The Gathering Storm Part 6

Admiral Sir Roger Keyes

Earl Winterton

Sir Henry Croft

Sir Edward Grigg

Viscount Wolmer

Lieut.-Col. Moore-Brabazon

Sir Hugh O'Neill

This was a great occasion. I cannot recall anything like it in what I have seen of British public life. The group of eminent men, with no thought of personal advantage, but whose lives had been centred upon public affairs, represented a weight of Conservative opinion which could not easily be disregarded. If the leaders of the Labour and Liberal Oppositions had come with us, there might have been a political situation so tense as to enforce remedial action. The proceedings occupied three or four hours on each of two successive days. I have always said Mr. Baldwin was a good listener. He certainly seemed to listen with the greatest interest and attention. With him were various members of the staff of the Committee of Imperial Defence. On the first day I opened the case in a statement of an hour and a quarter, of which some extracts, given in Appendix D, Book I, throw a fairly true light on the scene.

I ended as follows: First, we are facing the greatest danger and emergency of our history. Secondly, we have no hope of solving our problem except in conjunction with the French Republic. The union of the British Fleet and the French Army, together with their combined air forces operating from close behind the French and Belgian frontiers, together with all that Britain and France stand for, const.i.tutes a deterrent in which salvation may reside. Anyhow, it is the best hope. Coming down to detail, we must lay aside every impediment in raising our own strength. We cannot possibly provide against all possible dangers. We must concentrate upon what is vital and take our punishment elsewhere.... Coming to still more definite propositions, we must increase the development of our air power in priority over every other consideration. At all costs we must draw the flower of our youth into piloting airplanes. Never mind what inducements must be offered, we must draw from every source, by every means. We must accelerate and simplify our aeroplane production and push it to the largest scale, and not hesitate to make contracts with the United States and elsewhere for the largest possible quant.i.ties of aviation material and equipment of all kinds. We are in danger, as we have never been in danger before no, not even at the height of the submarine campaign [1917]....This thought preys upon me: The months slip by rapidly. If we delay too long in repairing our defences, we may be forbidden by superior power to complete the process. The months slip by rapidly. If we delay too long in repairing our defences, we may be forbidden by superior power to complete the process.

We were much disappointed that the Chancellor of the Exchequer could not be present. It was evident that Mr. Baldwin's health was failing, and it was well known that he would soon seek rest from his burdens. There could be no doubt who would be his successor. Unhappily, Mr. Neville Chamberlain was absent upon a well-deserved holiday, and did not have the opportunity of this direct confrontation with the facts from members of the Conservative Party who included his brother and so many of his most valued personal friends.

Most earnest consideration was given by Ministers to our formidable representations, but it was not till after the recess, on November 23, 1936, that we were all invited by Mr. Baldwin to receive a more fully considered statement on the whole position. Sir Thomas Inskip then gave a frank and able account, in which he did not conceal from us the gravity of the plight into which we had come. In substance this was to the effect that our estimates and, in particular, my statements took a too gloomy view of our prospects; that great efforts were being made (as indeed they were) to recover the lost ground; but that no case existed which would justify the Government in adopting emergency measures; that these would necessarily be of a character to upset the whole industrial life of this country, would cause widespread alarm, and advertise any deficiencies that existed, and that within these limits everything possible was being done. On this Sir Austen Chamberlain recorded our general impression that our anxieties were not relieved and that we were by no means satisfied. Thus we took our leave.

I cannot contend that at this date, the end of 1936, the position could have been retrieved. Much more, however, could and ought to have been done by an intense conclusive effort. And of course the fact and proof of this effort must have had its immeasurable effect on Germany, if not on Hitler. But the paramount fact remained that the Germans had the lead of us in the air, and also over the whole field of munitions production, even making allowance for our smaller military needs, and for the fact that we had a right also to count upon France and the French Army and air force. It was no longer in our power to forestall Hitler or to regain air parity. Nothing could now prevent the German Army and the German air force from becoming the strongest in Europe. By extraordinary and disturbing exertions we could improve our position. We could not cure it.

These sombre conclusions, which were not seriously disputed by the Government, no doubt influenced their foreign policy; and full account must be taken of them when we try to form a judgment upon the decisions which Mr. Chamberlain, when he became Prime Minister, took before and during the Munich crisis. I was at this time only a private Member of Parliament, and I bore no official responsibility. I strove my utmost to galvanise the Government into vehement and extraordinary preparation, even at the cost of world alarm. In these endeavours no doubt I painted the picture even darker than it was. The emphasis which I had put upon the two years' lag which afflicted us may well be judged inconsistent with my desire to come to grips with Hitler in October, 1938. I remain convinced, however, that it was right to spur the Government by every means, and that it would have been better in all the circ.u.mstances, which will presently be described, to fight Hitler in 1938 than it was when we finally had to do so in September, 1939. Of this more later.

