The Problem of Foreign Policy Part 2

That article provides: "Should any member of the League resort to war in disregard of its covenants under Articles XII, XIII, or XV, it shall _ipso facto_ be deemed to have committed an act of war against all other members of the League, which hereby undertake immediately to ..." To do what? One expects that they will undertake to declare war, and this is what the French wanted. But no. They only undertake to apply an economic boycott to the offending state, while the Council may "recommend to the several Governments concerned what effective military, naval, or air force they shall severally contribute to the armed forces to be used to protect the covenants of the League." In case of a future attack by Germany on France, France's late allies are bound to boycott German trade, but are not explicitly bound to give military help to France. I suggest that it would have been possible for Great Britain and America to add a rider stating specifically that in one of the cases contemplated by this article, namely, an unprovoked attack on France by Germany, they would not merely proclaim a blockade and consider what to do next, but would immediately and unconditionally declare war. Such an undertaking would involve some risk and be contrary to our usual policy; but I am inclined to suggest that the risk would have been worth taking.

However, this was not done. France was left with the impression that if attacked she could not count with confidence on the military support of her late allies or of the other Powers of the League. The result was disastrous. While the rest of Europe, supported by a small but generous and brilliant band of French radicals and Socialists, considered the Treaty of Versailles intolerably harsh, the dominant French policy complained that it was inadequate for her protection. The line of criticism was somewhat as follows:

1. Germany should have been broken up. No peace should have been made with Germany as a whole, but separate treaties of peace with Saxony, Bavaria, Westphalia, Prussia, etc. These states should have been provided with separate systems of coinage, postage, tariffs, laws, etc., so as to make the diversity stable and permanent. They should be forbidden ever to unite. Also, France should have annexed a large part of Germany; not up to the Rhine--which was the view of Marshal Foch--but up to the Elbe. The occupation of this territory might impose a burden on France, but burdens must be borne when such important purposes are involved. And after all the cost could be charged to the Germans! ...

As this simple precaution was not taken, the next best thing is to keep Germany weak. Starve her by the blockade till sheer misery produces a Bolshevik revolution and society collapses in common ruin. Then apply the indefinite indemnity, not from the desire to get money, but to prevent Germany again raising her head.

2. Since France's late allies cannot be relied upon, she must make by diplomacy new allies whose hands she can force, and who occupy a convenient geographical situation. Poland is in just the right place.

Let France help Poland and stimulate Polish ambitions. She too is a nation maddened by suffering and now dazzled by success. A great imperialist Poland, on bad terms with her neighbours, but backed by France, will need a large and effective army, and will be ready to strike at Germany's rear the moment she attempts to move westward.

Unfortunately, Poland is apt to be on bad terms with Russia; and as things now are Russia is so much the enemy of the Entente that she is thrown into the arms of Germany. That is deplorable and must not be allowed to continue. The Bolsheviks must be overthrown and a Government set up in Russia which is dependent for its existence on French support.

As an additional safeguard, perhaps it will be necessary to secure a pro-French Hungary, to back up the pro-French Poland. But we must not despair yet of overthrowing the Bolsheviks.

3. Lastly, France herself needs more soldiers. And she knows where to get them! The late King Leopold of Belgium once said to M. Hanotaux, "Qu'est-ce que vous cherchez en Afrique, vous autres Francais?" and M.

Hanotaux replied, "Sire, des soldats!" France during the war established conscription in her African territories and, in spite of a somewhat b.l.o.o.d.y rebellion by the ignorant savages, who thought the slave trade was being reestablished, succeeded in importing to France a black army which at one time numbered 600,000 fighting men. With a little more energy and greatly increased territories, that number might be trebled.

France is a smaller nation than Germany; but France plus Algeria, Tunis, Morocco, Senegambia, French Congo, and the new German territories is a much larger nation than Germany without colonies. And blacks fortunately have not the same rights as white men!

A permanently wrecked Germany, vast black armies for France, armed allies always ready on Germany's eastern frontier; with these conditions fulfilled, France, it is hoped by these politicians, may at last breathe freely.

