civilized parts of the globe, States having fallen into decrepitude, have afforded no a.s.sistance to keep order and tranquillity, and have become, as these districts have become, a source of danger to their neighbours. Under such circ.u.mstances, the Powers of Europe have generally looked to see whether there was any neighbouring Power of a character entirely different from those disturbed and desolated regions, but deeply interested in their welfare and prosperity, who would undertake the task of attempting to restore their tranquillity and prosperity. In the present case, you will see that the position of Austria is one that clearly indicates her as fitted to undertake such an office.

It is not the first time that Austria has occupied provinces at the request of Europe to ensure that order and tranquillity, which are European interests, might prevail in them. Not once, twice, or thrice has Austria undertaken such an office. There may be differences of opinion as to the policy on which Austria has acted, or as to the principles of government which she has maintained; but that has nothing to do with the fact that, under circ.u.mstances similar to those which I have described as existing in Bosnia and the provinces contiguous to it, Austria has been invited and has interfered in the manner I have described, and has brought about order and tranquillity.

Austria, in the present case, was deeply interested that some arrangement should be made. Austria, for now nearly three years, has had upwards of 150,000 refugees from Bosnia, which have been supported by her resources, and whose demands notoriously have been of a vexatious and exhausting character. It was, therefore, thought expedient by the Congress that Austria should be invited to occupy Bosnia, and not to leave it until she had deeply laid the foundations of tranquillity and order. My Lords, I am the last man who would wish, when objections are made to our proceedings, to veil them under the decision of the Congress; it was a decision which the Plenipotentiaries of England highly approved. It was a proposal which, as your Lordships will see when you refer to the Protocols which I shall lay on the table to-night, was made by my n.o.ble friend the Secretary of State, that Austria should accept this trust and fulfil this duty; and I earnestly supported him on that occasion. My Lords, in consequence of that arrangement, cries have been raised against our 'part.i.tion of Turkey'. My Lords, our object has been directly the reverse--our object has been to prevent part.i.tion. The question of part.i.tion is one upon which, it appears to me, very erroneous ideas are in circulation. Some two years ago--before, I think, the war had commenced, but when the disquietude and dangers of the situation were very generally felt--there was a school of statesmen who were highly in favour of what they believed to be the only remedy--what they called the part.i.tion of Turkey. Those who did not agree with them were those who thought we should, on the whole, attempt the restoration of Turkey. Her Majesty's Government at all times have resisted the part.i.tion of Turkey. They have done so, because, exclusive of the high moral considerations that are mixed up with the subject, they believed an attempt, on a great scale, to accomplish the part.i.tion of Turkey would inevitably lead to a long, a sanguinary, and often recurring struggle, and that Europe and Asia would both be involved in a series of troubles and sources of disaster and danger of which no adequate idea could be formed.

These professors of part.i.tion--quite secure, no doubt, in their own views--have freely spoken to us on this subject. We have been taken up to a high mountain and shown all the kingdoms of the earth, and they have said--'All these shall be yours if you will worship Part.i.tion.'

But we have declined to do so for the reasons I have shortly given.

And it is a remarkable circ.u.mstance that after the great war, and after the prolonged diplomatic negotiations, which lasted during nearly a period of three years, on this matter, the whole Powers of Europe, including Russia, have strictly, and as completely as ever, come to the unanimous conclusion that the best chance for the tranquillity and order of the world is to retain the Sultan as part of the acknowledged political system of Europe. My Lords, unquestionably after a great war--and I call the late war a great war, because the greatness of a war now must not be calculated by its duration, but by the amount of the forces brought into the field, and where a million of men have struggled for supremacy, as has been the case recently, I call that a great war--but, I say, after a great war like this, it is utterly impossible that you can have a settlement of any permanent character without a redistribution of territory and considerable changes. But that is not part.i.tion. My Lords, a country may have lost provinces, but that is not part.i.tion. We know that not very long ago a great country--one of the foremost countries of the world--lost provinces; yet, is not France one of the Great Powers of the world, and with a future--a commanding future? Austria herself has lost provinces--more provinces even than Turkey, perhaps; even England has lost provinces--the most precious possessions--the loss of which every Englishman must deplore to this moment. We lost them from bad government. Had the principles which now obtain between the metropolis and her dependencies prevailed then, we should not, perhaps, have lost those provinces, and the power of this Empire would have been proportionally increased. It is perfectly true that the Sultan of Turkey has lost provinces; it is true that his armies have been defeated; it is true that his enemy is even now at his gates; but all that has happened to other Powers. But a sovereign who has not yet forfeited his capital, whose capital has not been occupied by his enemy--and that capital one of the strongest in the world--who has armies and fleets at his disposal, and who still rules over 20,000,000 of inhabitants, cannot be described as a Power whose Dominions have been part.i.tioned. My Lords, it has been said that no limit has been fixed to the occupation of Bosnia by Austria. Well, I think that was a very wise step. The moment you limit an occupation you deprive it of half its virtue. All those opposed to the principles which occupation was devised to foster and strengthen feel that they have only to hold their breath and wait a certain time, and the opportunity for their interference would again present itself. Therefore, I cannot agree with the objection which is made to the arrangement with regard to the occupation of Bosnia by Austria on the question of its duration.