Presently Mr. Baldwin, as we have seen, gave place to Mr. Neville Chamberlain; and we must now move on to 1938. Lord Swinton was a very keen and efficient Air Minister, and for a long time had great influence in the Cabinet in procuring the necessary facilities and funds. The anxiety about our air defences continued to grow, and reached its climax in May. The many great and valuable expansions and improvements which Lord Swinton had made could not become apparent quickly, and in any case the whole policy of the Government lacked both magnitude and urgency. I continued to press for an inquiry into the state of our air programme and found increasing support. Swinton had made the mistake of accepting a peerage. He was not, therefore, able to defend himself and his department in the House of Commons. The spokesman who was chosen from the Government Front Bench was utterly unable to stem the rising tide of alarm and dissatisfaction. After one most unfortunate debate, it became obvious that the Air Minister should be in the House of Commons.

One morning (May 12) at the Air Defence Research Committee we were all busily engaged scientists, politicians, and officials on technical problems, when a note was brought in to the Air Minister asking him to go to Downing Street. He desired us to continue our discussions, and left at once. He never returned. He had been dismissed by Mr. Chamberlain.

In the agitated debate which followed on the twenty-fifth, I tried to distinguish between the exertions and capacity of the fallen Minister and the general complaint against the Government: The credit of Government statements has been compromised by what has occurred. The House has been consistently misled about the air position. The Prime Minister himself has been misled. He was misled right up to the last moment, apparently. Look at the statement which he made in March, when he spoke about our armaments: "The sight of this enormous, this almost terrifying, power which Britain is building up has a sobering effect, a steadying effect, on the opinion of the world."I have often warned the House that the air programmes were falling into arrear. But I have never attacked Lord Swinton. I have never thought that he was the one to blame certainly not the only one to blame. It is usual for the critics of a Government to discover hitherto unnoticed virtues in any Minister who is forced to resign. But perhaps I may quote what I said three months ago: "It would be unfair to throw the blame on any one Minister, or upon Lord Swinton, for our deficiency. He certainly represents an extremely able and wholehearted effort to do the best he possibly could to expand our air power, and the results which he achieved would be bright, if they were not darkened by the time-table, and if they were not outshone by other relative facts occurring elsewhere."* * * * *The hard responsibility for the failure to fulfil the promises made to us rests upon those who have governed and guided this island for the last five years, that is to say, from the date when German rearmament in real earnest became apparent and known. I certainly did not attempt to join in a man-hunt of Lord Swinton. I was very glad today to hear the Prime Minister's tribute to him. Certainly he deserves our sympathy. He had the confidence and friendship of the Prime Minister, he had the support of an enormous parliamentary majority; yet he has been taken from his post at what, I think, is the worst moment in the story of air expansion. It may be that in a few months there will be a considerable flow of aircraft arriving; yet he has had to answer for his record at this particularly dark moment for him. I was reading the other day a letter of the great Duke of Marlborough, in which he said: "To remove a General in the midst of a campaign that is the mortal stroke."