What is wrong with this policy? You may call it devilish, if you will, since it is based on the deliberate and artificial creation of human misery; but is it bad policy? After all, air-bombs and poison gas and the like may be called devilish. But, devilish or not, they have sometimes to be used. If Germany is certainly and confessedly looking out for the next opportunity of escaping from the consequences of the treaty and retrieving her fortunes on the battlefield, is not France bound to take every precaution to see that Germany shall never be strong enough to do so with success? The next war will be far worse than the last. The terms imposed on the beaten party will be even more desolating and destructive. France is probably a less vigorous plant than her enemy. She has failed to kill Germany, but Germany might succeed in killing her.

It seems that Germany is absolutely bound to fight, if there is no other way of recovering her freedom and her right to live, while France is absolutely bound to hold her enemy down mercilessly, if there is no other way of securing her own safety.

III. THE SOLUTION

But perhaps after all there is. Last among the Fourteen Points came the proposal to found "A general a.s.sociation of Nations under specific covenants for the purpose of affording mutual guarantees of political independence and territorial integrity to small and great states alike."

The Treaty of Versailles has after all two faces. It had to express two great waves of feeling and two international necessities. Mr. Wilson was not so utterly "bamboozled" as Mr. Keynes would have us believe. General s.m.u.ts and Lord Robert Cecil were not so utterly without influence on the settlement. The least depressing paragraphs in the Allied Reply to the German delegation are those in which they explain that the terrific severity of the greater part of the treaty applies only to a "transition period" of punishment, of reparation and of trial, at the end of which they see the realization of Mr. Wilson's promises. "The conditions of peace contain some provisions for the future which may outlast the transition period during which the economic balance"--between Germany and the invaded countries--"is to be restored; and a reciprocity is foreseen after that period which is very clearly that equality of trade conditions for which President Wilson has stipulated." The phrasing of the paragraph is awkward, but the main drift is clear. The Fourteen Points are accepted, but adjourned; when Germany has been punished and reparation made, they will come into force. "The Allied and a.s.sociated Powers look forward to the time when the League of Nations established by this treaty shall extend its membership to all peoples." "They see no reason why Germany should not become a member of the League in the early future," provided she satisfies certain tests. "It has never been their intention that Germany or any other Power should be indefinitely excluded from the League of Nations." They are convinced that the Covenant of the League "introduces an element of progress into the relations of peoples which will develop and strengthen to the advantage of justice and of peace."

This is as it should be; but the world does not stand still while Germany is making reparation and being taught gradually to love her chastisers. If the League "introduces an element of progress," the sooner it gets to work the better. It is only too clear that every month which pa.s.ses with the League entirely dominated by England, France, and Italy encourages and deepens the suspicion with which the League is regarded by its critics. I say nothing of American criticisms, in which many factors cooperate. But the Swiss Federal Council, in the very able and persuasive message which it issued to the a.s.sembly on February 17, 1920, in favour of joining the League, has to deal with this suspicion.

"One has been tempted at times to consider the League as an alliance of the conquerors against the conquered. The fact that Germany, Austria, and the former Russian Empire remain provisionally excluded from the League may have given a semblance of truth to this manner of thinking."

The suspicion is afterwards described as "this apparently accurate criticism." Switzerland as a whole has fortunately rejected the suspicion and by a small majority joined the League. But in most of Central Europe the League of Nations movement is strangled in its birth by the general feeling that the present League means merely the Entente Powers and their clients, and the elements for starting a counter-league are consolidating month by month. This counter-league would probably not be an open and confessed alliance. But Russia, Germany, and the United States are still outside, and there are many unpaid grudges amongst the Moslems of Asia. The test which is exacted by Article I from any new state desiring to become a member of the League is that "it shall give effective guarantees of its sincere intention to observe its international obligations." Interpreted with theological strictness, this would probably result in the rejection of all candidates, to say nothing of the expulsion of many of the original members. Perfect sincerity in observing unpleasant obligations is not a common characteristic of human societies. But in the ordinary sense of the words the test is already satisfied by Germany and Austria and most of the succession states. The a.s.sembly of the League meets for the first time on November 15, 1920. It ought not to dissolve without admitting to its membership Germany and Austria, as well as several other candidates who have already applied. At the moment of writing (November, 1920), Lord Grey, Lord Selborne, and Mr. Barnes have issued a joint appeal for the immediate admission of Germany, which has long been the accepted policy of the League of Nations Union. There are many obstacles, but the result will doubtless be known before these words are in print.

