The Life of the Rt. Hon. Sir Charles W. Dilke Volume II Part 43

In the new Parliament, Dilke moved on March 5th, 1896, for a return of the number of British seamen available for service in the navy in time of war.

"One difficulty," he said, "that had to be faced was that in debates like the present they had no real opportunity of engaging in a collective review of the whole defensive expenditure of the country on the army and navy taken together.... They expected from the Government a policy which could be explained to the House--either a policy of alliances, to which he himself was rootedly opposed; or the policy, which was the only true policy for this country, of keeping up such a fleet as would make us safe against any probable combination. The point to which he wished to draw most urgent attention was that the real reserve of England was disappearing very fast. The British sailor was becoming more and more a rare article of luxury. He was used on the first-cla.s.s liners, and not used elsewhere.... There was another point of importance. Among these foreigners there were many masters of ships, and they were taught the pilotage of our rivers. That was a very serious matter, and might become a great danger in time of war."

It soon became evident that the changes made in 1895 had not produced improvement either in the Government's arrangements for national defence or in the management of the army. In November, 1896, Lord Lansdowne, Secretary of State for War, and Sir Michael Hicks Beach, Chancellor of the Exchequer, made speeches the same evening at Bristol. The Secretary of State expressed the intention to make a slight increase in the number of battalions in the army, while the Chancellor declared that he would consent to no increase in the Army Estimates until he could feel more confidence in the manner in which the money was expended. This disagreement between members of the Cabinet led to inquiries, through which Dilke became aware that the Commander-in-Chief, Lord Wolseley, wished for a larger increase in the number of battalions than the Secretary of State was willing to propose. The opportunity seemed suitable for raising the question whether or not the military measures proposed by the Government were those suggested by their military adviser--a fundamental question. Lord Lansdowne having explained in the House of Lords in February, 1897, that his proposal was to add two battalions to the Guards and one to the Cameron Highlanders, and that he hoped in this way to restore the equilibrium between the number of battalions at home and the number abroad, Dilke in the House of Commons pointed out (February 8th) that the measure proposed would not establish the desired equilibrium, and that the proposal was anonymous. Who, he asked, were the military authorities on whose advice the Government relied? Mr. Brodrick, in reply, said that the proposals of the Government, taken as a whole, had been gratefully accepted by one and all of the military heads of the War Office, as, in the words of the Commander-in-Chief, "such a step forward as has not been made for many years." Thus it became clear that the military heads, including the Commander-in-Chief, were as ready to be overruled in regard to their views as to what was necessary for the army as the civilian Minister was to overrule them.

In the Christmas recess of 1897-98 Dilke prepared for the next Session by writing a pamphlet on Army Reform in which he reviewed the position.

He and the other reformers had steadily a.s.serted that the home army could not take the field until it had drawn heavily on the reserve; that it was terribly short of artillery; that the seven to eight years'

enlistment was a hybrid, and that the sound course was to have a short-term service with the colours at home followed by a choice between a long term in the reserve and a long term in the Indian or Colonial army; and, lastly, that the administration was over-centralized at the War Office, to the detriment of the authority, the efficiency, and the character, of the generals. The critics had further urged that the linked-battalion system and the hybrid term, bad as they were, could not be worked at all without a large increase of the number of battalions at home. In 1897 the War Office had replied that an increase of three battalions would suffice.

The new estimates were introduced in the House of Commons on February 25th, 1898, by Mr. Brodrick, who admitted that, in order to put 50,000 infantry into the field, it would be necessary to call out 28,000 reservists. In order to have artillery enough for a fraction of the army he asked for fifteen more batteries. He had to admit that the three battalions added in 1897 were not enough, and to ask for six more. The speech was an admission of all the contentions of the critics, though it began by abusing them.

In the debate Dilke moved: "That no scheme for the reorganization of the army will be satisfactory which involves the sacrifice of one unit to secure the efficiency of any other." He referred to the admitted breakdown of the eight-years and linked-battalion system. Mr. Brodrick, quoting Lord Wolseley, had rea.s.sured the country by telling them that they could despatch two army corps abroad.

"Two army corps!" exclaimed Dilke, "when it is twenty army corps which this country pays for!... Out of the men at home, if cavalry and artillery were provided, twenty corps instead of two corps might be made.... In the last three years the cost of the army has been considerably increased, and there has been an increase in numbers voted.