I turned to other aspects of our defences: We are now in the third year of openly avowed rearmament. Why is it, if all is going well, there are so many deficiencies? Why, for instance, are the Guards drilling with flags instead of machine-guns? Why is it that our small Territorial Army is in a rudimentary condition? Is that all according to schedule? Why, when you consider how small are our forces, should it be impossible to equip the Territorial Army simultaneously with the Regular Army? It would have been a paltry task for British industry, which is more flexible and more fertile than German industry in every sphere except munitions.* * * * *The other day the Secretary of State for War was asked about the anti-aircraft artillery. The old three-inch guns of the Great War, he said, had been modernised, and deliveries of the newer guns and there is more than one type of newer gun were proceeding "in advance of schedule." But what is the schedule? If your schedule prescribes a delivery of half a dozen, ten, a dozen, twenty, or whatever it may be, guns per month, no doubt that may easily be up to schedule, and easily be in advance of it. But what is the adequacy of such a schedule to our needs? A year ago I reminded the House of the published progress of Germany in anti-aircraft artillery thirty regiments of twelve batteries each of mobile artillery alone, aggregating something between twelve and thirteen hundred guns, in addition to three or four thousand guns in fixed positions. These are all modern guns, not guns of 1915, but all guns made since the year 1933.Does not that give the House an idea of the tremendous scale of these transactions? We do not need to have a gigantic army like Continental countries; but in the matter of anti-aircraft defence we are on equal terms. We are just as vulnerable, and perhaps more vulnerable. Here is the government thinking of anti-aircraft artillery in terms of hundreds where the Germans have it today in terms of thousands.* * * * *We are thinking at the present time in terms of production for three separate armed forces. In fact and in truth, the supply of arms for all fighting forces resolves itself into a common problem of the provision and distribution of skilled labour, raw materials, plant, machinery, and technical appliances. That problem can only be dealt with comprehensively, harmoniously, and economically through one central dominating control. At the present time there is inefficiency and overlapping, and there is certainly waste. Why is it that this skilful aircraft industry of Britain requires ninety thousand men, and that it produces only one-half to one-third of what is being produced by about one hundred and ten thousand men in Germany? Is that not an extraordinary fact? It is incredible that we have not been able to produce a greater supply of aeroplanes at this time. Given a plain office table, an empty field, money and labour, we should receive a flow of aeroplanes by eighteen months; yet this is the thirty-fourth month since Lord Baldwin decided that the air force must be tripled.

The new Secretary of State for Air, Sir Kingsley Wood, invited me to remain on the Air Defence Research Committee. The skies had now grown much darker, and I felt keenly the need of Lindemann's interpretation of the technical aspects and of his advice and aid. I, therefore, wrote to him, saying that, unless he was a.s.sociated with me, I would not continue. After some tussling behind the scenes, Lindemann was placed on the main Committee, and we resumed our joint work.

Always, up till the Armistice of June, 1940, whether in peace or war, in a private station or as head of the Government, I enjoyed confidential relations with the often-changing Premiers of the French Republic and with many of its leading Ministers. I was most anxious to find out the truth about German rearmament and to cross-check my own calculations by theirs. I therefore wrote to M. Daladier, with whom I was personally acquainted:

Mr. Churchill to M. Daladier.

May 3, 1938. 3, 1938.

Your predecessors, M.M. Blum and Flandin, were both kind enough to give me the French estimates of the German air strength at particular periods in recent years. I should be much obliged if you could let me know what your view is now. I have several sources of information which have proved accurate in the past, but am anxious to have a cross-check from an independent source.I am so glad that your visit here was so successful, and I hope now that all those staff arrangements will be made, the need for which I have pressed upon our Ministers.

In response M. Daladier sent me a doc.u.ment of seventeen pages dated May 11, 1938, which "had been deeply thought out by the French Air Staff." I showed this important paper to my friends in the British departments concerned, who examined it searchingly and reported that "it agreed in every essential with the independent opinions formed by the British Air Staff on the basis of their own information." The French estimate of the size of the German air force was slightly higher than that of the British. Early in June I was in a position to write to M. Daladier with a considerable amount of authoritative opinion behind me.

Mr. Churchill to M. Daladier.

June 6, 1938. 6, 1938.

I am very much obliged to you for the invaluable information which I have received through the French Military Attache. You may be sure I shall use it only with the greatest discretion, and in our common interests.The general estimate of the German air force at the present time agrees with the private views I have been able to form. I am inclined to think, however, that the German aircraft industry is turning out aircraft at a somewhat higher rate than is allowed, and that the figure given is that for the actual deliveries of aircraft of military types to the German air force, excluding deliveries for export, and to General Franco. It is probable that the German air force will consist of three hundred squadrons by April 1, 1939, and four hundred squadrons by April 1, 1940.

I was also most anxious to cross-check my own estimates of the German Army with those which I had been able to form from English sources. Accordingly I added the following:

I venture to enclose a very short note of the information I have been able to gather from various sources about the present and prospective strength of the German Army. It would be a convenience to me to know whether this agrees broadly with your estimates. It would be quite sufficient if the figures, as you understand them, could be pencilled in in any case where you think I am in error.

NOTEThe German Army at this date, June 1, consists of thirty-six regular divisions, and four armoured divisions, the whole at full war-strength. The non-armoured divisions are rapidly acquiring the power to triple themselves, and can at the present time be doubled. The artillery beyond seventy divisions is markedly incomplete. The officer corps is thin over the whole force. Nevertheless, by October 1, 1938, we cannot expect less than fifty-six plus four armoured, equals sixty fully equipped and armed divisional formations. Behind these will stand a reservoir of trained men equal in man-power to about another thirty-six divisions, for which skeleton formations have been devised and for which armaments, small arms and a very low complement of artillery, would be available if a lower standard were accepted for part of the active army. This takes no account of the man-power of Austria, which at the extreme computation could provide twelve divisions without arms but ready to draw on the general pool of German munitions industry. In addition there are a number of men and formations of an unbrigaded nature frontier defence force, Landwehr divisions, and so on, who are relatively unarmed.

