Britain at Bay

I

THE NATION AND THE PARTIES

"I do not believe in the perfection of the British constitution as an instrument of war … it is evident that there is something in your machinery that is wrong." These were the words of the late Marquis of Salisbury, speaking as Prime Minister in his place in the House of Lords on the 30th of January 1900. They amounted to a declaration by the British Government that it could not govern, for the first business of a Government is to be able to defend the State of which it has charge, that is, to carry on war. Strange to say, the people of England were undisturbed by so striking an admission of national failure.

On the 16th of March 1909 came a new declaration from another Prime Minister. Mr. Asquith, on the introduction of the Navy Estimates, explained to the House of Commons that the Government had been surprised at the rate at which the new German navy was being constructed, and at the rapid growth of Germany's power to build battleships. But it is the first duty of a Government to provide for national security and to provide means to foresee. A Government that is surprised in a matter relating to war is already half defeated.

The creation of the German navy is the creation of means that could be used to challenge Great Britain's sea power and all that depends upon it. There has been no such challenge these hundred years, no challenge so formidable as that represented by the new German fleet these three hundred years. It brings with it a crisis in the national life of England as great as has ever been known; yet this crisis finds the British nation divided, unready and uncertain what leadership it is to expect.

The dominant fact, the fact that controls all others, is that from now onwards Great Britain has to face the stern reality of war, immediately by way of preparation and possibly at any moment by way of actual collision. England is drifting into a quarrel with Germany which, if it cannot be settled, involves a struggle for the mastery with the strongest nation that the world has yet seen—a nation that, under the pressure of necessity, has learnt to organise itself for war as for peace; that sets its best minds to direct its preparations for war; that has an army of four million citizens, and that is of one mind in the determination to make a navy that shall fear no antagonist. A conflict of this kind is the test of nations, not only of their strength but also of their righteousness or right to be. It has two aspects. It is first of all a quarrel and then a fight, and if we are to enter into it without fear of destruction we must fulfil two conditions: in the quarrel we must be in the right, in the fight we must win. The two conditions are inseparable. If there is a doubt about the justice of our cause we shall be divided among ourselves, and it will be impossible for us to put forth the strength of a united nation.

Have we really a quarrel with Germany? Is she doing us any wrong? Some of our people seem to think so, though I find it hard to say in what the wrong consists. Are we doing her any wrong? Some Germans seem to think so, and it behoves us, if we can, to find out what the German grievance is.

Suppose that there is a cause for quarrel, hidden at present but sooner or later to be revealed. What likelihood is there that we shall be able to make good our case in arms, and to satisfy the world and posterity that we deserved to win?

Germany can build fleets as fast as we can, and although we have a start the race will not be easy for us; she has the finest school of war that ever existed, against which we have to set an Admiralty so much mistrusted that at this moment a committee of the Cabinet is inquiring into its efficiency.

Is it not time for us to find the answer to the question raised by Lord Salisbury nine years ago, to ascertain what it is that interferes with the perfection of the British constitution as an instrument of war, and to set right what is wrong with our machinery?

The truth is that we have ceased to be a nation; we have forgotten nationhood, and have become a conglomerate of classes, parties, factions, and sects. That is the disease. The remedy consists in reconstituting ourselves as a nation.

What is a nation? The inhabitants of a country constituted as one body to secure their corporate being and well-being. The nation is all of us, and its government is trusteeship for us all in order to give us peace and security, and in order that in peace and security we may make each other's lives worth living by doing each the best work he can. The nature of a nation may be seen by distinguishing it from the other nations outside and from the parties within. The mark of a nation is sovereignty, which means, as regards other nations, the right and the power to make peace with them or to carry on war against them, and which means, as regards those within, the right and the power to command them.

A nation is a people constituted as a State, maintaining and supporting a Government which is at once the embodiment of right and the wielder of force. If the right represented by the Government is challenged, either without or within, the Government asserts it by force, and in either case disposes, to any extent that may be required, of the property, the persons, and the lives of its subjects.

A party, according to the classical theory of the British constitution, is a body of men within the State who are agreed in regarding some measure or some principle as so vital to the State that, in order to secure the adoption of the measure or the acceptance of the principle, they are willing to sink all differences of opinion on other matters, and to work together for the one purpose which they are agreed in regarding as fundamental.

