The Problem of Foreign Policy.

by Gilbert Murray.

PREFACE

The publication of this little book was interrupted by an incident which made me realize how easy it is for one who spends much time in trying to study sincerely a political problem to find himself out of touch with average opinion. The discovery has made me re-read what I have written.

But re-reading has not led to any weakening of my expressions, rather the reverse. I wish only to make a brief general statement about the point of view from which I write.

I start from the profound conviction that what the world needs is peace.

There has been too much war, and too much of many things that naturally go with war; too much force and fraud, too much intrigue and lying, too much impatience, violence, avarice, unreasonableness, and lack of principle. Before the war I was a Liberal, and I believe now that nothing but the sincere practice of Liberal principles will save European society from imminent revolution and collapse. But I am conscious of a certain change of emphasis in my feeling. Before the war I was eager for large and sweeping reforms, I was intolerant of Conservatism and I laughed at risks. The social order had then such a margin of strength that risks could safely be taken. Now I feel a need above all things of the qualities that will preserve civilization. For that preservation, of course, Liberality in the full sense is necessary, and constant progress and a great development of democracy.

But what is needed most is a return to a standard of public conduct which was practised, or at least recognized, by the best Governments of the world before the war, and which now seems to have been shaken, if not shattered. I am not demanding in any wild idealist spirit that Governments should act according to the Sermon on the Mount--though they well might study it a good deal more than they do. I am only saying that they must get back to the standard of veracity, of consistency, of honesty and economy, and of intellectual competence, that we had from Peel or Lord Salisbury or Gladstone.

I do not say that is enough. It is emphatically not enough. We need in foreign policy and home policy a higher standard than we had before, the standard implied by the League of Nations in international affairs and the ideal of Cooperation in domestic affairs. But the first thing is to recover our wholesome tradition.

I think few serious students of public affairs will dispute that the long strain of the war, confusing our ideas of good and evil, and at times centring our hopes upon things which a normal civilized man regards with loathing, has resulted in a widespread degradation of political conduct. Things are done now, in time of peace, which would have been inconceivable before 1914. And they are done now because we grew accustomed to worse things during the war. I do not wish to attack any individuals; but, as an instance of what I mean, one finds a Ministerial newspaper complacently remarking that certain country towns sacked by the police in Ireland were very small and poor places in any case, and the sacking not nearly so complete as the sacking of Belgian towns by the Germans on less provocation. I find to-day (November 4, 1920) the Chief Secretary for Ireland announcing in the House of Commons that he has had a court of inquiry into the alleged murder of John Conway by the police, and presenting an official report that Conway "died from natural causes"; while at the same time the _Times_ special correspondent writes: "I went to the cottage in Rock Street of John Conway, who was shot on Monday evening, and saw him lying on his bed with a bullet wound in the temple." This is one case out of dozens. It is not a slip or an isolated crime. I put it to any man who can remember the years before the war that this represents a startling degradation of the standard of government. Such things used to happen in Mexico; now they happen in Great Britain.

Of course I supported the war. I believe it was necessary. I make no self-righteous claim to throw the guilt of it upon others, who did the fighting by which I and mine were saved. Let me therefore try to make clear why certain things shock me profoundly, while I supported others which can loosely be called "just as bad."

One of the worst things about war, as Thucydides has remarked, is that it takes away your freedom and puts you in a region of necessity. You may choose whether or not to fight; but, once fighting, your power of choice has gone.

Take the treaty with Italy in 1915. Italy demanded a certain price, if she was to come into the war on our side. Another party in Italy was negotiating with the Germans, to see what inducement could be offered for Italy to come in on the other side. (I make no complaint whatever of the conduct of these Italian statesmen; they naturally consulted the interests of their country.) The price was high, and involved the transference to Italy of territory to which, on principles of self-determination, she had little claim. But who could refuse the price? War "is a violent master and teaches by compulsion."

Take the blockade of Germany. It was a slow and somewhat cruel weapon to employ, falling most severely on the most innocent cla.s.ses. But Germany was trying to blockade us, and only our superior strength and skill at sea caused her plan to fail. It was part of the normal means of war, and of course we used it.