On June 18, 1938, M. Daladier wrote: I am particularly pleased to learn that the information enclosed in my letter of May 16 corresponds to yours.I am entirely in accord with you in the facts relating to the German Army contained in the note annexed to your letter of June 6. It should be pointed out, however, that of the thirty-six ordinary divisions of which Germany actually disposes, four are entirely motorised and two are in the course of becoming so soon.

In fact, according to our post-war information from German sources, this epitome of the German Army in the summer of 1938 was remarkably accurate, considering that it was produced by a private person. It shows that in my long series of campaigns for British rearmament I was by no means ill-informed.

References have been made at various points in this tale to the French air power. At one time it was double our own and Germany was not supposed to have an air force at all. Until 1933, France had held a high place among the air fleets of Europe. But in the very year in which Hitler came into power, a fateful lack of interest and support began to be displayed. Money was grudged; the productive capacity of the factories was allowed to dwindle; modern types were not developed. The French forty-hour week could not rival the output of a Germany working harsh hours under wartime conditions. All this happened about the same time as the loss of air parity in Britain which has been so fully described. In fact the Western Allies, who had the right to create whatever air forces they thought necessary for their safety, neglected this vital weapon, while the Germans, who were prohibited by treaty from touching it, made it the spear-point of their diplomacy and eventual attack.

The French "Popular Front" Government of 1936 and later took many substantial measures to prepare the French Army and Navy for war. No corresponding exertion was made in the air. There is an ugly graph 1 1 which shows in a decisive fashion the downward streak of French air power and its intersection in 1935 by the line of ever-rising German achievement. It was not until the summer of 1938, when M. Guy La Chambre became Air Minister, that vigorous steps were taken to revive the French air force. But then only eighteen months remained. Nothing that the French could do could prevent the German Army growing and ripening as each year pa.s.sed and thus overtaking their own army. But it is astonishing that their air power should have been allowed to fall by the wayside. It is not for me to apportion responsibility and blame to the Ministers of friendly and Allied foreign countries. But when in France they are looking out for "guilty men," it would seem that here is a field which might well be searchingly explored. which shows in a decisive fashion the downward streak of French air power and its intersection in 1935 by the line of ever-rising German achievement. It was not until the summer of 1938, when M. Guy La Chambre became Air Minister, that vigorous steps were taken to revive the French air force. But then only eighteen months remained. Nothing that the French could do could prevent the German Army growing and ripening as each year pa.s.sed and thus overtaking their own army. But it is astonishing that their air power should have been allowed to fall by the wayside. It is not for me to apportion responsibility and blame to the Ministers of friendly and Allied foreign countries. But when in France they are looking out for "guilty men," it would seem that here is a field which might well be searchingly explored.

The spirit of the British nation and of the Parliament they had newly elected gradually rose as consciousness of the German, and soon of the German-Italian, menace slowly and fitfully dawned upon them. They became willing, and even eager, for all kinds of steps which, taken two or three years earlier, would have prevented their troubles. But as their mood improved, the power of their opponents and also the difficulty of their task increased. Many say that nothing except war could have stopped Hitler after we had submitted to the seizure of the Rhineland. This may indeed be the verdict of future generations. Much, however, could have been done to make us better prepared and thus lessen our hazards. And who shall say what could not have happened?

14.

Mr. Eden at the Foreign Office.

His Resignation

Foreign Secretary and Prime Minister - Eden and Chamberlain - - Sir Robert Vansittart - My Contacts with the Foreign Secretary About Spain - The Nyon Conference - Our Correspondence - A British Success - Divergence Between Prime Minister and Foreign Secretary - Lord Halifax Visits Germany and Hitler - I Decline an Invitation - Eden Feels Isolated - President Roosevelt's Overture - The Prime Minister's Reply - The President Rebuffed and Discouraged - Mr. Chamberlain's Grave Responsibility - Final Breach Between Eden and Chamberlain About Conversations in Rome - A Sleepless Night at Chartwell. Sir Robert Vansittart - My Contacts with the Foreign Secretary About Spain - The Nyon Conference - Our Correspondence - A British Success - Divergence Between Prime Minister and Foreign Secretary - Lord Halifax Visits Germany and Hitler - I Decline an Invitation - Eden Feels Isolated - President Roosevelt's Overture - The Prime Minister's Reply - The President Rebuffed and Discouraged - Mr. Chamberlain's Grave Responsibility - Final Breach Between Eden and Chamberlain About Conversations in Rome - A Sleepless Night at Chartwell.

THE F FOREIGN S SECRETARY has a special position in a British Cabinet. He is treated with marked respect in his high and responsible office, but he usually conducts his affairs under the continuous scrutiny, if not of the whole Cabinet, at least of its princ.i.p.al members. He is under an obligation to keep them informed. He circulates to his colleagues, as a matter of custom and routine, all his executive telegrams, the reports from our emba.s.sies abroad, the records of his interviews with foreign Amba.s.sadors or other notables. At least this has been the case during my experience of Cabinet life. This supervision is, of course, especially maintained by the Prime Minister, who personally or through his Cabinet is responsible for controlling, and has the power to control, the main course of foreign policy. From him at least there must be no secrets. No Foreign Secretary can do his work unless he is supported constantly by his chief. To make things go smoothly, there must not only be agreement between them on fundamentals, but also a harmony of outlook and even to some extent of temperament. This is all the more important if the Prime Minister himself devotes special attention to foreign affairs. has a special position in a British Cabinet. He is treated with marked respect in his high and responsible office, but he usually conducts his affairs under the continuous scrutiny, if not of the whole Cabinet, at least of its princ.i.p.al members. He is under an obligation to keep them informed. He circulates to his colleagues, as a matter of custom and routine, all his executive telegrams, the reports from our emba.s.sies abroad, the records of his interviews with foreign Amba.s.sadors or other notables. At least this has been the case during my experience of Cabinet life. This supervision is, of course, especially maintained by the Prime Minister, who personally or through his Cabinet is responsible for controlling, and has the power to control, the main course of foreign policy. From him at least there must be no secrets. No Foreign Secretary can do his work unless he is supported constantly by his chief. To make things go smoothly, there must not only be agreement between them on fundamentals, but also a harmony of outlook and even to some extent of temperament. This is all the more important if the Prime Minister himself devotes special attention to foreign affairs.

Eden was the Foreign Secretary of Mr. Baldwin, who, apart from his main well-known desire for peace and a quiet life, took no active share in foreign policy. Mr. Chamberlain, on the other hand, sought to exercise a masterful control in many departments. He had strong views about foreign affairs, and from the beginning a.s.serted his undoubted right to discuss them with foreign Amba.s.sadors. His a.s.sumption of the Premiership, therefore, implied a delicate but perceptible change in the position of the Foreign Secretary.

To this was added a profound, though at first latent, difference of spirit and opinion. The Prime Minister wished to get on good terms with the two European dictators, and believed that conciliation and the avoidance of anything likely to offend them was the best method. Eden, on the other hand, had won his reputation at Geneva by rallying the nations of Europe against one dictator; and, left to himself, might well have carried sanctions to the verge of war, and perhaps beyond. He was a devoted adherent of the French Entente. He had just insisted upon "staff conversations." He was anxious to have more intimate relations with Soviet Russia. He felt and feared the Hitler peril. He was alarmed by the weakness of our armaments, and its reaction on foreign affairs. It might almost be said that there was not much difference of view between him and me, except of course that he was in harness. It seemed, therefore, to me from the beginning that differences would be likely to arise between these two leading ministerial figures as the world situation became more acute.

Moreover, in Lord Halifax the Prime Minister had a colleague who seemed to share his views of foreign affairs with sympathy and conviction. My long and intimate a.s.sociations with Edward Halifax dated from 1922 when, in the days of Lloyd George, he became my Under-Secretary at the Dominions and Colonial Office. Political differences even as serious and prolonged as those which arose between us about his policy as Viceroy of India had never destroyed our personal relations. I thought I knew him very well, and I was sure that there was a gulf between us. I felt also that this same gulf, or one like it, was open between him and Anthony Eden. It would have been wiser, on the whole, for Mr. Chamberlain to have made Lord Halifax his Foreign Secretary when he formed his Government. Eden would have been far more happily placed in the War Office or the Admiralty, and the Prime Minister would have had a kindred spirit and his own man at the Foreign Office. This inauspicious situation developed steadily during the year that Eden and Chamberlain worked together.