The theory of party government is based on the assumption that there must always be some measure or some principle in regard to which the citizens of the same country will differ so strongly as to subordinate their private convictions on other matters to their profound convictions in regard to the one great question. It is a theory of permanent civil war carried on through the forms of parliamentary debate and popular election, and, indeed, the two traditional parties are the political descendants of the two sides which in the seventeenth century were actually engaged in civil war. For the ordinary purposes of the domestic life of the country the system has its advantages, but they are coupled with grave drawbacks. The party system destroys the sincerity of our political life, and introduces a dangerous dilettantism into the administration of public business.

A deliberative assembly like the House of Commons can reach a decision only by there being put from the chair a question to which the answer must be either Yes or No. It is evidently necessary to the sincerity of such decisions that the answer given by each member shall in every case be the expression of his conviction regarding the right answer to the question put. If every member in every division were to vote according to his own judgment and conscience upon the question put, there would be a perpetual circulation of members between the Ayes to the right and the Noes to the left. The party system prevents this. It obliges each member on every important occasion to vote with his leaders and to follow the instruction of the whips. In this way the division of opinion produced by some particular question or measure is, as far as possible, made permanent and dominant, and the freedom of thought and of deliberation is confined within narrow limits.

Thus there creeps into the system an element of insincerity which has been enormously increased since the extension of the franchise and the consequent organisation of parties in the country. Thirty or forty years ago the caucus was established in all the constituencies, in each of which was formed a party club, association, or committee, for the purpose of securing at parliamentary elections the success of the party candidate. The association, club, or committee consists, as regards its active or working portion, of a very small percentage of the voters even of its own party, but it is affiliated to the central organisation and in practice it controls the choice of candidates.

What is the result? That the affairs of the nation are entirely given over to be disputed between the two organised parties, whose leaders are compelled, in shaping their policy and in thinking about public affairs, to consider first and foremost the probable effect of what they will do and of what they will say upon the active members of the caucus of their own party in the constituencies. The frame of mind of the members of the caucus is that of men who regard the opposite caucus as the adversary. But the adversary of a nation can only be another nation.

In this way the leaders of both parties, the men who fill the places which, in a well-organised nation, would be assigned to statesmen, are placed in it position in which statesmanship is almost impossible. A statesman would be devoted solely to the nation. He would think first, second, and third of the nation. Security would be his prime object, and upon that basis he would aim at the elevation of the characters and of the lives of the whole population. But our leaders cannot possibly think first, second, and third of the nation. They have to think at least as much of the next election and of the opinions of their supporters. In this way their attention is diverted from that observation of other nations which is essential for the maintenance of security. Moreover, they are obliged to dwell on subjects directly intelligible to and appreciable by the voters in the constituencies, and are thereby hindered from giving either the time or the attention which they would like to any of those problems of statesmanship which require close and arduous study for their solution. The wonder is in these conditions that they do their work so well, and maintain undiminished the reputation of English public men for integrity and ability.

Yet what at the present moment is the principle about which parties are divided? Is there any measure or any principle at issue which is really vital to Great Britain? Is there anything in dispute between the parties which would not be abandoned and forgotten at the first shot fired in a war between England and a great continental nation? I am convinced that that first shot must cause the scales to fall from men's eyes; that it must make every one realise that our divisions are comparative trifles and that for years we have been wasting time over them. But if we wait for the shock of war to arouse us to a sense of reality and to estimate our party differences at their true value, it will be too late. We shall wring our hands in vain over our past blindness and the insight we shall then have obtained will avail us nothing.

The party system has another consequence which will not stand scrutiny in the light of reality; it is dilettantism in the conduct of the nation's principal business. Some of the chief branches of the executive work of government are the provinces of special arts and sciences, each of which to master requires the work of a lifetime. Of such a kind are the art of carrying on war, whether by sea or land, the art of conducting foreign relations, which involves a knowledge of all the other great States and their policies, and the direction of the educational system, which cannot possibly be properly conducted except by an experienced educator. But the system gives the direction of each of these branches to one of the political leaders forming the Cabinet or governing committee, and the practice is to consider as disqualified from membership of that committee any man who has given his life either to war, to foreign policy, or to education. Yet by its efficiency in these matters the nation must stand or fall. By all means let us be chary of lightly making changes in the constitution or in the arrangements of government. But, if the security and continued existence of the nation are in question, must we not scrutinise our methods of government with a view to make sure that they accord with the necessary conditions of success in a national struggle for existence?