Then came an extension of it. Poland, most unhappy of European nations, was swept by alternate armies, conquered by the Germans, devastated and laid bare. The Poles were our allies. Our newspapers had accounts of the appalling distress in Poland--the roads strewn with skeletons, the almost complete blotting-out of children under seven, and the like. The Americans proposed to send food for the relief of the Poles. But we made objection. We did not allow food to go into Poland, to save our own allies, who were starving. Why? Because the Germans were still taking from the miserable country all the food they could wring out of it. And if the Americans brought in more food, undoubtedly the enemy would take more. There was no choice. We had to refuse the entry of the food ships.

But the man who had to sign that order may well have wished he had died before the need came to him.

These results and necessities of war, though I have chosen none of a sensational kind, are very horrible. It is not easy to think of actions much more horrible. But they are not exactly crimes, they are not marks of degradation in those who order them, because they are done under the compulsion of war. The alternative in each case is something equivalent to helping the enemy.

At the end of the war, after the signing of an armistice on the basis of the Fourteen Points, there came at last a moment of free choice. It came after five years of unspeakable waste--five years during which the nations of Europe had become habituated to cruelty and "all pity choked with custom of fell deeds." I am anxious to avoid the faintest semblance of heat or exaggeration, but I think it can hardly be disputed that practically every economist agreed that Europe was on the brink of economic ruin and could only be saved by a quick revival of trade; every man of conscience, irrespective of political party, knew that the first condition for the recovery of civilization was a change from the war mind to the peace mind. Such a change could not happen in a night. It must needs be gradual. It could only be brought about by a strong and persistent lead from those who possessed the ear of the world and the confidence of their own people. Never in the whole course of modern history has there been a more magnificent opportunity than then lay before the British Prime Minister, never has there been a clearer call of plain duty. He was free, as men in public life are seldom free. Great Britain hung on his lips, and Europe was waiting for the lead of Great Britain. It was for him to choose plain good or plain evil. And he chose, deliberately, evil. He dissolved Parliament and appealed to the country in a General Election on a programme of frantic war pa.s.sion, coupled with promises which he knew to be false, and which were ridiculed by every educated man among his surroundings. This man had before him a task and an opportunity so glorious that one can scarcely speak of it except in the language of religion. Many ordinary men would willingly give their lives if they could save their fellow creatures from sufferings and perils far less terrible than those which then threatened. And he could have saved them without any sacrifice. It needed only a little courage. For a week or ten days he hesitated. Then on December 11 he proclaimed his programme: the Kaiser's head; the punishment of enemy war-criminals; Germany to pay the whole cost of the war; Britain for the British; rehabilitation of those whom the war had broken.

At the time when this programme was put forward I felt bewildered. I did not realize that any one could be, I will not say so wicked, but so curiously dest.i.tute of generous ambition, so incapable of thinking greatly. And when I tried to find out what motive could lie at the back of a failure so incredible, I was told by his supporters that the Prime Minister was not thinking about the matters of which I was thinking. He was trying to get a very large majority in the House of Commons and to crush his old colleagues, and conceivable rivals, entirely out of existence. Of course he succeeded.

I hope I have put this statement forward without any malice or party feeling. The state of the world is far too serious to permit of either.

And I hope that the profound and burning indignation which I undoubtedly feel has not biased my judgment. In any case, the conclusion that I wish to draw is not a personal but a general one. I doubt if such action would have been possible before the war in any const.i.tutional statesman, not to speak of a clever and humane man like Mr. George. I doubt if the public opinion of any nation would have endured it. A nation in which such conduct is tolerated, and even approved, ought surely to pause and bethink itself. For it is not a particular reckless or unfortunate act which is thus condoned; it is a way of behaviour. It is a way of behaviour which has its origin in the methods of war, and of which the characteristic is that it gives the unscrupulous man the advantage over the scrupulous man, the cheat over the honest player, the violent and the criminal over those who obey the law. It fosters exactly those things which it is the business of civilized society to prevent. There are always lawless and dishonest men in every large community, as there are criminals in every army. There are always men who make profit out of their neighbours' extremity, who use advertis.e.m.e.nt to stifle truth, who jeer at all that is higher than themselves. But in a good social order they are not influential. They acquire power only in a society which, in external conduct, is losing its traditional standards and inwardly, in the words of Tolstoy's great condemnation, has forgotten G.o.d.