Up to this time and during many anxious years Sir Robert Vansittart had been the official head of the Foreign Office. His fortuitous connection with the h.o.a.re-Laval Pact had affected his position both with the new Foreign Secretary, Mr. Eden, and in wide political circles. The Prime Minister, who leaned more and more upon his chief industrial adviser, Sir Horace Wilson, and consulted him a great deal on matters entirely outside his province or compa.s.s, regarded Vansittart as hostile to Germany. This was indeed true, for no one more clearly realised or foresaw the growth of the German danger or was more ready to subordinate other considerations to meeting it. The Foreign Secretary felt he could work more easily with Sir Alexander Cadogan, a Foreign Office official also of the highest character and ability. Therefore, at the end of 1937, Vansittart was apprised of his impending dismissal, and on January 1, 1938, was appointed to the special post of "Chief Diplomatic Adviser to His Majesty's Government." This was represented to the public as promotion, and might well indeed appear to be so. In fact, however, the whole responsibility for managing the Foreign Office pa.s.sed out of his hands. He kept his old traditional room, but he saw the Foreign Office telegrams only after they had reached the Foreign Secretary with the minutes of the department upon them. Vansittart, who refused the Emba.s.sy in Paris, continued in this detached position for some time.

Between the summer of 1937 and the end of that year, divergence, both in method and aim. grew between the Prime Minister and his Foreign Secretary. The sequence of events which led to Mr. Eden's resignation in February, 1938, followed a logical course.

The original points of difference arose about our relations with Germany and Italy. Mr. Chamberlain was determined to press his suit with the two dictators. In July, 1937, he invited the Italian Amba.s.sador, Count Grandi, to Downing Street. The conversation took place with the knowledge, but not in the presence, of Mr. Eden. Mr. Chamberlain spoke of his desire for an improvement of Anglo-Italian relations. Count Grandi suggested to him that as a preliminary move it might be well if the Prime Minister were to write a personal appeal to Mussolini. Mr. Chamberlain sat down and wrote such a letter during the interview. It was dispatched without reference to the Foreign Secretary, who was in the Foreign Office a few yards away. The letter produced no apparent results, and our relations with Italy, because of the increasing Italian intervention in Spain, got steadily worse.

Mr. Chamberlain was imbued with a sense of a special and personal mission to come to friendly terms with the Dictators of Italy and Germany, and he conceived himself capable of achieving this relationship. To Mussolini he wished to accord recognition of the Italian conquest of Abyssinia as a prelude to a general settlement of differences. To Hitler he was prepared to offer colonial concessions. At the same time he was disinclined to consider in a conspicuous manner the improvement of British armaments or the necessity of close collaboration with France, both on the staff and political levels. Mr. Eden, on the other hand, was convinced that any arrangement with Italy must be part of a general Mediterranean settlement, which must include Spain, and be reached in close understanding with France. In the negotiation of such a settlement, our recognition of Italy's position in Abyssinia would clearly be an important bargaining counter. To throw this away in the prelude and appear eager to initiate negotiations was, in the Foreign Secretary's view, unwise.

During the autumn of 1937 these differences became more severe. Mr. Chamberlain considered that the Foreign Office was obstructing his attempts to open discussions with Germany and Italy, and Mr. Eden felt that his chief was displaying immoderate haste in approaching the Dictators, particularly while British armaments were so weak. There was in fact a profound practical and psychological divergence of view.

In spite of my differences with the Government, I was in close sympathy with their Foreign Secretary. He seemed to me the most resolute and courageous figure in the Administration, and although as a private secretary and later as an Under-Secretary of State in the Foreign Office he had had to adapt himself to many things I had attacked and still condemn, I felt sure his heart was in the right place and that he had the root of the matter in him. For his part, he made a point of inviting me to Foreign Office functions, and we corresponded freely. There was, of course, no impropriety in this practice, and Mr. Eden held to the well-established precedent whereby the Foreign Secretary is accustomed to keep in contact with the prominent political figures of the day on all broad international issues.

On August 7, 1937, I wrote to him: This Spanish business cuts across my thoughts. It seems to me most important to make Blum stay with us strictly neutral, even if Germany and Italy continue to back the rebels and Russia sends money to the Government. If the French Government takes sides against the rebels, it will be a G.o.dsend to the Germans and pro-Germans. In case you have a spare moment look at my article in the Evening Standard Evening Standard on Monday. on Monday.

In this article I had written: The worst quarrels only arise when both sides are equally in the right and in the wrong. Here, on the one hand, the pa.s.sions of a poverty-stricken and backward proletariat demand the overthrow of Church, State, and property, and the inauguration of a Communist regime. On the other hand, the patriotic, religious, and bourgeois forces, under the leadership of the Army, and sustained by the countryside in many provinces, are marching to re-establish order by setting up a military dictatorship. The cruelties and ruthless executions extorted by the desperation of both sides, the appalling hatreds unloosed, the clash of creed and interest, make it only too probable that victory will be followed by the merciless extermination of the active elements of the vanquished and by a prolonged period of iron rule.

In the autumn of 1937, Eden and I had reached, though by somewhat different paths, a similar standpoint against active Axis intervention in the Spanish Civil War. I always supported him in the House when he took resolute action, even though it was upon a very limited scale. I knew well what his difficulties were with some of his senior colleagues in the Cabinet and with his chief, and that he would act more boldly if he were not enmeshed. We saw a good deal of each other at the end of August at Cannes, and one day I gave him and Mr. Lloyd George luncheon at a restaurant halfway between Cannes and Nice. Our conversation ran over the whole field the Spanish struggle, Mussolini's persistent bad faith and intervention in Spain, and finally, of course, the dark background of ever-growing German power. I thought we were all three pretty well agreed. The Foreign Secretary was naturally most guarded about his relations with his chief and colleagues, and no reference was made to this delicate topic. Nothing could have been more correct than his demeanour. Nevertheless, I was sure he was not a happy man in his great office.

Soon in the Mediterranean a crisis arose which he handled with firmness and skill, and which was accordingly solved in a manner reflecting a gleam of credit upon our course. A number of merchant ships had been sunk by so-called Spanish submarines. Actually there was no doubt that they were not Spanish but Italian. This was sheer piracy, and it stirred all who knew about it to action. A conference of the Mediterranean Powers was convened at Nyon for September 10. To this the Foreign Secretary, accompanied by Vansittart and Lord Chat-field, the First Sea Lord, proceeded.

Mr. Churchill to Mr. Eden.

9.IX.37.

In your last letter you said that you would be very glad to see Lloyd George and me before you left for Geneva. We have met today, and I venture to let you know our views.This is the moment to rally Italy to her international duty. Submarine piracy in the Mediterranean and the sinking of ships of many countries without any care for the lives of their crews must be suppressed. For this purpose all Mediterranean Powers should agree to keep their own submarines away from certain defined routes for commerce. In these routes the French and British Navies should search for all submarines, and any found by the detector apparatus should be pursued and sunk as a pirate. Italy should be asked in the most courteous manner to partic.i.p.ate in this. If, however, she will not do so, she should be told, "That is what we are going to do."At the same time, as it is very important to have the friendly concurrence of Italy, France should say that unless this concurrence is obtained, she will open the Pyrenees frontier to the import of munitions of all kinds. Thus, on the one hand, Italy would be faced by the fact that the sea routes through the Mediterranean are going to be cleared of pirate submarines whatever happens, while at the same time she will gain nothing by not joining in, because the French frontier will be open. This point we consider essential. This combination of pressure upon Italy to join with the other Mediterranean Powers, coupled with the fact that she would risk much and gain nothing by standing out, would almost certainly be effective provided Mussolini knows that France and England are in earnest.It is not believed that Germany is ready for a major war this year, and if it is hoped to have good relations with Italy in the future, matters should be brought to a head now. The danger from which we suffer is that Mussolini thinks all can be carried off by bluff and bullying, and that in the end we shall only blether and withdraw. It is in the interests of European peace that a firm front should be shown now, and if you feel able to act in this sense, we wish to a.s.sure you of our support upon such a policy in the House of Commons and in the country however matters may turn.Speaking personally, I feel that this is as important a moment for you as when you insisted upon the staff conversations with France after the violation of the Rhineland. The bold path is the path of safety.Pray make any use of this letter privately or publicly that you may consider helpful to British interests and to the interests of peace.P.S. I have read this letter to Mr. Lloyd George who declares himself in full agreement with it. I have read this letter to Mr. Lloyd George who declares himself in full agreement with it.

The Conference at Nyon was brief and successful. It was agreed to establish British and French anti-submarine patrols, with orders which left no doubt as to the fate of any submarine encountered. This was acquiesced in by Italy, and the outrages stopped at once.

Mr. Eden to Mr. Churchill.

14.X.37.