My Lords, there is a point on which I feel it now my duty to trouble your Lordships, and that is the question of Greece. A severe charge has been made against the Congress, and particularly against the English Plenipotentiaries, for not having sufficiently attended to the interests and claims of Greece. My Lords, I think you will find, on reflection, that that charge is utterly unfounded. The English Government were the first that expressed the desire that Greece should be heard at the Congress. But, while they expressed that desire, they communicated confidentially to Greece that it must on no account a.s.sociate that desire on the part of the Government with any engagement for the redistribution of territory. That was repeated, and not merely once repeated. The Greek inhabitants, apart from the kingdom of Greece, are a considerable element in the Turkish Empire, and it is of the greatest importance that their interests should be sedulously attended to. One of the many evils of that large Slav State--the Bulgaria of the San Stefano treaty--was, that it would have absorbed, and made utterly to disappear from the earth, a considerable Greek population. At the Congress the Greeks were heard, and they were heard by representatives of considerable eloquence and ability; but it was quite clear, the moment they put their case before the Congress, that they had totally misapprehended the reason why the Congress had met together, and what were its objects and character. The Greek representatives, evidently, had not in any way relinquished what they call their great idea--and your Lordships well know that it is one that has no limit which does not reach as far as Constantinople. But they did mention at the Congress, as a practical people, and feeling that they had no chance of obtaining at that moment all they desired--that they were willing to accept as an instalment the two large provinces of Epirus and Thessaly, and the island of Crete. It was quite evident to the Congress, that the representatives of Greece utterly misunderstood the objects of our labours--that we were not there to part.i.tion Turkey, and give them their share of Turkey, but for a very contrary purpose--as far as we could to re-establish the dominion of the Sultan on a rational basis, to condense and concentrate his authority, and to take the opportunity--of which we have largely availed ourselves--of improving the condition of his subjects. I trust, therefore, when I have pointed out to your Lordships this cardinal error in the views of Greece, that your Lordships will feel that the charge made against the Congress has no substantial foundation. But the interests of Greece were not neglected, and least of all by Her Majesty's Government. Before the Congress of Berlin, believing that there was an opportunity of which considerable advantage might be made for Greece without deviating into part.i.tion, we applied to the Porte to consider the long-vexed question of the boundaries of the two States. The boundaries of Greece have always been inadequate and inconvenient; they are so formed as to offer a premium to brigandage--which is the curse of both countries, and has led to misunderstanding and violent intercourse between the inhabitants of both. Now, when some redistribution--and a considerable redistribution--of territories was about to take place--now, we thought, was the opportunity for Greece to urge her claim; and that claim we were ready to support, and to reconcile the Porte to viewing it in a large and liberal manner. And I am bound to say that the manner in which our overtures were received by the Porte was encouraging, and more than encouraging. For a long period Her Majesty's Government have urged upon both countries, and especially upon Greece, the advantage of a good understanding between them. We urged that it was only by union between Turks and Greeks that any reaction could be obtained against that overpowering Slav interest which was then exercising such power in the Peninsula, and which had led to this fatal and disastrous war. More than this, on more than one occasion--I may say, on many occasions--we have been the means of preventing serious misunderstandings between Turkey and Greece, and on every occasion we have received from both States an acknowledgement of our good offices. We were, therefore, in a position to a.s.sist Greece in this matter. But, of course, to give satisfaction to a State which coveted Constantinople for its capital, and which talked of accepting large provinces and a powerful island as only an instalment of its claims for the moment, was difficult. It was difficult to get the views of that Government accepted by Turkey, however inclined it might be to consider a reconstruction of frontiers on a large and liberal scale. My n.o.ble friend the Secretary of State did use all his influence, and the result was that, in my opinion, Greece has obtained a considerable accession of resources and strength. But we did not find, on the part of the representatives of Greece, that response or that sympathy which we should have desired. Their minds were in another quarter. But though the Congress could not meet such extravagant and inconsistent views as those urged by Greece--views which were not in any way within the scope of the Congress or the area of its duty--we have still, as will be found in the Treaty, or certainly in the Protocol, indicated what we believe to be a rectification of frontier, which would add considerably to the strength and resources of Greece. Therefore, I think, under all the circ.u.mstances, it will be acknowledged that Greece has not been neglected. Greece is a country so interesting that it enlists the sympathies of all educated men. Greece has a future, and I would say, if I might be permitted, to Greece, what I would say to an individual who has a future--'Learn to be patient.'