Yet there has been a decrease not only in the militia, but also in the regular army and in the army reserve as well during that period--an additional evidence of breakdown.... The territorial system here can never be anything more than a sham so long as we have to provide for India and garrison coaling-stations, and so long as the battalions are constantly moved about.... We have year by year made our statements with regard to artillery to the House. n.o.body believed a word we said, and it was only last year, when three batteries were sent out to the Cape, and twenty batteries wrecked in men and horses to provide them, that the War Office at last admitted that we had all along been right.... On this occasion we see some results, in the speech of the right hon. gentleman to-night, of our action in the past."

The Navy Estimates were introduced in July. Lord Charles Beresford in his argument had pointed out that the cost of the navy bore a much smaller proportion to our mercantile marine than that of the navies of other countries. Dilke said:

"The position of the British Empire is such that, if by the mercantile policy of other countries our mercantile marine were wholly to disappear, or if it were to disappear as the result of a war in which our carrying trade pa.s.sed, say, to the United States, it would be just as necessary as now for us to have a predominant fleet.... If the pressure of taxation on the poorer cla.s.ses, if the unrest in this country on the subject, were so great that it was not possible to make the sacrifices which I for one think it necessary to make, I would sooner give up the whole expenditure on the army than give way upon this naval programme.... This matter of the fleet is vital to our position in the world. The army is an arguable question."

Dilke continued steadily to press for a strong navy. In 1899 he once more supported Mr. Goschen's proposals, and again urged that, if the cost of the army and navy should be too great, we must save on the army, but not on the navy. His chief criticism of the Admiralty was that "we have got into the vicious position of beginning our building programme each year at the extreme end of the financial year."

The keynote of his speech was: "This Empire is an Empire of the seas, and the navy is vital to our existence, but our army is not. Our Indian army is vital to our possession of India, but India pays the full cost of it, perhaps rather more."

III.

During the winter of 1898-99 the opposition of purposes between the British Government and the Government of the South African Republic was causing grave apprehension to public men. The High Commissioner, Sir Alfred Milner, paid a visit to England, and on his return to the Cape was authorized in May, 1899, to meet President Kruger in a Conference at Bloemfontein. On June 7th the failure of the Conference was announced, and was thought by many to be the equivalent of a diplomatic rupture, the prelude to hostilities. No serious military preparations were made by the British Government, though various measures were suggested by the Commander-in-Chief, Lord Wolseley, and by Sir Redvers Buller. It was not until September 10th that 10,000 men were ordered from India to Natal, and not until October 7th that orders were issued for the calling out of the reserve and for the mobilization of an army corps and other troops for South Africa. The Boers began hostilities on October 11th, and the operations were unfavourable to the British until the middle of February, when Lord Roberts began the advance towards Kimberley.

At the end of January, 1900, the Prime Minister, Lord Salisbury, said in the House of Lords: "I do not believe in the perfection of the British Const.i.tution as an instrument of war ... it is evident that there is something in your machinery that is wrong."

In the debate on the Army Estimates on February 1st, Dilke, with his usual courage, raised the question of responsibility, in a speech to which little attention was paid at the time, but which will now, in the light of subsequent events, be better appreciated.

"The country," he said, "has gone through an awful winter, and under our const.i.tutional system there are persons responsible, and we have to examine the nature of their responsibility. Some Government speakers, who during the recess have addressed the country, have drawn certain comparisons between the occurrences in this war and those of the Crimean War.... I confess that I believe the present war has been far more disgracefully conducted than the Crimean War had been, and that the mourning is far more applicable to this case. Now, with regard to the checks or reverses--that is the accepted phrase--we are really afraid in these days to talk about 'disasters.' The First Lord of the Treasury at Manchester distinctly stated there had been 'no disaster.' There has been no single great engagement in which we have met with an absolute disaster, but for the first time in our military history there has been a succession of checks or reverses--unredeemed as they have been by a single great military success in the whole course of the war--in many of which we have left prisoners in the enemy's hands. We began with the abandonment of the entrenched camp at Dundee, and of the great acc.u.mulation of stores that had been made there, of the wounded, and of the dying General, and we lost the headquarters of a regiment of cavalry that tried a cavalry pursuit. We lost the headquarters of two battalions at Nicholson's Nek; we lost the headquarters of one battalion and a very large portion of another battalion in the repulse at Stormberg; we lost the Colonel, most of the field officers, and the whole of one company of the Suffolks, on another occasion. These headquarters of cavalry, and the princ.i.p.al portion of the remaining men of five battalions of British infantry, are now prisoners at Pretoria--not to speak of what happened to the Highland Brigade at Magersfontein, or of the loss of the guns in the repulse at the Tugela, or of the fact that thirteen of our field guns, besides a mountain battery, are now in the enemy's hands. The loss of guns in proportion to our small strength of guns is equivalent to the loss of some 300 guns by the German army. None of these events const.i.tutes what the First Lord of the Treasury calls a disaster.