Fortunately, the admission of new members is decided by a two-thirds majority of the a.s.sembly and does not require a unanimous vote. Once the League is established on a broad base, including the conquered nations on equal terms with the victorious, the prospect of that war of revenge which has. .h.i.therto seemed almost inevitable will dwindle and become remote.

The hope expressed above has not been realized. Austria, Bulgaria, and many less important states applied for admission to the League and were accepted, but French feeling was known to be very strong, and Germany did not even apply. Had she done so she would probably have had a majority in her favour, and it was considered until the beginning of March, 1921, that she was certain of admission at the next meeting of the a.s.sembly in September. But in the meantime untoward events have taken place.

The French Government, like the English, obtained success at the elections by wild promises to make Germany pay all the costs of the war.

As M. Poincare has observed, "the French people will not understand how the victors in a great war can be on the verge of bankruptcy."

Consequently they think their rulers are cheating them. Educated people, in France as in England, have long since ceased to expect much from German indemnities, but the Governments still depend on their appeal to mob-psychology; and it was believed that if M. Briand ventured to make any concessions in the direction of reason or moderation he would lose his majority in the Chamber. The proposals made at the Inter-Allied Conference at Brussels and drawn up by the French expert, M. Seydoux, had been silently dropped as unsatisfying; the subsequent British proposals made at Boulogne had been rejected for the same reason. It was necessary, however, to make some definite proposals to Germany without much further delay, since the treaty had laid down May 1, 1921, as the time for a settlement. Germany was by that time to have paid a thousand million pounds on account, and was to learn the extent, finite or infinite, of the total bill. Mr. Lloyd George, as might have been expected, showed much sympathy with M. Briand in his awkward position, and agreed to a demand for reparations on a scale which was obviously fantastic. It began, reasonably enough, with a system of annuities, though the first figure was probably too high and the last figures can scarcely have been meant seriously. Germany was to pay 150,000,000 a year for the first five years; then the annual sum was to increase at intervals for the extraordinary period of forty-two years, towards the end of which time Germany was expected to pay annually 300,000,000, or half as much again every year as the total indemnity exacted from France after the war of 1870. Even that was not enough for a population which had been sedulously fed on lies by a cla.s.s of politician who at times seem to possess among them no single sane and honest man. And an additional payment was demanded of a yearly sum equivalent to a duty of twelve per cent _ad valorem_ on all German exports.

Opinion in Germany was sharply divided. All they had to pay with was an enormous deficit on the Budget, with the prospect of presently losing the Silesian coal-mines and having prohibitive duties placed by the Allies upon their exports. One party insisted that the Government should make no promise which it could not expect to perform; another, that what Germany wanted was peace, and that they had better sign anything required of them. The first party, on the whole, carried the day. The German delegation in London made a counter-proposal based, very sensibly, on the idea of finding the present value of the forty-two-year annuities and raising that sum by means of a loan; but as they worked out the idea they favoured Germany on every detailed calculation to an extent which they must have known to be unacceptable. Apparently they expected a long and serious bargaining march. But, to most people's surprise, Mr. George leapt with alacrity at the prospect of a rupture.

The proposal was rejected with every semblance of virtuous indignation.

No time was allowed for the delegation to consult the German Government.

A hurried second proposal, to pay the terms demanded for five years and then have the matter reconsidered, was tossed aside without consideration, and French and British troops proceeded to invade Germany, occupy more territory, and set up a new and artificial customs-barrier in the most unsuitable places, at which they proceeded themselves to collect the German customs.

The plan is very expensive, and utterly unprofitable. It involves a straining if not a breach of the treaty,[3] and it is likely, if any untoward event occurs, to provoke a war of the most humiliating and embittered kind--the war of a desperate and helpless population trying to rid themselves of foreign oppressors. But it has saved M. Briand's Government. If he had agreed to accept any German terms whatever, he would have been upset for not exacting more. But if he marches French and British troops into the heart of Germany no one can accuse him of lack of spirit. So for the present all is well; and as for the future, it is conceivable that the Germans will give way and make some impossible promise. That will increase M. Briand's prestige. It is more likely that they will simply sit still and let the Allied armies do their worst. Then there will be a chance of carrying out one of the darling aims of the French chauvinists, and annexing, or at least separating from Germany, all the German provinces which they occupy.