I am well aware that the train of thought to which I have tried to give expression is unpopular, and that most people think that any modification of the traditional party system is impracticable. But the question is not whether the system is popular; it is whether it will enable the country to stand in the hour of trial. If the system is inefficient and fails to enable the nation to carry on with success the functions necessary for its preservation and if at the same time it is impracticable to change it, then nothing can avert ruin from this country. Yet I believe that a very large number of my countrymen are in fact thinking each for himself the thoughts which I am trying to express. They are perhaps not the active members of the caucus of either party, but they are men who, if they see the need, will not shrink from exertions or from sacrifices which they believe to be useful or necessary to the country. It is to them that the following pages are an appeal. I appeal with some confidence because what I shall try to show to be necessary is not so much a change of institutions as a change of spirit; not a new constitution but a return to a true way of looking at public and private life. My contention is that the future of England depends entirely upon the restoration of duty, of which the nation is the symbol, to its proper place in our lives.

II

DEFEAT

Great Britain is drifting unintentionally and half unconsciously into a war with the German Empire, a State which has a population of sixty millions and is better organised for war than any State has ever been in modern times. For such a conflict, which may come about to-morrow, and unless a great change takes place must come about in the near future, Great Britain is not prepared.

The food of our people and the raw material of their industries come to this country by sea, and the articles here produced go by sea to their purchasers abroad. Every transaction carries with it a certain profit which makes it possible. If the exporter and the manufacturer who supplies him can make no profit they cannot continue their operations, and the men who work for them must lose their employment.

Suppose Great Britain to be to-morrow at war with one or more of the Great Powers of Europe. All the sailing vessels and slow steamers will stop running lest they should be taken by hostile cruisers. The fast steamers will have to pay war rates of insurance and to charge extra freights. Steamers ready to leave foreign ports for this country will wait for instructions and for news. On the outbreak of war, therefore, this over-sea traffic must be greatly diminished in volume and carried on with enormously increased difficulties. The supply of food would be considerably reduced and the certainty of the arrival of any particular cargo would have disappeared. The price of food must therefore rapidly and greatly rise, and that alone would immediately impose very great hardships on the whole of the working class, of which a considerable part would be driven across the line which separates modern comfort from the starvation margin. The diminution in the supply of the raw materials of manufacture would be much greater and more immediate. Something like half the manufacturers of Great Britain must close their works for want of materials. But will the other half be able to carry on? Foreign orders they cannot possibly execute, because there can be no certainty of the delivery of the goods; and even if they could, the price at which they could deliver them with a profit would be much higher than it is in peace. For with a diminished supply the price of raw material must go up, the cost of marine insurance must be added, together with the extra wages necessary to enable the workmen to live with food at an enhanced price.

Thus the effect of the greater difficulty of sea communication must be to destroy the margin of profit which enables the British capitalist to carry on his works, while the effect of all these causes taken together on the credit system upon which our whole domestic economy reposes will perhaps be understood by business men. Even if this state of things should last only a few months, it certainly involves the transfer to neutrals of all trade that is by possibility transferable. Foreign countries will give their orders for cotton, woollen, and iron goods to the United States, France, Switzerland, and Austro-Hungary, and at the conclusion of peace the British firms that before supplied them, if they have not in the meantime become bankrupt, will find that their customers have formed new connections.

The shrinkage of credit would bring a multitude of commercial failures; the diminution of trade and the cessation of manufactures a great many more. The unemployed would be counted by the million, and would have to be kept at the public expense or starve.

If in the midst of these misfortunes, caused by the mere fact of war, should come the news of defeat at sea, still more serious consequences must follow. After defeat at sea all regular and secure communication between Great Britain, her Colonies, and India comes to an end. With the terrible blow to Britain's reputation which defeat at sea must bring, what will be the position of the 100,000 British in India who for a century have governed a population of nearly 300,000,000? What can the Colonies do to help Great Britain under such conditions? For the command of the sea nothing, and even if each of them had a first-rate army, what would be the use of those armies to this country in her hour of need? They cannot be brought to Europe unless the British navy commands the sea.

These are some of the material consequences of defeat. But what of its spiritual consequences? We have brought up our children in the pride of a great nation, and taught them of an Empire on which the sun never sets. What shall we say to them in the hour of defeat and after the treaty of peace imposed by the victor? They will say: "Find us work and we will earn our bread and in due time win back the greatness that has been lost." But how are they to earn their bread? In this country half the employers will have been ruined by the war. The other half will have lost heavily, and much of the wealth even of the very rich will have gone to keep alive the innumerable multitude of starving unemployed. These will be advised after the war to emigrate. To what country? Englishmen, after defeat, will everywhere be at a discount. Words will not describe, and the imagination cannot realise, the suffering of a defeated nation living on an island which for fifty years has not produced food enough for its population.