Probably he is right. But can any member of this House deny that the net result of these proceedings has been disastrous to the belief of the world in our ability to conduct a war? Therefore, if there has been, as the right hon. gentleman says, not one disaster, surely the result of the proceedings has been one disastrous to the credit of this country.

There has been one immense redemption of that disaster, which is that all the Powers, however hostile, have very frankly acknowledged on these occasions the heroism of the officers and men. Our military reputation, which undoubtedly never stood lower in the eyes of the world than at the present moment, is redeemed in that respect, and the individual courage of officers and men never stood higher in the estimate of the world than it does now. It seems to me to be a patriotic duty of those who have in the past discussed in this House the question of Cabinet responsibility for military preparations to discuss the question now; to see who is responsible, whom--I will not say we will hang, but whom we are to hold blameworthy in the highest degree for what has occurred. I believe that the opinion is attributed to the Prime Minister that the British Const.i.tution is not a fighting machine. I am told that he has thrown doubt upon the working of the British Const.i.tution as a Const.i.tution which will allow this country successfully to go to war. That is a very serious matter. The Const.i.tution of this country has been maintained as a fighting machine by the members of this House who are now responsible for the Administration. No one has ever put the doctrine of Cabinet responsibility for the preparation for war higher than it has always been put by the present Leader of the House (Mr. Balfour), and anything more direct than the conflict on that point, as on many others, between his opinion and the opinion of the Prime Minister it is impossible to conceive.... On Thursday last the right hon. member who preceded me in this debate--the Under-Secretary of State for Foreign Affairs (Mr.

Brodrick)--delivered a speech and said that all that had been done in this war had been 'solely dictated by military advice,' and 'military advice alone determined all that had been done.' I should like the House to consider what that statement means. The right hon. gentleman was the member who, on three occasions, brought the question of the ammunition supplies of this country before the House: it was he who moved the amendment which turned out the Rosebery Administration on the cordite vote, and he led the discussion on two subsequent occasions on which we debated the same question. At the opening of the next Parliament the whole question of Ministerial responsibility for war preparation was thoroughly and exhaustively considered by this House. I confess that I did not expect to hear the right hon. gentleman--who on those three occasions so firmly pressed, to the very extinction of the Government itself, the doctrine of Cabinet responsibility--as it were sheltering the Cabinet behind military advice, advice which he rejected, as also did the Leader of the House, with scorn upon that occasion.... I feel it a duty to myself, and to all who hold the same opinion, to press home this doctrine of Cabinet responsibility on this occasion. In that debate the hon. member who seems likely to follow me in this debate--the present Under-Secretary for War (Mr. Wyndham)--took part. He was then a private member and warmly occupied his mind upon this question, and he used these words: 'If they were overwhelmed by disasters, the Minister for War would be held responsible.' Not only he, but the whole Cabinet are responsible, and the present Leader of the House, in following the hon. member in that debate, emphasized that fact, and pointed out the importance of complete Cabinet responsibility. That doctrine was emphatically maintained. There are practical reasons why this question should be pressed home on this occasion. This is obviously the time to press it home if ever it should be done, and it seems to me that such practical reasons are to be found in two considerations. We have been told that at the beginning of every war it is always fated that there should be muddling. We have been told it from both sides of the House, that we always begin by muddling our wars. If there is one fact more certain than another, it is that in future wars, not with Boer Republics, but with Great Powers, there will be no time for muddling at the beginning of war, and it is vital that this muddling should be guarded against. If we are to look forward as a matter of certainty that this country is always to muddle at the beginning of a war, then we may look forward with almost certainty to defeat."