You will now have seen the line which we have taken at Nyon, which, in part at least, coincides with that suggested in your letter. I hope you will agree that the results of the Conference are satisfactory. They seem so as viewed from here. The really important political fact is that we have emphasised that co-operation between Britain and France can be effective, and that the two Western Democracies can still play a decisive part in European affairs. The programme upon which we eventually agreed was worked out jointly by the French and ourselves. I must say that they could not have co-operated more sincerely, and we have been surprised at the extent of the naval co-operation which they have been ready to offer. It is fair to say that if we include their help in the air we shall be working on a fifty-fifty basis.I agree that what we have done here only deals with one aspect of the Spanish problem. But it has much increased our authority among the nations at a time when we needed such an increase badly. The att.i.tude of the smaller Powers of the Mediterranean was no less satisfactory. They played up well under the almost effusively friendly lead of Turkey. Chatfield has been a great success with everyone, and I feel that the Nyon Conference, by its brevity and success, has done something to put us on the map again. I hope that this may be your feeling too.

At least it has heartened the French and ourselves to tackle our immensely formidable task together.

Mr. Churchill to Mr. Eden.

20.IX.37.

It was very good of you, when so busy, to write to me. Indeed I congratulate you on a very considerable achievement. It is only rarely that an opportunity comes when stern and effective measures can be brought to bear upon an evil-doer without incurring the risk of war. I have no doubt that the House of Commons will be very much pleased with the result.I was very glad to see that Neville has been backing you up, and not, as represented by the popular press, holding you back by the coat-tails. My hope is that the advantages you have gained will be firmly held on to. Mussolini only understands superior force, such as he is now confronted with in the Mediterranean. The whole naval position there is transformed from the moment that the French bases are at our disposal. Italy cannot resist an effective Anglo-French combination. I hope, therefore, that Mussolini will be left to find his own way out of the diplomatic ditch into which he has blundered. The crystallisation against him for an una.s.sailable purpose which has taken place in the Mediterranean is the one thing above all that he should have laboured to avoid. He has brought it about. I hope that the Anglo-French naval co-operation which has now begun will be continued indefinitely, and that both navies and air forces will continue to use each other's facilities. This will be needed to prevent trouble arising about the Balearic Islands. The continued fortification of the Mediterranean by Italy against us will have to be dealt with in the future, as it is a capital danger to the British Empire. The more permanent the present arrangement becomes, the less loaded with danger will this situation be.Bernard Baruch telegraphs he is writing the results of his interview with the President [after our talks in London]. I have little doubt that the President's speech against dictatorships has been largely influenced by our talk, and I trust that the ground on the tariff and currency side is also being explored.

Mr. Eden to Mr. Churchill.

25.IX.37.

Thank you so much for your letter of September 20, and for the generous things you have written about Nyon, which I much appreciate. I thought your summing up of the position at Nyon, "It is only rarely that an opportunity comes when stern and effective measures can be brought to bear upon an evil-doer without incurring the risk of war," effectively described the position. Mussolini has been unwise enough to overstep the limits, and he has had to pay the penalty. There is no doubt that the spectacle of eighty Anglo-French destroyers patrolling the Mediterranean a.s.sisted by a considerable force of aircraft has made a profound impression on opinion in Europe. From reports which I have received, Germany herself has not been slow to take note of this fact. It was a great relief, both to Delbos and me, to be able to a.s.sert the position of our respective countries in this way in the autumn of a year in which we have inevitably had to be so much on the defensive. There is plenty of trouble ahead, and we are not yet, of course, anything like as strong in the military sense as I would wish, but Nyon has enabled us to improve our position and to gain more time.I also cordially agree with you on the importance of the Anglo-French co-operation which we have now created in the Mediterranean. The whole French att.i.tude was, of course, fundamentally different from that which prevailed when Laval was in command. The French Naval Staff could not have been more helpful, and they really made a great effort to make an important contribution to the joint force. Our Admiralty were, I am sure, impressed. Moreover, the mutual advantages to which you refer in respect of the use of each other's bases are very valuable. Nor will Italian partic.i.p.ation, whatever its ultimate form, be able to affect the realities of the situation.

The Nyon Conference, although an incident, is a proof of how powerful the combined influence of Britain and France, if expressed with conviction and a readiness to use force, would have been upon the mood and policy of the Dictators. That such a policy would have prevented war at this stage cannot be a.s.serted. It might easily have delayed it. It is the fact that whereas "appeas.e.m.e.nt" in all its forms only encouraged their aggression and gave the Dictators more power with their own peoples, any sign of a positive counter-offensive by the Western Democracies immediately produced an abatement of tension. This rule prevailed during the whole of 1937. After that, the scene and conditions were different.