My criticism here is directed against my own country, and in particular against the British Prime Minister, not in the least because I have any anti-British bias. On the contrary, I think that in most of the international problems of Europe the influence of Great Britain, and in particular of the British Prime Minister, is generally an influence for good, though not nearly such a strong and clear influence as it might be. I confine these criticisms to our own policy because the scolding of foreign countries is a notoriously profitless task. The only criticism that has any chance of being useful is that of matters for which the critic or his readers have some degree of responsibility.

I believe profoundly in the traditions of Liberal England. As every one knows who has cared to read my writings, I look to the League of Nations as the main hope of the world, and to the British Commonwealth as the mainstay of the League of Nations. But, if it was ever doubtful, it is surely clear in the present state of the world that the Commonwealth cannot rest upon any secure foundation except the good-will of its members. And that good-will in its turn depends upon equal law, good government, and good faith.

It is not a new lesson that we have to learn: it is an old lesson that good Englishmen once knew better than any rulers the world has ever seen, though five years of madness have made it largely forgotten. But, as Lord Grey has said, the choice now before us is absolute; we must learn or perish.

It is in this belief and this spirit that I have written the following pages, which I hope, except to those who still live in some unsubstantial paradise of war-bred delusions, will cause no permanent offence, nor leave the impression that where I think others have made mistakes I imagine that I should make none.

Readers will see that I have aimed throughout at simplicity of outline.

I have deliberately focused attention on the one central problem, how to avoid the causes of international strife. And out of the many and multifarious difficulties that confront our hara.s.sed Foreign Office to-day, I have concentrated on a few typical cases. I have omitted, for instance, any discussion of Turkey, Armenia, Persia, Ireland, and the relations between Great Britain and the United States. I have omitted Africa, where, unless the white man's methods of administration are reconsidered, one of the gravest of the world's future dangers may soon be in fermentation. And I have said nothing of the economic problem in Europe, especially in Austria. The International Financial Commission, summoned at Brussels by the League of Nations, has issued a report on this matter which no government can afford to neglect. Its first recommendations are disarmament and freedom of trade, but they will not be enough without some system of international credits by which production may be set going among those populations which at present have neither food nor raw materials nor the means of buying them.

Since an edition of this little book is asked for in America I feel constrained to add a few words to the Preface. It will be seen that I have said nothing about two subjects of the first importance, the Irish Question and the relations between Great Britain and the United States.

The Irish Question is, under present conditions, a domestic matter, since Ireland forms by law part of the United Kingdom and has the right of full representation in the British Parliament. It only touches foreign policy through its effect on foreign opinion.

I do not therefore propose to discuss the Irish Question here.

Personally I believe that a favourable prospect of settlement is to be found in the policy advocated by Mr. Asquith and Lord Grey, and loosely called "Dominion Home Rule." This would put Ireland roughly in the same position as the self-governing British colonies, and would at once have two very important effects. It would put an end to the present oppressions and would give Ireland the right to a seat at the a.s.sembly of the League of Nations. But I fear that no settlement whatever is possible in Ireland until the present Government is replaced by some other with more sincerity in its purpose and less blood upon its hands.

The accounts of British misdeeds which I read in the Sinn Fein Bulletin and in some American newspapers appear to me to be both exaggerated and one-sided. Men exasperated by persecution are not as a rule capable of giving a perfectly fair and benevolent account of the behaviour of their persecutors. But in spite of the Government's policy of rigorous concealment, the Irish can now appeal to the evidence of a witness as nearly unimpeachable as can be expected in human affairs, a County Court Judge appointed originally by the British Government itself. Judge Bodkin, in a report submitted to the British Government on cases of crime which came before his Court in Clare County at the Hilary Sessions of 1920, states: "There were in all 139 cases in which it was proved that the criminal injuries were committed by armed forces of the Government, and only in the five cases already mentioned were any witnesses examined to justify, deny, or explain. In no case was there any evidence to suggest that the victims had been guilty of any offence."

In answer to a report like this the Government allows no public inquiry, inflicts, so far as is known, no punishment on the criminals, awards no compensation to the victims, and yet does not take any legal steps against its accuser. Such conduct does not seem compatible with innocence. Indeed the complicity of the Government, particularly of Mr.