[Footnote 3: The Allies are apparently acting under Part VIII, clause 18, of the treaty. This gives them the right to "take such other measures as the respective Governments may determine to be necessary" in case of "voluntary default" by Germany in the payment of her dues under Part VIII (Reparations). A failure by Germany to disarm sufficiently gives the Allies no right to increase the area of their occupation, since the present occupation is specifically laid down in the treaty negotiations as the means of enforcing disarmament. Nor has Germany yet actually committed a voluntary default in the payment of her reparations, since the first payment, 100,000,000, is not to be completed until May 1, 1921. I am informed on high authority that the Allied case probably rests on the point that they judge by their debtor's manner and by statements which she has made that she intends not to pay by May 1; according to English law this would apparently give them some right of taking immediate action.]

In face of these lunatic proceedings the German Government has behaved with considerable dignity and good sense, though naturally the German newspapers are running a little wild. It has announced its intention of appealing to the a.s.sembly of the League of Nations, and although, not being a member, Germany cannot herself raise the subject, it may be taken as certain that some member will take it up on her behalf. This produces a most critical situation.

According to the Covenant, Article III, the a.s.sembly may be summoned to meet "from time to time as occasion may require." But presumably it is the Council which decides whether occasion does require it or not, and no one can expect the Council to favour Germany's appeal. The appeal will only be considered when the a.s.sembly has its next regular meeting in September. We shall then see whether the a.s.sembly possesses the force and courage necessary to discuss freely and, if necessary, to condemn the actions of the two leading European Powers; or if the two can successfully silence all criticism. For my own part I think the discussion will take place; and that, for the first time since the war, the voice of an impartial third party wilt be heard in discussing the terms imposed on Germany by her conquerors. That does not mean the realization of the "enthronement of public right on the common law of nations," but it is one of the first steps toward it.

The League of Nations is in a position to say to France: "You are afraid of another attack by Germany; and to avert that danger you propose in various ways to follow a policy which will plunge Europe into continued distress. We hereby guarantee you against attack. Thirty-nine nations at present, who will shortly be increased to fifty-one, if not more, have signed a definite and unqualified contract to preserve your 'existing political independence and territorial integrity' against any 'external aggression'; and further, if you are attacked in such a way as not actually to threaten your territory or independence, all the States of the League will consider that an act of war has been committed against themselves, will apply the complete economic boycott to your enemy, and arrange plans for giving you immediate military support. We offer you here a far more effective guarantee of safety than you can possibly attain by your own diplomacy. But we demand in return that your foreign policy shall be frankly and sincerely a League of Nations policy; that you shall not make secret treaties, not set up inequitable tariffs, not plot the ruin of your late enemies or any other people; but work as a loyal member of the League with a view to the welfare of the whole."

The League says to Germany: "You complain of the undue severity of the treaty and the impossibility of carrying out its economic provisions.

Commissions already exist, and you have taken part in them, for discussing these latter and fixing the terms of the reparation which you owe. But, beyond that, if there is any clause in the treaty which appears to any member of the League as 'threatening to disturb international peace or the good understanding between nations upon which peace depends,' it will, under Article XI, be brought before the League and considered. Further, if any clause in the treaty appears to 'have become inapplicable' or to give rise to 'international conditions which might endanger the peace of the world,' under Article XXIII the a.s.sembly of the League may at any time 'advise their reconsideration.' You complain that the terms of the present treaty were imposed upon you, without discussion, by implacable enemies who had you at their mercy; that you have been made a sort of outlaw nation, without freedom, without colonies, without ships, sitting apart while the world is administered by your enemies. But at our a.s.sembly table you will sit as an equal and free member, with the same rights as those who were lately your conquerors. We submit to you that this gives you a far better chance of improving your condition than another war could. Your lot must be for some time a hard one. That is inevitable, and we cannot think it unjust. You challenged the Entente to war, you staked all on victory, and you were beaten. Now you have to make reparation. But the recuperative power of a great nation is immense; and wherever you have been subjected to a definitely unjust or dangerous condition, we offer you a remedy. Wherever you may have a dispute with any other Power, we offer you a Court of Arbitration as impartially const.i.tuted as the wit of man could devise."