Now, my Lords, I have touched upon most of the points connected with Turkey in Europe. My summary is that at this moment--of course, no longer counting Servia or Roumania, once tributary princ.i.p.alities, as part of Turkey; not counting even the new Bulgaria, though it is a tributary princ.i.p.ality, as part of Turkey; and that I may not be taunted with taking an element which I am hardly ent.i.tled to place in the calculation, omitting even Bosnia--European Turkey still remains a Dominion of 60,000 geographical square miles, with a population of 6,000,000, and that population in a very great degree concentrated and condensed in the provinces contiguous to the capital. My Lords, it was said, when the line of the Balkans was carried--and it was not carried until after long and agitating discussions--it was said by that ill.u.s.trious statesman who presided over our labours, that 'Turkey in Europe once more exists'. My Lords, I do not think that, so far as European Turkey is concerned, this country has any right to complain of the decisions of the Congress, or, I would hope, of the labours of the Plenipotentiaries. You cannot look at the map of Turkey as it had been left by the Treaty of San Stefano, and as it has been rearranged by the Treaty of Berlin, without seeing that great results have accrued. If these results had been the consequences of a long war--if they had been the results of a struggle like that we underwent in the Crimea--I do not think they would have been even then unsubstantial or unsatisfactory. My Lords, I hope that you and the country will not forget that these results have been obtained without shedding the blood of a single Englishman; and if there has been some expenditure, it has been an expenditure which, at least, has shown the resources and determination of this country. Had you entered into that war--for which you were prepared--and well prepared--probably in a month you would have exceeded the whole expenditure you have now incurred.

My Lords, I now ask you for a short time to quit Europe and to visit Asia, and consider the labours of the Congress in another quarter of the world. My Lords, you well know that the Russian arms met with great success in Asia, and that in the Treaty of San Stefano considerable territories were yielded by Turkey to Russia. In point of population, they may not appear to be of that importance that they are generally considered; because it is a fact which should be borne in mind that the population which was yielded to Russia by Turkey amounted only to about 250,000 souls; and, therefore, if you look to the question of population, and to the increase of strength to a State which depends on population, you would hardly believe that the acquisition of 250,000 new subjects is a sufficient return for the terrible military losses which inevitably must accrue from campaigns in that country. But although the amount of population was not considerable, the strength which the Russians acquired was of very different character. They obtained Kars by conquest--they obtained Ardahan--another stronghold--they obtained Bayazid--and the Valley of Alashkerd with the adjoining territory, which contain the great commercial routes in that part of the world. They also obtained the port of Batoum. Now, my Lords, the Congress of Berlin have so far sanctioned the Treaty of San Stefano that, with the exception of Bayazid and the valley which I have mentioned--no doubt very important exceptions, and which were yielded by Russia to the views of the Congress--they have consented to the yielding of the places I have named to Russia. The Congress have so far approved the Treaty of San Stefano that they have sanctioned the retention by Russia of Kars and Batoum. Now the question arises--the Congress having come to that determination--was it a wise step on the part of the Plenipotentiaries of Her Majesty to agree to that decision? That is a question which may legitimately be asked. We might have broken up the Congress, and said, 'We will not consent to the retention of these places by Russia, and we will use our force to oblige her to yield them up.' Now, my Lords, I wish fairly to consider what was our position in this state of affairs. It is often argued as if Russia and England had been at war, and peace was negotiating between the two Powers. That was not the case. The rest of Europe were critics over a Treaty which was a real treaty that existed between Russia and Turkey. Turkey had given up Batoum, she had given up Kars and Ardahan, she had given up Bayazid.

In an examination of the question, then, we must remember that Russia at this moment, so far as Europe is concerned, has acquired in Europe nothing but a very small portion of territory, occupied by 130,000 inhabitants. Well, she naturally expected to find some reward in her conquests in Armenia for the sacrifices which she had made. Well, my Lords, consider what those conquests are. There was the strong fort of Kars. We might have gone to war with Russia in order to prevent her acquiring Kars and Batoum, and other places of less importance. The war would not have been, probably, a very short war. It would have been a very expensive war--and, like most wars, it would probably have ended in some compromise, and we should have got only half what we had struggled for. Let us look these two considerable points fairly in the face. Let us first of all take the great stronghold of Kars. Three times has Russia captured Kars. Three times, either by our influence or by other influences, it has been restored to Turkey. Were we to go to war for Kars and restore it to Turkey, and then to wait till the next misunderstanding between Russia and Turkey, when Kars should have been taken again? Was that an occasion of a _casus belli_? I do not think your Lordships would ever sanction a war carried on for such an object and under such circ.u.mstances.

Then, my Lords, look at the case of Batoum, of which your Lordships have heard so much. I should have been very glad if Batoum had remained in the possession of the Turks, on the general principle that the less we had reduced its territory in that particular portion of the globe, the better it would be as regards the prestige on which the influence of the Ottoman Porte much depends there. But let us see what is this Batoum of which you have heard so much? It is generally spoken of in society and in the world as if it were a sort of Portsmouth--whereas, in reality, it should rather be compared with Cowes. It will hold three considerable ships, and if it were packed like the London Docks, it might hold six; but in that case the danger, if the wind blew from the north, would be immense. You cannot increase the port seaward; for though the water touching the sh.o.r.e is not absolutely fathomless, it is extremely deep, and you cannot make any artificial harbour or breakwater. Unquestionably, in the interior the port might be increased, but it can only be increased by first-rate engineers, and by the expenditure of millions of capital; and if we were to calculate the completion of the port by the precedents which exist in many countries, and certainly in the Black Sea, it would not be completed under half a century. Now is that a question for which England would be justified in going to war with Russia? My Lords, we have, therefore, thought it advisable not to grudge Russia those conquests that have been made--especially after obtaining the restoration of the town of Bayazid and its important district.

But it seemed to us the time had come when we ought to consider whether certain efforts should not be made to put an end to these perpetually recurring wars between the Porte and Russia, ending, it may be, sometimes apparently in comparatively insignificant results; but always terminating with one fatal consequence--namely, shaking to the centre the influence and the prestige of the Porte in Asia and diminishing its means of profitably and advantageously governing that country. My Lords, it seemed to us that as we had now taken, and as Europe generally had taken, so avowedly deep an interest in the welfare of the subjects of the Porte in Europe, the time had come when we ought to consider whether we could not do something which would improve the general condition of the dominions of the Sultan in Asia; and, instead of these most favoured portions of the globe every year being in a more forlorn and disadvantageous position, whether it would not be possible to take some steps which would secure at least tranquillity and order; and, when tranquillity and order were secured, whether some opportunity might not be given to Europe to develop the resources of a country which Nature has made so rich and teeming. My Lords, we occupy with respect to this part of the world a peculiar position, which is shared by no other Power. Our Indian Empire is on every occasion on which these discussions occur, or these troubles occur, or these settlements occur--our Indian Empire is to England a source of grave anxiety, and the time appeared to have arrived when, if possible, we should terminate that anxiety. In all the questions connected with European Turkey we had the a.s.sistance and sympathy sometimes of all, and often of many, of the European Powers--because they were interested in the question who should possess Constantinople, and who should have the command of the Danube and the freedom of the Mediterranean. But when we came to considerations connected with our Oriental Empire itself, they naturally are not so generally interested as they are in those which relate to the European portion of the Dominions of the Porte, and we have to look to our own resources alone. There has been no want, on our part, of invitations to neutral Powers to join with us in preventing or in arresting war.

Besides the great Treaty of Paris, there was the Tripart.i.te Treaty, which, if acted upon, would have prevented war. But that treaty could not be acted upon, from the unwillingness of the parties to it to act; and therefore we must clearly perceive that if anything could be effectually arranged, as far as our Or