Dilke then examined the excuses that had been made for the Government, to the effect that the war took them by surprise and that they had no knowledge of the Boer preparations. He showed that both these pleas were inconsistent with the facts. Mr. Balfour had said that the Government had thought it their duty, during the negotiations which preceded the war, to abstain from unnecessary menace. Dilke pointed out that they did not so abstain. Lord Salisbury had said on July 28th, 1899, "the Conventions are mortal ... they are liable to be destroyed." That could only be understood by the Boers as holding out the prospect of a war in which the independence of their country would be taken away. Were these words wise when used without the smallest preparation for war having been made? As regards knowledge of the Boer preparations, the Intelligence Department had admirably done its work. No Government was ever so well informed as to the resources of its opponents as the British Government in entering upon this war. Dilke went on to say:

"Both by those who would have antic.i.p.ated war and by the Government it has been alleged that the existence of a Parliamentary Opposition was the reason why the military precautions of the Government were inefficacious. But the Government has been in power since July, 1895, and has been supported by overwhelming majorities, and it would have had the cheerful acquiescence of the House of Commons for every measure of military precaution and all the military expenditure which was asked. The Cabinet are responsible; but if there is to be any difficulty on account of the existence of a const.i.tutional Opposition--even a weak one--I say that by that doctrine we are fated to be beaten on every occasion we go to war.

The time for the reform of our military system will come when this war has ended. We cannot reform it in a time of war. We have often addressed the House upon this subject. We preached to deaf ears. We were not listened to before war. Shall we be listened to when war is over? While I admit that in a time of war you cannot reform your military system, what you can do is to press home to the Cabinet the responsibility.... For some years past there have been discussions as to Empire expansion which have divided some of us from others on military questions. There are some of us, who are strong supporters of the Government in preparing for war in the present situation of the world, who are not in favour of what is called the expansion of the Empire. We have resisted it because we believed the military requirements of the Empire were greater--as it was put by Lord Charles Beresford, whom we see here no longer--than we were prepared to meet. And the Government now come down to the House and quietly tell us that that is so. They have put it in the Queen's Speech. We have it stated that, although the money we have to spend in military preparations is more than that of any other Power in the world, we are going to be asked to spend more. I should hope that good may come out of evil, and that a result of this sad war may be the proper utilization of our resources in preparing, in times of peace, all the military forces of what people call Greater Britain.... I venture to say that the Government went into this war without the preparation they should have made. Their neglect of that precaution has brought about the reverses we have met with, and the natural consequence is the failure of our arms I have described. As regards the Crimean War, which in some respects has been compared with this, one is reminded of the present Commander-in-Chief, who has written these momentous words: The history of the Crimean War shows 'how an army may be destroyed by a Ministry through want of ordinary forethought.' I confess that I think there is only one point in which the two cases are exactly parallel--for there are many distinctions between them--and that is in the heroism of officers and men."

On July 27th, 1900, on the occasion of a supplementary estimate for the South African War, Dilke criticized the censorship of letters from the front, in consequence of which the truth about the military mistakes made remained unknown. He reviewed a series of blunders that had been made in the war, and quoted the opinion of an eminent foreign strategist to the effect that "the mistakes which had been made were mistakes on immutable and permanent principles." Thus, there was a doubt whether the army had been properly trained for war in the past and was being properly trained at that moment. He asked for a full inquiry into these matters.

That inquiry was never made. The Royal Commission appointed after the war to inquire into its conduct began by disclaiming authority to inquire into the policy out of which the war arose, and by a.s.serting its own incompetence to discuss the military operations.

In a paper contributed to the _New Liberal Review_ of February, 1901, Dilke reviewed the South African War, and summed up:

"The war, then, has revealed deficiency in the war training of the Staff in particular, and of the army generally. It has shown that the recommendations of the Commander-in-Chief to the Cabinet for the nomination of Generals to high commands were not based on real tests. It has called attention to the amateurishness of portions of our forces. It has proved that for years the reformers have been right, and the War Office wrong, as regards the number and proportion of guns needed by us and the rapidity of the mobilization of our artillery.

"Remedies which will certainly be attempted are--Better training of the Staff, especially in the thinking out and writing of orders; weeding out of incompetent amateurs from among our officers; better pay for the men; careful preparation in time of peace of a picked Imperial force of mounted infantry from all parts of the Empire. But greater changes, urgently as they are demanded by the national interest, will not be accomplished, as public excitement will die down, and triflers and obstructives will remain at the head of affairs, in place of the Carnot who is needed as organizer to back the best General that can be found for the Commander-in-Chief.

"The greatest of the lessons of the war was the revelation of the neglect, by statesmen, to prepare for wars which their policy must lead them to contemplate as possible.... The long duration of the war, with all its risks to our Imperial interests, is to be laid at the door of the politicians rather than of the Generals. This, the greatest lesson, has not been learnt."

IV.