Lloyd George and Sir Hamar Greenwood, in the system of illegal outrages called "reprisals" is no longer disputed, and has especially been brought out in Parliament by a conservative member, Mr. Oswald Moseley.

The exact degree of complicity is, of course, open to doubt. If I may give my own opinion for what it is worth, I suspect that at some time when the Irish police forces were disposed to resign or to strike owing to the constant danger of a.s.sa.s.sination in which the Government's policy required them to live, the Government gave their officers some a.s.surance that, if they would only stay on, their own conduct in dealing with Sinn Feiners would not be too closely scrutinized. That was the usual method pursued by the Czar's Government when arranging pogroms.

The defence of the British Ministers is that they were faced from the outset by a very difficult situation, owing to the irreconcilable differences between the northeast corner of Ulster and the rest of Ireland. Anxious for Tory support they gave pledges, the exact tenor of which has not been divulged, to Sir Edward Carson, the Ulster leader, and thus tied their own hands. The condition of Ireland became increasingly embittered, till, shortly after Sir Hamar Greenwood's appointment, the extreme Sinn Fein party, refusing parliamentary action and unable to meet the English in battle, adopted a policy of a.s.sa.s.sination. The Government, much embarra.s.sed, did just what most bad governments generally have done in other parts of the world. They tried to stamp out the Sinn Fein terror by organizing a terror of their own, meeting crime by still more formidable crime, and recklessly confusing the innocent with the guilty. At last they have succeeded in uniting all Catholic Ireland in such detestation of the British name that an Irishman will now never betray another Irishman, however guilty, to the British police, nor even feel that the killing of an Englishman is quite the same thing as murder. "Things being in this state," the Government pleads, "how can we be expected to govern Ireland according to civilized standards?" The answer is that they cannot, and had better make room for another Government which can.

I cannot tell how great an effect this Irish calamity has had in embittering the relations between America and Great Britain. I would only venture to lay before Americans of moderate views my conviction that the great ma.s.s of educated opinion in England joins with the Free Liberals and the Labour Party in utterly condemning the Government's Irish administration. This conclusion is derived from personal conversation with people of various parties, and from the overwhelming anti-Government votes in the bye-elections, and the increasing protests and rebellions among the Government's supporters in Parliament. I have to admit that this condemnation is not reflected in the House of Commons as a whole, an utterly abnormal House elected in a moment when not only the fever of war, but many other fevers and corruptions of the body politic were at their height. It is not even reflected adequately in the press. For the press in England, with a few most honourable exceptions, is in the hands of a small number of individuals who--to say the least of it--were not elected to their present position of power by the confidence of their countrymen nor appointed thereto on grounds of intellect or character or public spirit. England is admittedly not in a very healthy state of mind. But, even now, at her worst, she is a far better and more decent country than could be concluded from either the London press or the House of Commons.

The picture I have given of European affairs may, I can well see, be taken in either of two ways by an American. It may well confirm his determination to keep absolutely clear of a world at once so ill-directed and so miserable. The case for American isolation is very easy to state and to understand. What is there to attract America towards further cooperation with any of the larger European nations?

France? I can imagine no sane statesmen wishing to be drawn into the orbit of France in her present mood or with her present prospects.

Germany? The existing German Government seems good, but old enmities do not so quickly die down, and Germany has still to prove that she is an honest and a peaceful power. Russia? To ask the question is to answer it. England? Who would wish to cooperate with the British Government in holding down Ireland by "compet.i.tion in crime," in reestablishing her slippery grasp on Mesopotamia, laboriously pacifying India and Egypt, and struggling indefinitely against Russian conspiracies to destroy her influence in the Moslem world? How can an American wish to remit England's debt to America when she is at this moment invading Germany in order to collect "to the last farthing" a claim which the American delegates at the Peace Conference rejected as extortionate? And who would wish to increase the wealth of a Government which, immediately after the War to end War, is lavishing all it can afford, and more, on armaments and military expeditions? Other less plausible arguments could easily be added. The suggestion, for instance, that this country, or any party or any fraction of a party in this country, intends or ever intended to use the j.a.panese Alliance for a war against the United States is the merest moonshine, and has been repeatedly disproved by the terms of the old treaty and by the public statements of both parties.