The material and spiritual results of defeat can easily be recognised by any one who takes the trouble to think about the question, though only experience either at first hand or supplied by history can enable a man fully to grasp its terrible nature. But a word must be said on the social and political consequences inseparable from the wreck of a State whose Government has been unable to fulfil its prime function, that of providing security for the national life. All experience shows that in such cases men do not take their troubles calmly. They are filled with passion. Their feelings find vent in the actions to which their previous currents of thought tended. The working class, long accustomed by its leaders to regard the capitalists as a class with interests and aims opposed to its own, will hardly be able in the stress of unemployment and of famine to change its way of thinking. The mass of the workmen, following leaders whose judgment may not perhaps be of the soundest but who will undoubtedly sincerely believe that the doctrines with which they have grown up are true, may assail the existing social order and lay the blame of their misfortunes upon the class which has hitherto had the government of the country in its hands and has supplied the leaders of both political parties. The indignation which would inspire this movement would not be altogether without justification, for it cannot be denied that both political parties have for many years regarded preparation for war and all that belongs to it as a minor matter, subordinate to the really far less important questions relying upon which each side has sought to win sufficient votes to secure a party majority.

Why do I discuss the hypothesis of British defeat rather than that of British victory? Because it is the invariable practice of the masters of war to consider first the disagreeable possibilities and to make provision for them. But also because, according to every one of the tests which can be applied, the probability of defeat for Great Britain in the present state of Europe is exceedingly great. Rarely has a State unready for conflict been able to stand against a nation organised for war. The last of a long series of examples was the war between Russia and Japan, in which the vast resources of a great Empire were exhausted in the struggle with a State so small as to seem a pigmy in comparison with her giant adversary. On the 10th of February 1904, the day when the news reached England that the Russo-Japanese war had begun, I gave as follows my reasons for thinking that Japan would win:—

"The hypothesis of a considerable Japanese success, at any rate at first, is considered rather than its opposite, because Japan has at present all the marks of a nation likely to do great things in war. It is not merely that she has transformed her government and her education, has introduced military institutions on the German model, especially compulsory training and that vivifying institution, a general staff. The present quarrel arises from the deliberate policy of Russia, pursuing aims that are incompatible with every Japanese tradition and every Japanese hope. The whole Japanese nation has for years been burning with the sense of wrongs inflicted by Russia, and into this war, as into the preparation for it, the whole people throws itself, mind, soul, and body. This is the condition which produces great strategical plans and extreme energy in their execution. The Japanese forces are well organised, armed, and equipped. They are intelligently led and follow with intelligence.

"Of Russia there is hardly evidence to show that the cause for which she is fighting has touched the imaginations or the feelings of more than a small fraction of the population. It is the war of a bureaucracy, and Russia may easily fail to develop either great leading, though her officers are instructed, or intelligent following of the leaders by the rank and file. But the Russian troops are brave and have always needed a good deal of beating."

Substitute Great Britain for Russia and Germany for Japan in this forecast, which has been proved true, and every word holds good except two. We now know that Russia's policy was not deliberate; that her Government bungled into the war without knowing what it was doing. In just the same way British Governments have drifted blindly into the present difficult relations with Germany. Those in England who would push the country into a war with Germany are indeed not a bureaucracy, they are merely a fraction of one of the parties, and do not represent the mass of our people, who have no desire for such a war, and are so little aware of its possibility that they have never even taken the trouble to find out why it may come. A larger section of the other party is steeped in the belief that force, violence, and war are wicked in themselves, and ought therefore not to be thought about. It is a prejudice which, unless removed, may ruin this country, and there is no way of dissipating it except that of patient argument based upon observation of the world we live in. That way I shall attempt to follow in the next chapter.

III

FORCE AND RIGHT

"Ye have heard that it hath been said, An eye for an eye, and a tooth for a tooth: but I say unto you, That ye resist not evil: but whosoever shall smite thee on thy right cheek, turn to him the other also. And if any man will sue thee at the law, and take away thy coat, let him have thy cloke also. And whosoever shall compel thee to go a mile, go with him twain. Give to him that asketh thee, and from him that would borrow of thee turn not thou away. Ye have heard that it hath been said, Thou shalt love thy neighbour, and hate thine enemy: but I say unto you, Love your enemies."