At present neither party quite believes this guarantee. If they did, it would probably be enough for them. It used to be said of Sir Edward Grey in the Balkan Conferences that he was not only sincere; he had the power of making other people see that he was sincere. If Europe is to be saved from new Great Wars, the Powers of the League must first of all be sincere in their undertakings, and next, they must convince the world in general of their sincerity. To that subject we must return later.

CHAPTER II

THE EAST

But the world is not merely threatened by the prospect of future wars.

It is filled with wars at the present moment. There are quarrels and bickerings between most of the newly liberated states in eastern Europe; there is a war, sometimes avowed and sometimes underground, between Communist Russia and all her neighbours and rivals, a war whose tentacles reach far throughout Europe and Asia; and there are wars against the British and French in various parts of the East. Let us briefly touch upon a few sample cases.

I. SYRIA, MESOPOTAMIA, EGYPT, AND INDIA

The simplest case is Syria. In 1915, during the war, a Syrian National Committee, including representatives from Damascus and Mosul, negotiated with us through Sherif Husein, and we signed a doc.u.ment promising to "recognize and uphold Arab independence" in an area including the whole of Arabia, Palestine, Syria, and Mesopotamia, except (1) Aden and (2) the Syrian coast. Within the independent area we merely claimed for ourselves "a measure of administrative control" in Bagdad and Bosra--not in Mosul--and reserved any special interests of France. The French were informed of the negotiations immediately. They expressed themselves content with the possession of the Syrian coast, and agreed in our promises to Husein. On the strength of this agreement the Hejaz revolted, and Feisul's army, consisting mainly of Syrian and Mesopotamian soldiers who had formerly been in the Turkish service, fought as our allies to the end of the war. An attempted rising in Syria proper was crushed with great severity by the Turks.

In 1918 the Syrians welcomed the Entente armies as liberators, and were again promised their national independence, though this time it was to be under the guidance of one of the Entente Powers as mandatory. They asked that the mandatory should be England, but England had too much on her hands. The Syrians next asked for America; but America refused all mandates. France, meantime, had always claimed special rights in Syria, and England by a treaty made during the war had recognized Syria as a French interest. If they must be under France, the Syrian representatives specially demanded pledges that the government should be a civil government, that a certain degree of independence should be allowed to the natives, and that the country should not be occupied by French troops. How far these pledges were given and broken by the French; how far it was only we ourselves who gave a.s.surances which we had neither the right nor the power to carry out, and thus unconsciously deceived Feisul, these are questions still in dispute. It seems unfortunately certain that the Syrians considered themselves betrayed.

In the end, Syria was occupied by French troops; the native government was not recognized, but dispersed; there were raids and pitched battles, and the Emir Feisul, one of our most popular heroes during the Great War, was expelled from his throne and country. He is now an exile, and was for a time officially forbidden to land in England.

France so far has neither accepted nor asked for any mandate from the League of Nations, and appears not fully to realize the obligations undertaken by her in signing the Covenant of the League, or the pledge repeated in the Reply of the Allied Powers to Germany, "that the Mandatory Powers, in so far as they may be appointed trustees by the League of Nations, will derive no benefits from such trusteeship."

In Mesopotamia the British established themselves during the war after a long and chequered campaign by defeating the Turks and capturing Bagdad.

The Indian soldiers and officials who were in command showed the most praiseworthy zeal and energy in proceeding at once to develop the country: to drain and irrigate, to plant crops, to establish order and good government in regions which had not known such things since a remote antiquity. The English were welcomed as liberators and made explicit promises to set up an independent Arab kingdom under a "measure of British administrative control." So much propagandist literature was poured forth on the glories of the independent Arab nation which the English were to create, that serious discontent was caused in Egypt. "Is a half-naked Arab to have independence, and am I not good enough to have even self-government?" wrote a highly educated Egyptian to a British official. Meantime the actual government of Mesopotamia became more and more severely effective, and remained entirely concentrated in the hands of the British. The expenses were enormous and the rate of taxation per head appears to have risen to four times what it had been under the Turks. The productivity of the country, however, was so great as to hold out a prospect of almost making up the loss, and the important oil-wells at Mosul were expected to do so completely. The native cultivators profited by the improved harvests and the increased area of cultivation, and the expenses of government were in part to be met out of the future oil profits. And the best British administrators were certainly beloved by their people.

