Essays in Liberalism.
by Various.
PREFACE
The papers contained in this volume are summaries--in some cases, owing to the defectiveness of the reports, very much abridged summaries--of a series of discourses delivered at the Liberal Summer School at Oxford in the first ten days of August, 1922. In two cases ("The State and Industry" and "The Machinery of Government") two lectures have been condensed into a single paper.
The Summer School was not arranged by any of the official organisations of the Liberal party, nor was any part of its expenses paid out of party funds. It was the outcome of a spontaneous movement among a number of men and women who, believing that Liberalism is beyond all other political creeds dependent upon the free discussion of ideas, came to the conclusion that it was desirable to create a platform upon which such discussion could be carried on, in a manner quite different from what is usual, or indeed practicable, at ordinary official party gatherings. From the first the movement received cordial support and encouragement from the leaders of the party, who were more than content that a movement so essentially Liberal in character should be carried on quite independently of any official control. The meetings were inaugurated by an address by Mr. Asquith, and wound up by a valediction from Lord Grey, while nearly all the recognised leaders of the party presided at one or more of the meetings, or willingly consented to give lectures. In short, while wholly unofficial, the meetings drew together all that is most vital in modern Liberalism.
In some degree the Summer School represented a new departure in political discussion. Most of the lectures were delivered, not by active politicians, but by scholars and experts whose distinction has been won in other fields than practical politics. One or two of the speakers were, indeed, not even professed Liberals. They were invited to speak because it was known that on their subjects they would express the true mind of modern Liberalism. Whatever Lord Robert Cecil, for example, may call himself, Liberals at any rate recognise that on most subjects he expresses their convictions.
As a glance at the list of contents will show, the papers cover almost the whole range of political interest, foreign, domestic, and imperial, but the greatest emphasis is laid upon the problems of economic and industrial organisation. Yet, since it is impossible to survey the universe in ten days, there are large and important themes which remain unexplored, while many subjects of vital significance are but lightly touched upon. Perhaps the most notable of these omissions is that of any treatment of local government, and of the immensely important subjects--education, public health, housing, and the like--for which local authorities are primarily held responsible. These subjects are held over for fuller treatment in later schools; and for that reason two papers--one on local government and one on education--which were delivered at Oxford have not been included in the present volume.
It must be obvious, from what has been said above, that these papers make no pretence to define what may be called an official programme or policy for the Liberal party. It was with study rather than with programme-making that the School was concerned, and its aim was the stimulation of free inquiry rather than the formulation of dogmas. Every speaker was, and is, responsible for the views expressed in his paper, though not for the form which the abridged report of it has a.s.sumed; and there are doubtless pa.s.sages in this book which would not win the a.s.sent of all Liberals, for Liberalism has always encouraged and welcomed varieties of opinion.
Nevertheless, taken as a whole, these papers do fairly represent the outlook and temper of modern Liberalism. And the candid reader will not fail to recognise in them a certain unity of tone and temper, in spite of the diversity of their authorship and subject-matter. Whether the subject is foreign politics, or imperial problems, or government, or industry, the same temper shows itself--a belief in freedom rather than in regimentation; an earnest desire to subst.i.tute law for force; a belief in persuasion rather than in compulsion as the best mode of solving difficult problems; an eagerness to establish organised methods of discussion and co-operation as the best solvent of strife, in international relations and in industrial affairs quite as much as in the realm of national politics, to which these methods have long since been applied.
That is the spirit of modern Liberalism, which gives unity to the diversity of this little volume. As has often been said, Liberalism is an att.i.tude of mind rather than a body of definitely formulated doctrine. It does not claim to know of any formula which will guide us out of all our troubles, or of any panacea that will cure every social ill. It recognises that we are surrounded in every field of social and political life by infinitely difficult problems for which there is no easy solution. It puts its trust in the honest inquiry and thought of free men who take their civic responsibilities seriously.
THE LEAGUE OF NATIONS AND THE REHABILITATION OF EUROPE
BY THE RT. HON. LORD ROBERT CECIL
K.C., M.P., a.s.sistant Secretary of State for Foreign Affairs, 1918.
Minister of Blockade, 1916-1918. Representative of Union of South Africa at a.s.sembly of League of Nations.
Lord Robert Cecil said:--I ought to explain that I am here rather by accident. The speaker who was to have addressed you was my great personal friend, Professor Gilbert Murray, and you have greatly suffered because he is not present. He is prevented by being at Geneva on a matter connected with the League, and he suggested that I might take his place. I was very glad to do so, for, let me say quite frankly, I am ready to advocate the League of Nations before any a.s.sembly, certainly not least an a.s.sembly of Liberals. But not only an a.s.sembly of Liberals--I should be ready to advocate it even before an a.s.sembly of "Die-Hards."
Your chairman has said, and said truly, that the League is not a party question. We welcome, we are anxious for support from every one. We have seen in another great country the very grave danger that may accrue to the cause of the League if it unhappily becomes identified with party politics. We welcome support, yes, I will say even from the Prime Minister; indeed no one will reject the support of the Prime Minister of England for any cause. I am bound to admit when I first read the speech to which reference has already been made, I was a little reminded of the celebrated letter of Dr. Johnson to Lord Chesterfield. Lord Chesterfield only began to recognise the value of Johnson"s works when Johnson had already succeeded, and in one of the bitter phrases Dr. Johnson then used he said, "Is not a patron one who looks with unconcern on a man struggling for life in the water, and when he has reached ground incommodes him with help?" That was a pa.s.sing phase in my mind, and I am a little ashamed of it, because, after all, we cannot say the League has reached ground as yet. We need and are grateful for the help of any one who will genuinely come to its a.s.sistance. I hope we may look not only for words, but for deeds. The League needs all the support it can get in the very perilous and menacing times which are before us. I was glad to note that the Government has announced--it is one of the great test questions--that not only is it in favour of the entry of Germany into the League, but it would support the election of Germany to the Council of the League. That is an earnest of what we trust may be a real League policy from the Government of this country. And yet, though I have thought it right to emphasise the non-party aspect of this question, I am conscious, and I am sure all of you are, there are two ways in which the League is regarded. It is not only that, as your chairman would say, some people have more faith than others, but there is really a distinct att.i.tude of mind adopted by some supporters of the League from that adopted by others.
THE TWO VIEWS OF THE LEAGUE
There is what I may call the empirical view of the League. There are those of us in this country, and indeed all over the world, who, profoundly impressed with the horrors of war, hating war from the bottom of their hearts as an evil thing--a company which must include, as far as I can see, all Christian men and women--these people, impressed with the horrors of war, look about for some means of keeping it away, some safeguard against its renewal. And they say: "We have tried everything else, we have tried the doctrine of the preparation for war as a great safeguard of peace; we have tried the doctrine of the Balance of Power; we have tried the doctrine of making one State or group of States so powerful that it can enforce its will on the rest of the world. We have tried all these expedients, and we are driven to the conclusion that they lead not to peace, but to war. Is there anything else?" And then they come quite legitimately to the League as their last hope of preserving the peace of the world. I was talking to a distinguished Frenchman the other day, and that was his att.i.tude. It is the att.i.tude of a great many people. In my judgment it is quite sound as far as it goes. But it is not inspiring. It depends in the last resort merely on a frank appeal to the terrors of mankind.
Against that view you may set the more fundamental way of approaching this question. You may say if you are to have peace in the world it is not enough merely to provide safeguards against war. You must aim at creating a new international spirit, a new spirit in international affairs; you must build from the very foundations. That is the positive as opposed to the negative way of approaching this question. It is not enough to cast out the war spirit and leave its habitation swept and garnished. You have to replace the war spirit by a spirit of international co-operation. And that is the way of regarding this great movement which some people think can be disposed of by describing it as idealism--a favourite term of abuse, I learn, now, but which seems to me not only good politics and good morality, but common sense as well.
THE NEGATIVE AND THE POSITIVE
These two points of view do represent undoubtedly fundamental differences of political att.i.tude, and you will find that the two sets of advocates or supporters of the League whom I have tried to describe, will inevitably regard with different emphasis the provisions of the Covenant, and even the achievements of the League. For if you read the Covenant you will find two sets of provisions in that doc.u.ment. It does recognise the two schools, as it were, that I have been describing. It has a set of provisions which deal with the enforcement, the safeguarding of peace, and a set of provisions which deal with the building up of international co-operation. You will notice the two sets of provisions. There are those aiming directly at the settlement of disputes without war. This is the central part of the League. It is the first thing before you can hope to do anything else. Before you can begin to build up your international spirit you must get rid as far as you can of the actual menace of war; and in that sense this is the central part of the Covenant. But, in my view, the most enduring and perhaps the most important part is that set of provisions which cl.u.s.ter round the group of articles beginning with Article 10 perhaps, certainly Article 12, and going on to Article 17--the group which says in effect that before nations submit their disputes to the arbitrament of war they are bound to try every other means of settling their differences. It lays down first the principle that every dispute should come to some kind of arbitration, either by the new Court of International Justice--one of the great achievements of the League--or discussion before a specially const.i.tuted Arbitration Court, or failing both, then discussion before the Council of the League; and Articles 15 and 16 provide that until that discussion has taken place, and until adequate time has been allowed for the public opinion of the world to operate on the disputants as the result of that examination, no war is to take place, and if any war takes place the aggressor is to be regarded as perhaps what may be called an international outlaw.