After the General Election of December, 1900, there was a shifting of offices in the Cabinet, by which Mr. Brodrick succeeded Lord Lansdowne as Secretary of State for War, and Lord Selborne became First Lord of the Admiralty instead of Mr. Goschen. Lord Roberts was brought home from South Africa to become Commander-in-Chief, and the direction of the war was left in the hands of Lord Kitchener. The first important event in the new Parliament was a speech by Lord Wolseley in the House of Lords, in which he warned the nation against the dangerous consequences of the system introduced in 1895, which failed to give its proper place to the military judgment in regard to preparations for war. The warning was disregarded. Mr. Brodrick announced the determination of the Government to maintain the system set up in 1895, and to give to Lord Roberts as Commander-in-Chief the same position of maimed and crippled authority as had been given to Lord Wolseley six years before.

Mr. Brodrick, while carrying on the war in South Africa, attempted at the same time to reform the army. The results were the more unfortunate because on vital matters, both of organization at the War Office and of the reorganization of the army, Mr. Brodrick insisted on overriding the great soldier to whom, as Commander-in-Chief, was due whatever confidence the country gave to the military administration. Mr. Brodrick was much preoccupied with the defence of the United Kingdom against invasion. In the debate on the Army Estimates of 1901, Dilke said:

"I am one of those who hold that the command of the seas is the defence of this country. I believe that the British Army exists mainly for the reinforcement of the Indian garrison, and, if necessary, as the rudiment of that army which, in the event of a great war, would be necessary."

Dilke continued to support the Admiralty in its endeavours to strengthen the navy. In the debate on the Navy Estimates of 1901 (March 22nd) he said:

"The Secretary of State for the Colonies a few years ago made a speech in favour of an alliance with a military Power. [Footnote: See _infra_, p. 491.] He said that the alternative was to build up so as to make ourselves safe against a combination of three Powers, and that that would entail an addition of fifty per cent. to the estimates. Since that time we have added more than fifty per cent.

to our estimates. Of course the expenditure is very great; but is there a man in this House who believes that it is not necessary for us to maintain that practical standard which would lead even three Powers to hesitate before attacking? During the last year we have, happily, had friendship between ourselves and Germany; I believe that friendship may long continue, and I hope it will. But it is impossible to shut our eyes to the fact that there have been distinctly proposed to the German Houses, by Admiral Tirpitz, estimates which are based on the possibility of a war with England.

Von der Goltz, who is the highest literary authority on this subject, has said the same thing. We have seen also that remarkable preparation of strategic cables on the part of Germany ... in order to be entirely independent of British cables in the event of a possible naval war. In face of facts of that kind, which can be infinitely multiplied, it seems to me it would be monstrous on our part to fail to maintain that standard, and that it is our bounden duty to make up for the delays which have occurred, and to vote programmes for the future which should be sufficient to keep up that standard."

When the Navy Estimates for 1902 were introduced into the House of Commons by Arnold-Forster as Parliamentary Secretary to the Admiralty, Mr. Lough moved an amendment: "That the growing expenditure on the naval defences of the Empire imposes under the existing conditions an undue burden on the taxpayers of the United Kingdom." Dilke, in opposing the amendment, deprecated the introduction of party considerations into a discussion concerning the navy. The time taken to build ships ought to be borne in mind. The usual period had lately been four years; many of the ships of the 1897 programme had not yet been commissioned; therefore it was necessary to remember that the country would go into a naval war with ships according to the programme of four or five years before war was declared. Mr. Goschen was a careful First Lord of the Admiralty, yet Mr. Goschen in his programme year after year alluded to the necessity of maintaining a fleet which would cause not two but three Powers to pause before they attacked us. To his (Dilke's) mind, it was infinitely more important to the country that its expenditure should be shaped, not towards meeting a sudden attack by two Powers, which was not going to occur, but towards meeting--not immediately, but in time to come--the possibility of an eventual joining together of three Powers, one of which was very rapidly building a magnificent fleet. From that point of view the programme of the Government this year was a beggarly programme.

In introducing the Navy Estimates for 1903 Arnold-Forster said that they were of a magnitude unparalleled in peace or war. Dilke, in supporting them, said (March 17th):

"The standard which Lord Spencer gave to this House was not a fleet equivalent to three fleets--not a fleet, certainly, on all points equivalent to the fleets of France, Germany, and Russia--but a standard which gave us such a position in the world of fleets as would cause three Powers to pause before they entered into a coalition against us. That was a position he had always contended was necessary for the safety of this country.... The only weak point that one could discern as really dangerous in the future was the training of the officers for high command and the selection of officers, which would give this country, in the event of war, that real unity of operations which ought to be our advantage against any allied Powers."