The educated cla.s.ses in Bagdad, the sheikhs and the ex-Turkish officials, became restive at the high taxation and the indefinite delay of "Arab independence." The turbulent desert tribes and the disorderly elements in general were disgusted at the good policing. But there was no general discontent, because personal a.s.surances were given to leading Arabs that the Covenant of the League of Nations, which Great Britain had signed, laid down definitely that Mesopotamia was to be recognized provisionally as an independent nation and that the mandate was to be given to Great Britain. There would be, it was promised, a native Government with a British Resident to advise it, as in an Indian native state. Doubtless the Government would also ask for other help from England, especially in the matter of public works, irrigation, and the engineering of the oil-wells.

But the League issued no mandate. According to rumour, it had offered a scheme of mandate to the Great Powers concerned, and one at least of them had refused the terms. The precious oil, it was discovered, had already been divided by a private treaty between France and England, which left only a small fraction for the Mesopotamians and none for the rest of the world. There was no attempt to set up an Arab Government.

Some beginnings were occasionally made of a.s.sociating Arab officials with the Englishmen who did the real work of governing. But they were not whole-hearted. A letter was accidentally divulged in which an English soldier said of the high Arab official attached to him, "I will soon make him lick my boots." There were symptoms of disaffection, non-payment of taxes, the resurgence of old discredited Turkish and German agents, open rebellions. And the Government replied by numerous executions and punitive expeditions. The bombing aeroplane, which had revealed itself as a very convenient weapon of war, proved an utterly disastrous instrument of police. The British liberators, who had come by the special desire of the population to establish a free Arab nation helped by friendly advice from British Residents, ended, according to Colonel Lawrence's estimate, in killing ten thousand Arabs and setting the whole country in a blaze of war. An army of over one hundred thousand men is now reconquering it. And at the same time, perhaps at the eleventh hour and perhaps too late altogether, that section in the British Government which believed in the League of Nations and wished scrupulously to carry out in victory the pledges it had given in time of distress, prevailed to bring about a definite change of policy. Sir Percy c.o.x and Mr. Philby were sent to Mesopotamia with instructions, so it was stated, to reverse the previous policy and try to set up that independent Arab Government which we had promised in 1915 and again in 1917, and ought to have set working before the end of 1919. The "rebellion" will doubtless be crushed, and the native Government may or not be successfully organized. There is a strong desire among the Arab leaders to have it based on a treaty of alliance with Great Britain after the Egyptian model, and not on Article XXII of the Covenant. In any case the task is infinitely more difficult than it was before so much blood was shed, and the original friendship of the Arabs turned to hatred. On simple men executive action makes a much deeper impression than policy. In Mesopotamia our policy itself was bad because it was not consistent. It was a muddle of two contradictory policies, resulting in confusion and hypocrisy. But the executive action seems to have been such as to make the chances of even the best policy very precarious. A government which multiplies the taxes by four and shoots and hangs its subjects in batches is seldom excused because of its good drainage or its progressive ideas.

The story in Egypt is shorter and perhaps less unhappy, but essentially similar. Early in the war, when Turkey joined the enemy, we declared a British protectorate over Egypt, accompanied by a promise to give the country independence or free inst.i.tutions at the end of the war. This in itself was a perfectly good and defensible policy, though, to be correct, it should have had the concurrence of Egypt. But in the course of the war Egypt became full of discontent. Experienced officials were wanted elsewhere, and inexperienced subst.i.tutes made mistakes. Labour in great quant.i.ties was required for the Army, and was obtained through native contractors or headmen, who practised the ordinary Oriental methods of extortion and corruption while professing to act by orders of the English. The peasant who was dragged off to forced labour, or compelled to buy his freedom by heavy bribes, blamed the British for both. At one time Egypt was garrisoned by large numbers of Australian troops, who had the habit of thinking of all Asiatics as "blackfellows,"

and whose ways of dealing with "blackfellows" were not of the gentlest.

The seed was thus sown of a pa.s.sionate hatred, partly just and partly unjust; and feeling was already ripe for explosion when it transpired at the end of the war that the British Government had no apparent intention of fulfilling their promise to confer on Egypt "free inst.i.tutions." Open rebellion was impossible, owing to the presence of overpowering numbers of British troops; but a time of danger and infinite trouble, well controlled by Lord Allenby, led at last to the appointment of a Commission under Lord Milner, which grasped its almost desperate problem with great courage and skill.