Before you begin to build you must have freedom from actual war, and the provisions have been effective. They are not merely theoretic. I am not sure whether it is generally recognised, even in so instructed an a.s.sembly as this, how successful these provisions have actually been in practice. Let me give you briefly two ill.u.s.trations: the dispute between Sweden and Finland, and the much more urgent case of the dispute between Serbia and Albania. In the first case you had a dispute about the possession of certain islands in the Baltic. It was boiling up to be a serious danger to the peace of the world. It was referred to the League for discussion. It was before the existence of the International Court.
A special tribunal was const.i.tuted. The matter was threshed out with great elaboration; a decision was come to which, it is interesting to observe, was a decision against the stronger of the two parties. It was accepted, not with enthusiasm by the party that lost, but with great loyalty. It has been adopted, worked out in its details by other organs of the League, and as far as one can tell, as far as it is safe to prophesy about anything, it has absolutely closed that dispute, and the two countries are living in a greater degree of amity than existed before the dispute became acute.
But the Albanian case is stronger. You had a very striking case: a small country only just struggling into international existence. Albania had only just been created before the war as an independent State, and during the war its independence had in effect vanished. The first thing that happened was its application for membership of the League. That was granted, and thereby Albania came into existence really for the first time as an independent State. Then came its effort to secure the boundaries to which it was ent.i.tled, which had been provisionally awarded to it before the war. While that dispute was still unsettled, its neighbour, following some rather disastrous examples given by greater people in Europe, thought to solve the question by seizing even more of the land of Albania than it already occupied. Thereupon the Articles of the Covenant were brought into operation. The Council was hastily summoned within a few days. It was known that this country was prepared to advocate before that Council the adoption of the coercive measures described in Article 16. The Council met, and the aggressive State immediately recognised that as a member of the League it had no course open but to comply with its obligations, and that as a prudent State it dared not face the danger which would be caused to it by the operation of Article 16. Immediately, before the dispute had actually been developed, before the Council, the Serbians announced that they were prepared to withdraw from Albanian territory, and gave orders to their troops to retire beyond the boundary. Let us recognise that this decision having been come to, it was carried out with absolute loyalty and completeness. The troops withdrew. The territory was restored to Albania without a hitch. No ill-feeling remains behind, and the next thing we hear is that a commercial treaty is entered into between the two States, so that they can live in peace and amity together.
THE SPIRIT OF THE LEAGUE
I want to emphasise one point about these two cases. It is not so much that the coercive powers provided in the Covenant were effectively used.
In Sweden and Finland they never came into the question at all, and in the other case there was merely a suggestion of their operation. What really brought about a settlement of these two disputes was that the countries concerned really desired peace, and were really anxious to comply with their obligations as members of the League of Nations. That is the essential thing--the League spirit. And if you want to see how essential it is you have to compare another international incident: the dispute between Poland and Lithuania, where the League spirit was conspicuous by its absence. There you had a dispute of the same character. But ultimately you did secure this: that from the date of the intervention of the League till the present day--about two years--there has been no fighting; actual hostilities were put an end to. Though that is in itself an immensely satisfactory result, and an essential preliminary for all future international progress, yet one must add that the dispute still continues, and there is much recrimination and bitterness between the two countries. The reason why only partial success has been attained is because one must say Poland has shown a miserable lack of the true spirit of the League.
Let me turn to the other parts of the Covenant--those which aim directly at building up international co-operation. I am not sure that it is always sufficiently realised that that is not only an implicit but also an explicit object of the Covenant--that it is the main purpose for which the League exists. International co-operation are the very first words of the preamble to the Covenant. This is the fundamental idea I cannot insist on too strongly, because it does really go down to the very foundations of my whole creed in political matters. International co-operation, cla.s.s co-operation, individual co-operation--that is the essential spirit if we are to solve the difficulties before us. Let me remind you of the two instances of the action of the League in dealing with the threat of epidemics to Europe. A conference was called at Washington to consider what could be done to save Europe from the danger of epidemics coming from the East. What is interesting is that in that conference you had present not only members of the League considering and devising means for the safety of Europe, but you had representatives of Germany and Russia--a splendid example of the promotion of international co-operation extending even beyond the limits of the membership of the League. Admirable work was done. All countries co-operated quite frankly and willingly under the presidency of a distinguished Polish scientist.
That is one example of what we mean by international co-operation.
Perhaps an even more striking example was the great work of Dr. Nansen in liberating the prisoners of war who were in Russia. He was entrusted with the work on behalf of the League. The prisoners of war belonged to all nationalities, including our enemies in the late war. He accomplished his work because he went about it in the true spirit of the League, merely anxious to promote the welfare of all, leaving aside all prejudices whether arising from the war or from any other cause. Dr.
Nansen is in my judgment the incarnation of the spirit of the League, and his work, immensely successful, restored to their homes some 350,000 persons, and he did it for less money than he originally estimated it would cost.
Do not put me down as a facile optimist in this matter. In the matter of international co-operation we have a long way to go before we reach our goal, and we can already see one or two serious failures. I deeply deplore that last year the League found itself unable, through the instructions given by the Governments which composed it, to do anything effective on behalf of the famine in Russia. It was a most deplorable failure for the League, and still more deplorable for this country. It was a great opportunity for us to show that we really did mean to be actuated by a new spirit in international affairs, and that we did recognise that the welfare of all human beings was part--if you like to put it so--of our national interests. We failed to make that recognition. We have been trying feebly and unsuccessfully to repair that great mistake ever since, and for my part I do not believe there is any hope of a solution of the Russian difficulty until we absolutely acknowledge the failure we then made, and begin even at this late hour to retrace the false step we then took.
I could give other instances of failure, but I do not wish to depress you, and there are cheering things we may look at. It is a matter of great relief and congratulation that the policy of mandates really does appear to be becoming effective, and one of the greatest activities of the League. Nothing is better than the conception which the mandate clause embodies, that the old ideas of conquest are to be put aside; that you are not to allow nations to go out and take chunks of territory for themselves; that they must hold new territory not for themselves, but on behalf of and for the benefit of mankind at large. This is at the bottom of mandates. Since I am speaking on behalf of Professor Murray, I ought to remind you of the provisions of the Covenant for the protection of racial linguistic minorities, and minorities in different countries.
It has not yet become an effective part of the machinery of the League, but I look forward to the time when we shall have established the doctrine that all racial minorities are ent.i.tled to be treated on a footing absolutely equal with other nationals of the country in which they live. If that could be established, one of the great difficulties in the way of international co-operation in the spirit of peace will be removed.
THE MISTAKE OF VERSAILLES
These are the two aspects I wanted to bring before you. If we are to get down to the root of the matter; if we are to uproot the old jungle theory of international relations, we must recognise that the chief danger and difficulty before us is what may be described as excessive nationalism. We have to recognise in this and other countries that a mere belief in narrow national interests will never really take you anywhere. You must recognise that humanity can only exist and prosper as a whole, and that you cannot separate the nation in which you live, and say you will work for its prosperity and welfare alone, without considering that its prosperity and welfare depend on that of others.
And the differences on that point go right through a great deal of the political thought of the day.
Take the question of reparations. I am not going to discuss in detail what ought to be done in that difficult and vexed question, but I want to call your attention to the mistake which was originally made, and which we have never yet been able to retrieve. The fundamental error of Versailles was the failure to recognise that even in dealing with a conquered enemy you can only successfully proceed by co-operation. That was the mistake--the idea that the victorious Powers could impose their will without regard to the feelings and desires and national sentiment of their enemy, even though he was beaten. For the first time in the history of peace conferences, the vanquished Power was not allowed to take part in any real discussion of the terms of the treaty. The att.i.tude adopted was, "These are our terms, take or leave them, but you will get nothing else." No attempt was made to appreciate, or even investigate the view put forward by the Germans on that occasion. And last, but not least, they were most unfortunately excluded from membership of the League at that time. I felt profoundly indignant with the Germans and their conduct of the war. I still believe it was due almost exclusively to the German policy and the policy of their rulers that the war took place, and that it was reasonable and right to feel profound indignation, and to desire that international misdeeds of that character should be adequately punished. But what was wrong was to think that you could as a matter of practice or of international ethics try to impose by main force a series of provisions without regard to the consent or dissent of the country on which you were trying to impose them. That is part of the heresy that force counts for everything. I wish some learned person in Oxford or elsewhere would write an essay to show how little force has been able to achieve in the world. And the curious and the really remarkable thing is that it was this heresy which brought Germany herself to grief. It is because of the false and immoral belief in the all-powerfulness of force that Germany has fallen, and yet those opposed to Germany, though they conquered her, adopted only too much of her moral code.
It was because the Allies really adopted the doctrine of the mailed fist that we are now suffering from the terrible economic difficulties and dangers which surround us. I venture to insist on that now, because there are a large number of people who have not abandoned that view.
There are still a number of people who think the real failure that has been committed is not that we went wrong, as I think, in our negotiations at Versailles, but that we have not exerted enough force, and that the remedy for the present situation is more threats of force.
I am sure it won"t answer. I want to say that that doctrine is just as pernicious when applied to France as when applied to Germany. You have made an agreement. You have signed and ratified a treaty; you are internationally bound by that treaty. It is no use turning round and with a new incarnation of the policy of the mailed fist threatening one of your co-signatories that they are bound to abandon the rights which you wrongly and foolishly gave to them under that treaty.
I am against a policy based on force as applied to Germany. I am equally opposed to a policy based on force as applied to France. If we really understand the creed for which we stand, we must aim at co-operation all round. If we have made a mistake we must pay for it. If we are really anxious to bring peace to the world, and particularly to Europe, we must be prepared for sacrifices. We have got to establish economic peace, and if we don"t establish it in a very short time we shall be faced with economic ruin. In the strictest, most nationalistic interests of this country, we have to see that economic war comes to an end. We have got to make whatever concessions are necessary in order to bring that peace into being.
ECONOMIC PEACE
That is true not only of the reparation question; it is true of our whole economic policy. We have been preaching to Europe, and quite rightly, that the erection of economic barriers between countries is a treachery to the whole spirit of the League of Nations, and all that it means, and yet with these words scarcely uttered we turn round and pa.s.s through Parliament a new departure in our economic system which is the very contradiction of everything we have said in international conference.
The Safeguarding of Industries Act is absolutely opposed to the whole spirit and purpose which the League of Nations has in view. A reference was made by your chairman to Lord Grey, and I saw in a very distinguished organ of the Coalition an attack on his recent speech. We are told that he ought not at this crisis to be suggesting that the present Government is not worthy of our confidence, but how can we trust the present Government? How is it possible to trust them when one finds at Brussels, at Genoa, at the Hague, and elsewhere they preach the necessity of the economic unity of Europe, and then go down to the House of Commons and justify this Act on the strictest, the baldest, the most unvarnished doctrine of economic particularism for this country? Nor does it stop there. I told you just now that for me this doctrine on which the League is based goes right through many other problems than those of a strictly international character. You will never solve Indian or Egyptian difficulties by a reliance on force and force alone.
I believe that the deplorable, the scandalous condition to which the neighbouring island of Ireland has been reduced is largely due to the failure to recognise that by unrestricted unreasoning, and sometimes immoral force, you cannot reach the solution of the difficulties of that country.
And in industry it is the same thing. If you are really to get a solution of these great problems, depend upon it you will never do it by strikes and lock-outs. I am an outsider in industrial matters. I am reproached when I venture to say anything about them with the observation that I am no business man. I can only hope that in this case lookers-on may sometimes see most of the game. But to me it is profoundly depressing when I see whichever section of the industrial world happens to have the market with it--whether employers or wage-earners--making it its only concern to down the other party as much as it can. You will never reach a solution that way. You have to recognise in industrial as in international affairs that the spirit of co-operation, the spirit of partnership, is your only hope of salvation.
THE TWO CAUSES OF UNREST
What is the conclusion of what I have tried to say to you? There are at the present time two great causes of fighting and hostility. There used to be three. There was a time when men fought about religious doctrine, and though I do not defend it, it was perhaps less sordid than some of our fights to-day. Now the two great causes of fighting are greed and fear. Generally speaking, I think we may say that greed in international matters is a less potent cause of hostility than fear. The disease the world is suffering from is the disease of fear and suspicion. You see it between man and man, between cla.s.s and cla.s.s, and most of all between nation and nation. People reproach this great country and other great countries with being unreasonable or unwilling to make concessions. If you look deeply into it you will find always the same cause. It is not mere perversity; it is fear and fear alone that makes men unreasonable and contentious. It is no new thing; it has existed from the foundation of the world. The Prime Minister the other day said, and said quite truly, that the provisions of the Covenant, however admirable, were not in themselves sufficient to secure the peace of the world. He made an appeal, quite rightly, to the religious forces and organisations to a.s.sist. I agree, but after all something may be done by political action, and something by international organisation. In modern medicine doctors are constantly telling us they cannot cure any disease--all they can do is to give nature a chance. No Covenant will teach men to be moral or peace-loving, but you can remove, diminish, or modify the conditions which make for war, and take obstacles out of the way of peace. We advocate partnership in industry and social life. We advocate self-government, international co-operation. We recognise that these are no ends in themselves; they are means to the end; they are the influences which will facilitate the triumph of the right and impede the success of the wrong.