But, taking only arguments that have some basis of truth, the case for American isolation is very strong.

And yet it is the wrong case. It is based, I venture to think, first on a misunderstanding, and next on too narrow a point of view. A misunderstanding; because it is not cooperation in that sense which is asked of her. She is not asked to support the policies of any European nation. The League of Nations is not an alliance. She is asked only to sit in council with the other nations--as free and unpledged as they, or, if she wishes, still more so--to help those who have suffered, and are in part still sick in body and brain with their suffering, to face the vast problems which now confront mankind, and which the rest of us have pledged ourselves to face in the spirit of peace and justice and common sense which we thought was characteristically American. It is based on too narrow a view, because all summary judgments of foreign nations are that, whether they end in praise or blame. "La n.o.ble, l'incomparable Angleterre" of M. Briand is just as remote from fact as the "brutal and b.l.o.o.d.y Britain" of Mr. Hearst. Nations are made up of ma.s.ses of individuals, who differ among themselves within each nation just about as much as the citizens of one nation differ from those of another. In every nation there are numbers of criminals and numbers of fine men. In every nation's past there are black places and white. Only it so happens that just now, after a time of hideous suffering and wrong-doing, in the midst of a time of savage resentments and pa.s.sions and great material difficulties, the nations of the world are from the depth of their hearts longing for some way of avoiding war and treating one another in future a little more openly and fairly than they have in the past. They know they must have disputes, and that when the disputes come it is one of two things; they must either talk them out or fight them out. They are meeting to talk them out. But how can the talk be quite frank and free, or how can the promises of peace and fair dealing carry full conviction, while the greatest and the least wounded of all the nations refuses to join in them, but sits aloof in silence, from time to time sharpening her sword?

G. M.

CHAPTER I

GERMANY AND FRANCE

I. THE PREDICAMENT OF GERMANY

A friend of mine was recently travelling in Germany in a third-cla.s.s railway carriage. The engine was slow and in lack of oil. The carriages, once so clean, warm, and well lighted, were unlit, dirty, and bitterly cold. There was an air of broken nerves and misery among the pa.s.sengers, and one woman was still sobbing from some indignity offered to her by a foreign official in the occupied area. Presently an old gentleman, apparently a lawyer of some eminence, broke out: "A reckoning must come.

My little grandchildren are drinking in revenge with their mother's milk. In thirty years or thereabouts we shall settle accounts with France, and then we shall make"--he swept the air with his hand--"_tabula rasa!_"

"Herr Justizrat," answered a younger man, "did you take part in the war?

I think not--you would be over the age. I was in the war for four years.

... I agree with you that, in all probability, in thirty or forty years we shall settle our account with France and make _tabula rasa_.

And in thirty or forty years after that France will have her reckoning with us and make _tabula rasa_ of Germany; and then we again, and so on.

But, if you will excuse me, Herr Justizrat, I do not find in the prospect any of the satisfaction which it appears to give you."

An incident of this sort may be significant or may not. It may be typical or may be exceptional. But my friend's experience seems exactly to agree with the report made by Herr Simons to the Reichstag in the last week of August, 1920, upon the att.i.tude of the German Government towards the war then proceeding between Poland and Russia. The Entente Powers had invited Germany to take certain unneutral steps on the side of Poland; the Government had, as a matter of course, refused. The Soviet Government had also invited Germany to join in the war on their side, holding out the hope that such action by Germany would precipitate a Bolshevik revolution in Poland and other parts of eastern Europe and lead to an alliance capable of defying the Entente. The German Government, said Herr Simons, carefully considered these proposals, as it felt bound to consider any possible prospect of escape for Germany from the intolerable servitude imposed upon her by the Peace of Versailles, but decided that it was not in the public interest to accept them.

Thus the German Foreign Minister, a man respected by all parties, expresses in sober and thoughtful language much the same sentiment as the Justizrat in his pa.s.sion. The Peace of Versailles has, like most settlements imposed by conquerors upon their beaten enemies, produced a condition so intolerable that the vanquished must be expected to seize the first favourable opportunity for fighting to free themselves. It has sown the seeds of future war.