V.

On June 20th, 1902, Lord Charles Beresford had raised the question of the organization of the Admiralty, which he held to be defective for the purpose of preparation for war. "The administrative faculty," he said, "should be absolutely separate from the executive faculty, but at present they were mixed up." Campbell-Bannerman held that no change was necessary. Dilke supported Lord Charles Beresford, and after reviewing the cordite debates of 1895, to which both the previous speakers had referred, gave his reasons for holding that the duty of the Cabinet was to control both services in order to secure that each should take its proper share in defence. "If there was a very strong man, or even one who thought himself very strong, at the head of either department, the present system tended to break down, because, unless there was some joint authority in the Cabinet strong enough to control even a strong First Lord of the Admiralty, no joint consideration of the views of the two departments could be obtained. At the present moment the two services competed." Lord Charles Beresford and Dilke were supported by Sir John Colomb, and in his reply Arnold-Forster said: "I cannot but reaffirm the belief I held before I stood at this table, and since I have stood here, that there is a need for some reinforcement of the intellectual equipment which directs or ought to direct the enormous forces of our Empire." The question was raised again on August 6th by Major Seely, in a speech in which he commented on the lack of a body charged with the duty of studying strategical questions. Mr. Balfour thereupon said:

"We cannot leave this matter to one department or two departments acting separately. It is a joint matter; it must be a joint matter.

I hope my honourable friend will take it from me that the Government are fully alive, and have, if I may say so, long been fully alive, to the difficulty of the problem which presents itself to his mind and which he has explained to the House; and that that problem is one always present to our minds. It is one which we certainly do not mean to neglect to meet and grapple with to the best of our ability."

In 1903, in an article contributed to the Northern Newspaper Syndicate, Dilke wrote:

"We are face to face with the fact that Mr. Brodrick's scheme is admitted from all sides, except by those actually responsible for it who are still holding office, to be a failure; that under this scheme the charge on the British Empire for defence in time of peace stands at eighty-six millions sterling, of which fifty-two millions at least are for land defence, nevertheless ill secured; that without a complete change of system these gigantic figures must rapidly increase; and that, while all agree that in our case the navy ought to be predominant, no one seems to be able to control the War Office, or to limit the expenditure upon land defence as contrasted with naval preparations. The service members of the House of Commons, who used to be charged with wasting their own and the nation's time upon military details, or upon proposals for increase of expenditure, have shown their patriotism and their intelligence by going to the root of this great question. They brought about the declaration of the Secretary of the Admiralty, Mr. Arnold-Forster, on June 20th, 1902, and the complete acceptance of that declaration by the Prime Minister on August 6th. They have now forced on Parliament and on the Prime Minister the necessity of taking real action upon his declaration that 'the problem of Imperial defence cannot be left to one department or two departments acting separately.' The utilization of the resources of the British Empire for war must be the business of the Prime Minister, who is above the War Office and the Admiralty, and who alone can lead the Cabinet to co-ordinate the efforts of the two services."

In October, 1903, Arnold-Forster was appointed to succeed Mr. Brodrick as Secretary of State for War. He had previously expressed, in conversation, his wish to see the whole subject of Imperial defence entrusted to a Committee of three men conversant with it, and had named Sir Charles Dilke and Sir John Colomb as two of the three whom he would choose if he had the power. In November a Committee of three was appointed by Mr. Balfour to report on the organization of the War Office. Its members were Lord Esher, Admiral Sir John (now Lord) Fisher, and Sir George Sydenham Clarke (now Lord Sydenham). The first instalment of this Committee's report, published on February 1st, 1904, proposed the reconst.i.tution of the War Office on the model of the Board of Admiralty, and as a preliminary the dismissal of the Commander-in-Chief and the heads of the great departments at the War Office.

At the same time the Cabinet Committee of Defence was reconst.i.tuted under the presidency of the Prime Minister (Mr. Balfour). Thus at length, eleven years after Sir Charles Dilke's first conversations with Mr. Balfour on the subject, was adopted the suggestion he had urged for so many years, and so fully explained in his speech of March 16th, 1894, that a Prime Minister should undertake to consider the needs both of the army and navy, and the probable functions of both in war.

VI.

The result was very soon manifest in a complete change of policy, which was no doubt facilitated by the presence in the Cabinet, as Secretary of State for War, of Mr. Arnold-Forster, one of the signatories of the joint letter of 1894.

On March 28th, 1905, Arnold-Forster said: